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Perumal And Another v. Kumbakonam Municipality .
Structured Summary of the Opinion (Sathar Sayeed, J.)
Factual and Procedural Background
The petitioners are partners running a hotel called "Arya Bhavan" in Kumbakonam. On 30-3-1977 at 12:10 p.m., the Food Inspector (examined as PW 1) visited the hotel and purchased 660 ml of a five-litre rose mixture (comprised of milk, water, essence and sugar) after serving a Form VI notice (Ex. P.1) and obtaining a cash receipt (Ex. P.2). The sample was divided into three bottles, treated with formalin, sealed and one bottle was sent to the Public Analyst together with a Form VII notice (Ex. P.3). The Public Analyst reported (Ex. P.4) that the rose mixture was deficient in solids-not-fat by 41%. A copy of the Public Analyst's report was sent to the first petitioner under Section 13(2) of the Prevention of Food Adulteration Act and acknowledged (Ex. P.5). A complaint was filed on 15th June 1977 under Sections 7(1) and 16(1)(i) read with Section 2(la)(a) and (m) of the Prevention of Food Adulteration Act, 1954.
At trial the petitioners admitted certain factual matters: the first petitioner admitted selling the rose mixture to PW 1 and that it was made of sugar, water and milk; the second petitioner admitted being a partner. Both denied committing the offence as charged. The trial court convicted both petitioners and sentenced each to one year rigorous imprisonment and a fine of Rs. 2000 (with default imprisonment). The Sessions Judge, on appeal (Criminal Appeal No. 202 of 1977), confirmed conviction and sentence. This criminal revision challenges the dismissal of that appeal.
Legal Issues Presented
- Whether the Local (Health) Authority's failure to forward a copy of the Public Analyst's report to the person from whom the sample was taken "immediately" after institution of prosecution—as required by Section 13(2) of the Prevention of Food Adulteration Act and Rule 9-A of the Prevention of Food Adulteration Rules, 1955—invalidates the prosecution or requires quashing of conviction.
- What is the proper legal meaning of the word "immediately" in Rule 9-A and whether a delay of two months and fourteen days defeats the purpose of Rule 9-A and Section 13(2).
Arguments of the Parties
Petitioners' Arguments (as advanced by learned counsel Mr. Natarajan)
- The complaint was lodged on 15th June 1977, but the notice required under Section 13(2) (i.e., sending a copy of the Public Analyst's report to the person from whom the sample was taken) was served only on 29th August 1977—a delay of over two months—which is contrary to the statutory requirement.
- Rule 9-A of the Rules and Section 13(2) require that the Local (Health) Authority shall "immediately" after the institution of prosecution forward the report to the person from whom the sample was taken so that that person may, within ten days of receipt, apply for analysis by the Central Food Laboratory; a substantial delay frustrates that scheme.
- To substantiate this point, counsel relied on the judgment State by Public Prosecutor v. Murugesan (C.A. No. 584 of 1978, decided 3-12-1980 (Mad)).
The opinion does not contain a detailed account of any specific arguments presented by the respondent in opposition to the petitioners' contentions.
Table of Precedents Cited
| Precedent | Rule or Principle Cited For | Application by the Court |
|---|---|---|
| State by Public Prosecutor v. Murugesan, C.A. No. 584 of 1978, decided 3-12-1980 (Mad) | Relied on by petitioners' counsel to support the contention that delay in forwarding the Public Analyst's report/notice contrary to the requirements of Section 13(2) and Rule 9-A is impermissible. | The court noted that counsel relied upon this judgment and stated that "There is some substance in the argument advanced by the learned counsel for the petitioners." The court proceeded to address the delay and rule-based requirements and allowed the revision for non-compliance with Rule 9-A. |
Court's Reasoning and Analysis
The court's analysis proceeded from statutory text and regulatory requirement to the factual sequence of events:
- Statutory and regulatory framework: The court set out Section 13(2) of the Prevention of Food Adulteration Act and Rule 9-A of the Prevention of Food Adulteration Rules. Section 13(2) requires that where the Public Analyst reports that a food article is adulterated, the Local (Health) Authority shall, after institution of prosecution, forward a copy of the report to the person from whom the sample was taken and inform them of their right to apply within ten days for analysis by the Central Food Laboratory. Rule 9-A similarly requires that the Local (Health) Authority "immediately" after institution of prosecution forward the result of the analysis to the person from whom the sample was taken (by registered post or by hand).
- Purpose of the requirement: The court emphasised that the framers of Rule 9-A intended that the report be sent "immediately" so the affected person can be made aware of the analysis result and exercise the statutory right to move the court for re-analysis within the prescribed ten-day period. The immediacy requirement is thus linked to the procedural protection afforded to the person from whom the sample was taken.
- Interpretation of "immediately": The court examined dictionary definitions (Lexicon Webster Encyclopaedic Edition and Black's Law Dictionary, 5th Ed.) and concluded that "immediately" means "without delay; at once; forthwith" and implies prompt, vigorous action without delay—stronger than "within a reasonable time."
- Application to the facts: The Public Analyst's report bore the date 7th May 1977; the complaint was lodged on 15th June 1977; but the copy of the report and the notice under Section 13(2) were served on the petitioners only on 29th August 1977—2 months and 14 days after institution of prosecution. The court found that such delay defeats the purpose of Rule 9-A and breaches the "tenor" and "pith and substance" of the rule.
- Consequences of non-compliance: The court held that because of this failure to comply with Rule 9-A (and the corresponding requirement under Section 13(2)), the convictions and sentences imposed by the courts below could not stand. The courts below had not considered or appreciated this aspect.
Holding and Implications
Holding: Revision allowed.
Direct consequences for the parties:
- The convictions and sentences imposed on the petitioners under Sections 7(1) and 16(1)(i) read with Section 2(la)(a) and (m) of the Prevention of Food Adulteration Act, 1954, were set aside by the revisional court.
- If any fine was paid by the petitioners, it shall be refunded.
Broader implications:
The opinion stresses that Rule 9-A's requirement of sending the Public Analyst's report "immediately" is to be taken literally and enforced so as to protect the statutory right of the person from whom the sample was taken to seek re-analysis within ten days. The court criticized laxity or negligence in forwarding the report and indicated that courts should not countenance such delay. The opinion does not explicitly announce the creation of a new legal principle beyond applying the plain meaning of "immediately" to the statutory and regulatory scheme; the decision's immediate effect is the quashing of the convictions in this case and refund of fines, and no express statement is made that it establishes a novel precedent beyond applying existing statutory/regulatory requirements.
Disposition: Revision allowed; fines, if paid, to be refunded.
Sathar Sayeed, J.:— Accused 1 and 2 in C.C No. 425 of 1977 on the file of the Chief Judicial Magistrate, Kumbakonam, who were charged and convicted under Sections 7(1) and 16(1)(i) read with Section 2(la)(a) and (m) of the Prevention of Food Adulteration Act, 1954 (Act 37 of 1954) as amended (hereinafter referred to as the Act), and were sentenced to suffer rigorous imprisonment for one year and to pay a fine of Rs. ???000, in default to suffer rigorous imprisonment for one year, have filed the above revision.
2. The facts of the case are as follows: The petitioners are running a hotel under the name and style of “Arya Bhavan” in Big St. Kumbakonam. Both the petitioners are partners in the said hotel. On 30-3-1977 at 12-10 p. m. the Food Inspector of Kumbakonam Municipality, who has been examined as PW 1, went to the hotel of the petitioners. The first petitioner (first accused) was looking after the business and the second petitioner (second accused, was not present. Finding five litres of rose mixture made up of milk, water, essence and sugar for sale, the Food Inspector purchased 660 ml. of rose mixture on payment of Rs. 1-80, for the purpose of analysis, after serving the Form VI Notice to the accused which is marked in this case as Ex. P. 1. A cash receipt was also obtained from the first petitioner, which is marked as Ex. P. 2. Both Exs. P. 1 and P. 2 were attested by PW 2. The mixture that was purchased by PW 1 was divided into three parts and was filled up in three separate clean bottles, as required by law, and 16 drops of formalin were also added to each bottle and the sample bottles were then sealed and packed as per rules. The signature of the first petitioner was also obtained over the slip. One of the sealed bottles was sent to the Public Analyst for analysis, along with Form VII notice which is marked as Ex. P. 3. Another Form VII notice was also sent to the analyst by separate post. The Public Analyst sent his report Ex. P. 4 to the effect that rose mixture that was sent to him for analysis was found deficient in solids-not-fat to the extent of 41 per cent. A copy of the Public Analyst's report was sent to the first petitioner under Section 13(2) of the Act, which was acknowledged and the said acknowledgment is marked as Ex. P. 5. Thereafter, PW ??? filed a complaint against the petitioner under the aforesaid sections of the Act on 15th June 1977. After filing the complaint in June 1977, a notice as contemplated under Section 13(2) of the Act was served on the petitioners on 29th August, 1977 and thi? is marked as Ex. P. 6. It is not denied that at the time of taking sample the first petitioner gave a statement Ex. P. 7 to P.W 1, that he himself and the second petitioner are the partners of the hotel. On the basis of the Public Analyst's report, charges were framed against the petitioners under the aforesaid sections of Central Act 37 of 1954, as amended. When the trial court examined the petitioners the first petitioner admitted having sold the rose mixture to PW 1. He also stated that it was made up of sugar, water and milk. The second petitioner also admitted that he is one of the partners of the hotel. However, both of them denied that they committed the offence as alleged by the respondent warranting their conviction under the Act. The petitioners also examined on their behalf DW 1, who is a person working in the hotel.
3. The trial court, on the evidence adduced by the prosecution, came to the conclusion that the petitioners had committed the offence and accordingly convicted them and sentenced each of them to suffer rigorous imprisonment for one year and also imposed a fine of Rs. 2000 on each of them. Aggrieved by the said conviction, the petitioner preferred Criminal Appeal No. 202 of 1977 before the Sessions Judge, Thanjavur. The learned Sessions Judge, after scrutinising the entire evidence adduced in this case, confirmed the conviction and sentence imposed on the petitioners by the trial court and thus dismissed the appeal. It is as against the dismissal of the said appeal, this criminal revision has been filed.
4. Mr. Natarajan. learned counsel for the petitioners, though raised several points, confined his arguments only on one point which is more favourable to him. His contention is that the complaint againt the petitioners was lodged under the aforesaid sections of Central Act 37 of 1954 on 15th June 1977, but, the notice as required under Section 13(2) of the Act was served on the petitioner only on 29th August 1977, which is contrary to law. Learned counsel contends that Section 13(2) of the Act read with Rule 9-A of the Prevention of Food Adulteration Rules, 1955 (hereinafter referred to as the Rules) clearly points put that authority shall immediately after the institution of the prosecution, forward a copy of the report of the result of the analysis in Form III delivered to him under sub-rule (3) of Rule 7, by registered post, to the person from whom the sample of the article was taken by the Food Inspector and simultaneously also to the person, if any, whose name, address and other particulars have been disclosed under Sections 14-A of the Act. According to the counsel for the petitioner, the report of the Public Analyst, Ex P-4. is dated 7th May, 1977 and the complaint was lodged against the petitioners by the respondent on 15th June, 1977. Immediately after lodging the complaint, the respondent had not sent the copy of the report, Ex. P-4 along with the complaint, to the petitioners as required under Section 13(2) of the Act, but on the other hand the report of the Analyst and the notice of the complaint were sent only on 29th August, 1977, after a delay of more than two months, which the counsel contends, is contrary to law. In order to substantiate this argument, learned counsel relies on one of the judgments of mine, viz, State by Public Prosecutor v. Murugesan, in C.A No. 584 of 1978, decided on 3-12-1980. (Mad). There is some substance in the argument advanced by the learned counsel for the petitioners.
5. Section 13(2) of the Act contemplates that on receipt of the report of the result of the analysis under sub-section (1) of Section 13, to the effect that the food article is adulterated, the Local (Health) authority shall, after the institution of prosecution against the person from whom the sample of the article of food was taken forward a copy of the result of the analysis to such person or persons, as the case may be, informing such person or persons that if it is so desired, either or both may make an application to the court within a period of ten days from the date of receipt of the copy of the report to get the sample of the article of food kept by the Local (Health) authority analysed by the Central Food Laboratory. Similarly, Rule 9-A of the Rules contemplates that the Local (Health) Authority shall ‘immediately’ after the institution of the prosecution, forward a copy of the report of the result of the analysis to the person from whom the sample of the article was taken by the Food Inspector. The framers of Rule 9-A thought fit that the report of the Public Analyst should be seat immediately either by registered post or by hand, as may be appropriate, to the person from whom the sample of the article was taken by the Food inspector, in order to make that person aware that the report of the analysis is such and that if he intends to file an application to the court, he may do so within a period of ten days from the date of receipt of the copy of the report, to get the sample of the article of food kept by the Local (Health) Authority, analysed by the Central Food Laboratory.
6. In this case, it is not disputed that the complaint was filed on 15th June, 1977 by PW 1 against the petitioners under the aforesaid sections of the Act and the petitioners were served with notice under Section 13(2) of the Act not immediately, but on 29th Aug. 1977, after a period of two months and 14 days. If there is a delay of 2 months and 14 days, then the very purpose of mentioning the word ‘immediately’ in Rule 9-A is defeated. The Court should not countenance with favour the laxity or negligence in cases where the report of the Public Analyst is sent very late to the party from whom the article of food is seized. Courts should also see that there does not occur any delay, as it has happened in the instant case, in filing complaints against the offenders after the sample of food is taken from them.
7. The meaning of the word ‘immediate’ is found at page 478 of the Lexicon Webster Dictionary, Encyclopaedic Edition, Volume I, as—
“Occurring or done without separation by an interval of space or time; as, in the immediate area, an immediate reaction; instant, related to the persent time; as the immediate future; in closest relation; as, the immediate members of the family. Acting or occurring without a medium, or without an intervening cause, means, or condition, as the immediate source of the problem, direct.”
8. The word ‘immediately’ is described therein thus—
without delay; instantly; at once; forthwith; without the inter vention of any space, object, or medium; directly………”
9. Similarly, in Black's Law Dictionary, 5th Edition, at page 575 the word ‘immediately’ has been defined thus—
“Without interval of time, without, delay, straightway, or with out any delay or lapse of time………. The words ‘immediately’ and ‘forthwith’ have generally the same meaning. They are stronger than the expression ‘within a reasonable time’ and imply prompt, vigorous action without any delay………………………”
10. Thus we find the sum and substance of the word ‘immediately’ is to the effect that the report of the Public Analyst has to be sent tot he petitioners without any delay, i.e forthwith If the words in the rule framed under Rule 9-A of the Rules are themselves precise and unambiguous, then no more is necessary than to expound their meaning according to their natural and ordinary sense. The words themselves in such a case best declare the intention of the law given. In the instant case, the report of the Public Analyst Ex. P-4, though it dates 7th May, 1977, the complaint was filed against the petitioners on 15th June 1977, and the notice under Section 13(2) of the Act was served on the petitioners only on 29th August, 1977 along with the copy of the report of the Public Analyst. On perusing the aforesaid dates, in filing the complaint against the petitioners by the respondent and in sending the report of the Public Analyst, I am of the view that the respondent has violated the very tenor of Rule 9-A and the pith and substance of the word ‘immediately’. This aspect of the case has not been considered and appreciated by the courts below and the counsel appearing for the petitioners has rightly brought to my notice that the respondent has not complied with the requirements of Rule 9-A. Under these circumstances the conviction and the sentences imposed on the petitioners by the courts below under the aforesaid sections of the Act have to be set aside and this revision has to be allowed. Accordingly this revision is allowed. Fine, if paid by the petitioners shall be re funded.
11. Revision allowed
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