Holding

Section 18G falls within Entry 33 of the Concurrent List, allowing the Uttar Pradesh Sheera Niyantran Adhiniyam, 1964 and the State notifications to be intra vires, with no repugnancy and no violation of Articles 19(1)(g) or 301.

Summary

The petitioners (SIEL Ltd. and others) challenged the constitutional validity of the Uttar Pradesh Sheera Niyantran Adhiniyam, 1964 and subsequent state notifications controlling the supply, distribution and price of molasses, arguing that the State lacked legislative competence because the sugar industry fell under Union List Entry 52 and Section 18G of the Industries (Development & Regulation) Act, 1951. The Court held that Section 18G is a power conferred by Entry 33 of the Concurrent List, not by Entry 52 of the Union List, and therefore the State could legislate under Entry 33. Since the Central Molasses Control Order of 1961 was never extended to Uttar Pradesh and had been rescinded, no repugnancy arose between the Central and State laws. The Court further found the State's notifications to be reasonable economic measures, not violative of Article 19(1)(g) or Article 301. Consequently, the appeals were dismissed with costs.

Issues considered

The legislative competence of the Uttar Pradesh Sheera Niyantran Adhiniyam, 1964 under the Constitution.
Whether Section 18G of the Industries (Development & Regulation) Act, 1951 places the subject matter in the Union List, thereby precluding State legislation.
The existence of any repugnancy between the State Act and the Central Molasses Control Order, 1961.
Whether the State notifications under the Act violate the fundamental right to trade under Article 19(1)(g) and the freedom of trade under Article 301.
The reasonableness of the State's economic policy concerning molasses control.

Legislation cited

Constitution of Indias. Article 19(1)(g), s. Article 246, s. Article 254, s. Article 254(2), s. Article 301

Subjects

legislative competenceconcurrent listrepugnancymolasses controlsugar industryArticle 19(1)(g)Article 301economic policypith and substanceSection 18GUttar Pradesh Sheera Act

Judgment

A M/S. SIEL LTD. AND ORS. ETC.
v.
UNION OF INDIA AND ORS.

SEPTEMBER 11, 1998
B
[M.M. PUNCHHI, CJI, AND SUJATA V. MANOHAR, JJ.]

J/1dusflies (Development & Regulation) Act, 1951/Uttar Pradesh Sheera
Niyantran Adhiniyam, 1964/Molasses Control Orde1; 1961/Constitution of
India, 1950: Sections 2 and 18G/Section JO/Clause 1(2)/Schedule VII, List
c I and III-Colltrol over sugar indust1y taken over by the Central Govemment
in 1953-Tlze Sheera Act enacted by the State of UP. in 1964-Molasses
Control Order promulgated by the Central Govemment in 1961-Control
Order not extended to the State of U.P.-State of U.P. fixed the maximum
p1ice of molasses by notifications issued under Section JO of the Sheera
D Act-Molasses Control Order rescinded by the Central Govemment-State of
U.P. continued to issue notifications under the Sheera A ct-Challenge to the
constitutional validity of the Sheera Act dismissed by the High Cowt-On
appeal, Held: Section 18G is covered by Concwre1it List and not the Union
List-Any notification under Section 18G is an exercise of power confe1red
by Ent1y 33 of the Concwrent List-Molasses Control Order not extended to
E the State of U.P., therefore, no repugnancy with the She era Act-State of U.P.
empowered to issue notifications under Section 10 of the Sheera Act.

lllleqJretation of Statutes--Overlapping between the Union and State
legislation-Vires of State legislation challenged--Held--Encroachment alone
F does not affect vires of legislation-Regard to the enactment as a whole with
reference to object and scope is required.

In pursuance of Section 2 of the Industries (Development & Regula-
tion) Act, 1951, control over the sugar industry was taken over by the
-
Union Government in 1953 by introducing Section 18G in the said Act. In
G 1961 the Central Government promulgated the Molasses Control Order
under Section 18G of the IDR Act which imposed restriction on the sale
of molasses and fixed the maximum price of molasses, Clause 1(2) of the
Molasses Control Order provided that it shall come into force in a State
on such date as the Central Government may, by notification in the Official
H Gazette, appoint. Similarly Ethyl Alcohol Price Control Order was also
560
SIEL LTD. v. U.O.L 561

issued in 1971. As the said Molasses Control Order was never extended to A
the State of U.P., the Government of U.P. used to notify maximum price
of molasses, under Section 10 of the Uttar Pradesh Sheera Niyantran
Adhiniyam, 1964, in consonance with the maximum price prescribed by the
Central Government under the Molasses Control Order. In June, 1993 the
said Molasses Control Order ·and the Ethyl Alcohol Control Order were
rescinded by the Central Government by notification. However, in the State
B
of U.P., the Sheera Niyantran Adhiniyam continued to operate. The Con·
troller of Molasses/Excise Commissioner. U.P., thereafter, issued three
notifications, under Section 10 of the Sheera Act, in 1993 and 1994 reserv-
ing different percentages of graded molasses for distilleries and industries
based on molasses and alcohol which reCJuired to be sold at prices fixed C
by the State Government under the said notifications. The appellants'
challenge to constitutional validity of the Sheera Act on the ground of
legislative incompetence of the U.P. Legislature was dismissed by the High
Court.· Hence, the present appeals.

The appellant contended that the State of U.P., by reason of Entry D
25 in the First Schedule to the IDR Act, had no legislative competence to
pass the Sheera Act or Orders thereunder as all legislation pertaining to
sugar indnstry was within the exclusive domain of the Union Government
being covered entinly by Entry 52 of List I of the Vllth Schedule to the
Constitution of India. According to the respondents, as the Molasses E
Control Order was never brought into operation in the States of U.P. and
Bihar, the Power of the State of U.P. under Entry 33, List II of the VI Ith
Schedule to the Constitution to legislate in relation to the trade and
commerce in or supply and distribution of molasses in that State was not
taken away as a result of which no repugnancy had been created between F
the Union and the State Legislations.

Dismissing the appeals, the Court

HELD : 1.1. Section 2 of the Industries (Development & Regulation)
Act, 1951 clearly declares an industry which is in the First Schedule as an G
industry falling under Entry 52 of List I of the Vllth Schedule to the
Constitution of India. Section 18G, however, deals with control over supp·
Iy, distribution, price etc. of certain articles or products of such industry.
· Section 18G empowers the Central Government to provide by notification
for regulating the supply and distribution of a product of such industry H
562 SUPREME COURT REPORTS (1998] SUPP. 1 S.C.R.

A and trade and commerce therein. Section 18G is, therefore, an exercise of
the powers of legislation conferred by Entry 33 of List III and is excluded
from Entry 52 of List I. By its express language, Section 18G is clearly
covered under Entry 33 of List III and is excluded from Entry 52 of List
I. Any notification, therefore, issued under Section 18G would be an
B exercise of power conferred by Entry 33 of the Concurrent List. Since the
exercise of power under Section 18G falls .!_Inder the Concurrent List in the
Seventh Schedule to the Constitution and not under Entry 52 of List I, the
State Legislature is equally competent to legislate in respect of the same
subject matter, subject to Article 254 of the Constitution. [570-B, C, D, El

C Calcutta Gas Company (Prop1ieto1y) Ltd. v. State of West Bengal &
Ors., AIR (1962) SC 1044 and Ch. Tika Ramji & Ors. Etc. v. The State of
Uttar Pradesh & Ors., (1956) SCR 393, relied on.

1.2. The U.P. Sheera Niyantran Adhiniyam, 1964 has also received
President's assent under Article 254(2). The fact that the Molasses Control
D Order of 1961 passed by the Central Government in exercise of powers
conferred by Section 18G of the IDR Act was not extended at any point of
time to the State of U.P. or the State of Bihar, the question of repugnancy
between the Molasses Control Order, 1961 and the Sheera Act does not
arise. In fact, the present litigation has commenced after the Molasses
E Control Order, 1961 of the Central Government has been rescinded and
the only legislation which holds the field is the Sheera Act which is in
legitimate exercise of power of legislation under Entry 33 of List III. The
Sheera Act, therefore, is within the legislative competence of the State
Government. (573-C, D, E, F]

F Synthetics and Chemicals Ltd. & 01~·. v. State of U.P. & Ors., [1990)
1 sec 109, distinguished.

State of U.P. & Anr. v. Synthetics and Chemicals Ltd. & Anr., (1991)
4 sec 139, referred to.

G Indian Aluminium Company Ltd. and Anr. v. Kamataka Electlicity
Board & Ors., (1992) 3 SCC 580 and B. Viswanathiah & Company & 01~-.
v. State of Kamataka & Ors., (1991) 3 SCC 358, relied on.

1.3. When the Government of India issued the Molasses Control
H Order of 1961 it left the control of molasses in Uttar Pradesh in the hands
SlEL LTD. v. U.O.l. 563
of the State Government. Neither the sugar industry nor anybody else A
objected to this control of the State over allocation and prices of molasses
at any point of time till the announcement of decontrol by the Government
of India. As it was not possible for the State of U.P. to announce a total
decontrol, 70% of molasses were freed from control by the first notification
of 13.10.1993. However, it had an immediate adverse effect on the chemical
and down stream industries in U.P. As a result, the subsequent State
B
notifications were issued in October, 1993 and January, 1994 reducing
substantially the percentage of molasses. Simultaneously, the price of
controlled molasses was also enhanced by the State Government. The State
had followed a fair economic policy. In fixing, from time to time, the
percentage of free and controlled molasses and the prices for controlled c
molasses, the overall market position had also to be borne in mind. In
examining the reasonableness of an economic measure, the State should
have more latitude in for;nulating economic policy as well as appropriate
legislation in comparison to legislation relating to fundamental rights.
[574-E, F; 575-A, B, C]
D
Delhi Science Fomm & Ors. Etc. v. Union of India & Anr. Etc., JT
(1996) 2 SC 295 and Da/mia Cement (Bharat) Ltd. & Anr. Etc. v. Union of
India & Ors. Etc., JT (1996) 4 SC 555, relied on.

2.1. The essence of a Federal Constitution is that there should be E
distribution of legislative powers between the Centre and the States. When
the Constitution enumerates elaborately the topics on which the Centre
and States can legislate, some overlapping over the fields of legislation is
inevitable. Therefore, to decide whether an impugned legislation is intra
vires, regard must be had to its pith and substance. If a statute is found F
in substance to relate to a topic within the competence of that Legislature
it should be held to be intra vires, even though it might incidentally trench
on topics not within its legislative competence. The extent of the encroach·
ment may be an element in determining whether the legislation is
colourable, but where that is not the position, the fact of encroachment G
does not affect the vires of the law. To determine this, one must have
regard to the enactment as a whole, to its object and to the scope and effect
of its provisions. [569-F, G, H; 570-A, BJ

A.S. /Vis/ma & Ors. v. State of Madras, AIR (1957) SC 297, relied on. H
564 SUPREME COURT REPORTS [1998) SUPP.1 S.C.R.

A CIVIL APPELLATE JURISDICTION : Civil Appeal Nos. 4726-
4741 of 1998 Etc.

From the Judgment and Order dated 27.10.95 of the Allahabad High
Court in C.M.W.P. Nos. 978/93, 1006, 1018, 1045, 1075-76, 1080, 1689,
20892, 29738/93, 1460, 4591, 1437, 1451, 1461 and 4605 of 1994.
B
F.S. Nariman, Sudhir Chandra, D.A. Dave, N.N. Goswami, S.B.
Sanyal, Mrs. R. George, Subhash Sharma, Jayant Bhushan, H. Devarajan,
Parveen Kumar, Anil Aggarwal, (Rakesh Dwivedi), Adv. General, State of
U.P., R.B. Mishra, Kamlendra Mishra, Mrs. Nandini Gore, (Bhaskar Prad-
C han) for Mrs. M. Karanjawala, Ms. Sushma Suri, A.K. Srivastava and B.B.
Singh for the appearing parties.

The .Judgment of the Court was delivered by

MRS. SUJATA V. MANOHAR, J.

D Civil Appeal Nos. 4726-4741/98 (@ SLP(C)Nos.4162-4177/96)

Leave granted.

The appellants in these appeals have challenged the constitutional
validity of the Uttar Pradesh Sheera Niyantran Adhiniyam 1964 being
E U.P.Act 24 of 1964 which received the assent of the President on 17th
October, 1964. The occasion for this challenge appears to have arisen on
account of orders passed by the Controller of Molasses/Excise Commis-
sioner, U.P. under Section 8 of the said Act read with Rule 22, and dated
13th of August 1993, 22nd of October, 1993 and 1st of January, 1994.

F Under Section 8 of the said Act the Controller may by order require
the occupier of any sugar factory to sell and supply in the prescribed
manner such quantity of molasses to such person, as may be specified in
the order, and the occupier shall, notwithstanding any contract, comply
with the order. Under Section 10 the occupier of a sugar factory shall sell
G molasses in respect of which an order under Section 8 has been made at
a price not exceeding that prescribed in the Schedule. Under sub-section
(2) of Section 10 the State Government may, by notification in the Gazette,
amend the Schedule if such amendment is necessitated by reason of any
variation in the cost of storage of molasses or loading or shunting charges
of molasses in tank wagons or in order to bring the prices of molasses in
H conformity with the prices, if any, fixed by the Government of India.
SIEL LTD. v. U.0.1. [SUJATA V. MANO HAR, J.] 565

Under the said orders of the Controller dated 13.8.1993, 22.10.1993 A
and 1.1.1994, different percentages of graded molasses were reserved for
distilleries and industries based on molasses and alcohol, in the State of
U.P. The reserved quantity under the said orders was required to be sold
at prices fixed by the State Government under the notification issued under
sub-section (2) of Section 10 at the relevant time.
B
'
The appellants have challenged the constitutional validity of the U.P.
Sheera Niyantran Adhiniyam 1964 on the ground that the State Legislature
lacked competence to pass the Act. They have also challenged the restric-
tions imposed on the sale of molasses under the said Act and the said
orders made thereunder as unreasonable restrictions violative of Article 19 c
(l)(g) as also Article 301, being restrictions which affect in the State,
freedom of trade. All these writ petitions which were filed in 1993 have
been dismissed by the Allahabad High Court. Hence the present appeab
have been preferred before us.
D
The Industries (Development and Regulation) Act, 1951 was enacted
by Parliament and came into force on the 8th of May, 1952. Section 2 of
the Act declared t.hat it is expedient in the public interest that the Union
should take under its control the industries specified in the First Schedule.
Item 25 in the First Schedule was sugar industry. Thus control over the
sugar industry was taken over by the Union Government as being in public E
interest. By. an amendment of 1953, Section 18G was introduced in the
Industries (Development and Regulation) Act of 1961. Sub-section (1) of·
Section 18G is as follows:-

"Section 18G : Power to control supply, distribution, price etc. of F
certain articles-

(l)The Central Government, so far as it appears to it to be
necessary or expedient for securing the equitable distribution and
availability at fair prices of any article or class of articles relatable
to any scheduled industry may, notwithstanding anything contained G
in any other provision of this Act, by notified order, provide for
regulating the supply and distribution thereof and trade and com-
merce therein.

(2) .......... .. H
566 SUPREME COURT REPORTS (1998) SUPP.1 S.C.R.

A (3) ........... .

(4) ........... .

(5) ............."

B ·In 1961 the Central Government promulgated the Molasses Control
Order under Section 18G of the Industries (Development and Regulation)
Act, 1951 imposing restrictions on the sale of molasses and fixing the
maximum price of molasses. A similar Ethyl Alcohol price control order
was issued in 1971 relating to Ethyl Alcohol which is a product of molasses.
C Sub-clause (2) of Clause 1 of the Molasses Control Order, 1961 provided
that it shall come into force in a State on such date as the Central
Government may by notification in the official Gazette, appoint in this
behalf for such State, and different dates may be appointed for different
States. It is an accepted position that the Molasses Control Order, 1961
was never extended to the States of U .P. and Bihar.
D
In 1964, the U.P. Legislature enacted the U.P. Sheera Niyantran
Adhiniyam (Molasses Control Act), 1964 which is impugned in the present
appeals. It is the case of the responde'lts that although the Central Molas-
ses Control Order of 1961 was never extended to the State of U.P. the State
E Governm)!nt would notify the maximum price of molasses under Section
10 of the U.P. Act of 1964 in consonance with the maximum price
prescribed by the Central Government under the Molasses Control Order
of 1961. Identical notifications were issued by the Central Government and
the State Government relating to the price of molasses eve1 y year.

F On 10.6.1993 the Molasses Control Order, 1961 and the Ethyl Al-
cohol Price Control Order were rescinded by the Central Government by
two separate notifications of the same date. In the State of U.P. however,
the U.P. Sheera Niyantran Adhiniyam, 1964 continued to operate despite
the repeal of the Central Molasses Control Order, 1961. The State Govern-
ment thereafter issued three notifications of 13.8.1993, 22.10.1993 and
G 1.1.1994 under the U.P.Sheera Niyantran Adhiniyam, 1964. This gave rise
to the present litigation.

According to the appellants, by reason of the Industries (Develop-
ment and Regulation) Act, 1951 and Entry 25 in the First Schedule to the
H said Act, all legislation pertaining to sugar industry is within the exclusive
SIELLTD. v. U.O.I. [SUJATA V. MANOHAR,J.) 567

domain of the Union Government, being covered entirely by Entry 52 of A
List I. Therefore, the State of U.P. had no legislative competence to enact
the U.P. Sheera Niyantran Adhiniyam, 1964 or the orders thereunder. It is
this contention which requires to be examined.

In this connection, the Entries in the Seventh Schedule to the Con-
stitution of India which require consideration are the following: B
List I - Union List :

Ent1y 7 : Industries declared by Parliament by law to be necessary
for the purpose of defence or for the prosecution of war.
c
Ent1y 52 : Industries, the control of which by the Union is declared
by Parliament by law to be expedient in the public interest.

List II - State List:

Ent1y 24 : Industries subject to the provisions of entries 7 and 52 of D
List I.

E11t1y 26 : Trade and commerce within the State subject to the
provisions of Entry 33 of List III

Ent1y 27: Production, supply and distribution of goods subject to the E
provisions of Entry 33 of List III.

List Ill - ConcwTent List:

Entry 33 : Trade and commerce in, and the production, supply and F
distribution of:

(a) the products of any industry where the control of such industry
by the Union is declared by Parliament by law to be expedient in
the public interest, and imported goods of the same kind as such
products; G.

(b) ............

(c) ........... .

(d) ........... . H
568 SUPREME COURT REPORTS [1998] SUPP.1 S.C.R.

A (e) ........... .

Before construing these entries, it is necessary to bear in mind the
principle laid down in several decisions of this Court relating to the
interpretation of these entries. In the case of Calcutta Gas Company
(Prop1ietary) Ltd. v. State of West Bengal and Ors., AIR (1962) SC 1044 this
B Court has held that when some of the' entries in the different Lists or in
the same List may overlap or may appear to be in direct conflict with each
other, it is the duty of the Court to reconcile the entries and bring about
harmony between them. This Court observed, (at page 1050), "It may,
therefore, be taken as a well settled rule of construction that every attempt
C should be made to harmonize the apparently conflicting entries not only of
different Lists but also of the same List and to reject that construction
which will rob one of the entries of its entire content and make it nugatory".

While dealing with Entry 24 of List II and Entry 52 of List I, this
Court in the above case considered what was meant by the term "industry"
D which was used in both these entries. This Court held that in the first place,
whatever be the connotation of "industry'', it must bear the same meaning
in Entry 24 List of II as in Entry 52 of List I because the two entries are
interconnected, and giving different meaning to the word "industry" in the
two entries will snap their connection. This Court further observed that
E ordinarily "industry" was in the field of State Legislation; but, if Parliament
by law makes a relevant declaration or declarations, the industry or in-
dustries so declared would be taken off the State field and passed on to
Parliament.

This Court in that Ci!~e was concerned with interrelationship between
F Entry 52 List I, Entry 24 List II, and Entry 25 of List II. The last entry
expressly dealt with gas and gas works. This Court held that if Entry 24 of
List II is interpreted to include within the term "industry", gas and gas
works, Entry 25 of List II would be emptied of all its contents and would
become nugatory. Therefore, one should apply the principle of harmonious
G construction and hold that gas and gas works would be outside the term
"industry" under Entry 24 of List II. If this was so, then gas and gas works
could not, by appropriate declaration by Parliament, be made the subject
matter of Entry 52 of List I.

If we apply the same principle of harmonious construction to Entries
H 24, 26 and 27 of List II, the term "industry" in Entry 24 would not take
SIELLTD.v. u.o.r. [SUJATAV.MANOHAR,J.] 56')

within its ambit trade and commerce or production, supply and distribution A
of goods which are the express province of Entries 26 and 27 of List II.
Similarly, Entry 52 in List I which deals with industry also would not cover
trade and commerce in or production, supply and distribution of the
products of those industries which fall under Entry 52 of List I. For the
industries falling in Entry 52 of List I these subjects are carved out and
B
expressly put in Entry 33 of List III.

~ In the Calcutta Gas Company case (supra) the decision of this Court
in Ch. Tika Ramji & Ors. Etc. v. 171e State of Uttar Pradesh L& Ors., [1956]
SCR 393 was relied upon. In Ch. Tika Ramji's case (supra) this Court, inter
alia, considered the interrelationship between Entry 52 List I, Entry 24 List C
II, Entry 27 List II and Entry 33 of· List III as it stood prior to its
amendment, and as amended. This Court examined the contention that the
term "industry" should be widely construed to include all activities including
activities preceding production such as acquisition of raw material and
activities subsequent to production such as disposal of the finished D
products of that industry. Negativing this contention in the light of the
Legislative entries, this Court held that what would fall under Entry 24 of
List II would be the process of manufacture or production except where
the industry was a controlled industry when it would fall within entry 52 of
.~.... List I. The products of the industry would be comprised in Entry 27 List
II except where these were the products of a controlled industry, when they E
would fall within Entry 33 of List Ill. Therefore, the subject matter falling
within Entry 26 and Entry 27 of List II would not be covered by Entry 24
of List II; and similarly the subject matter falling under Entry 33 of List III
would not fall under Entry 52 of List I.
F
Another principle which has been evolved for determining the legis-
-o lative competence to enact any particular piece of legislation is the doctrine
of pith and substance. In the case of A.S. Krishna a11d Ors. v. State of
Madras, AIR (1957) SC 297 this Court observed that it was the essence of
a Federal Co),.lstitution that there should be distribution of legislative
powers between the Centre and the States. When the Constitution G
enumerates elaborately the topics on which the Centre and the States can
legislate, some overlapping over the fields of legislation is inevitable. There-
fore, to decide whether an impugned legislation is i11tra vires regard must
be had to its pith and substance. If a statute is found in substance to relate
to a topic within the competence of that Legislature it should be held to H
570 SUPREME COURT REPORTS [1998] SUPP. 1 S.C.R.

A be intra vires, even though it might incidentally trench on topics not within
its legislative competence. The extent of the encroachment may be an
element in determining whether the legislation is colourable, but where that
is not the position, the fact of encroachment does not affect the vires of
the law. To determine this one must have regard to the enactment as a
B whole, to its objects and to the scope and effect of its provisions.

In the light of these entries if one looks at Section 2 of the Industries
(Development and Regulation) Act, 1951, Section 2 clearly declares an
industry which is in the First Schedule as an industry falling under Entry
52 of List I. Section 18G, however, deals with control over supply, distribu-
C t!on, price etc. of certain articles or products of such industry . Section 18G
empowers the Central Government to provi.de by notification for regulating
the supply and distribution of a product of such industry and trade and
commerce therein. Section 18G is, therefore, an exercise of the powers of
legislation conferred by Entry 33 of List III. By its express language,
D Section 18G is clearly covered under Entry 33 of List III and is excluded
from Entry 52 List I. Any notification, therefore, issued under Section 18G
would be an exercise of a power conferred by Entry 33 of the Concurrent
List. Since the exercise of power under Section 18G falls under the Con-
current List in the Seventh Schedule of the Constitution and not under
Entry 52 of List I, the State Legislature is equally competent to legislate in
E respect of the same subject matter, subject to Article 254 of the Constitu-
tion.

Article 254 expressly deals with a situation where any provision of a
law made by the Legislature of a State is repugnant to any provision of law
F made by Parliament in respect of one of the matters in the Concurrent List.
Under Clause 2 of Article 254, where the law made by the Legislature of
a State with respect to one of the matters enumerated in the Concurrent
List contains any provision repugnant to the provisions of an earlier law
made by Parliament, or, an existing law with respect to that matter, then,
the law so made by the Legislature of such State shall, if it has been
G reserved for the consideration of the President and has bein given his
assent, prevail in the State subject to the proviso contained therein.

~.
The contention of the appellants, therefore, that by the enactment of
Section 18G the power of the State Government to legislate under Entry .
H 33 of List III is taken away, is untenable.
SIEL LTD. v. U.O.I. [SUJATA V. MANO HAR, J.] 571

The respondents have also rightly contended that the enactment of A
Section 18G by the amending Act does not create by itself any repugnancy
between the Parliamentary Legislation and the State Legislation, namely,
the U.P. Sheera Niyantran Adhiniyam of 1964. Although Molasses Control
Order of 1961 was issued by the Central Government under Section 18G
of the Industries (Development and Regulations) Act of 1951, the Molasses
Control Order was never brought into operation in the State of U.P. or the
B
State of Bihar. Therefore, the power of the State of U.P. under Entry 33
List III to legislate in relation to the trade and commerce ,in or supply and
distribution of molasses in that State was not taken away, in any event,
irrespective of Article 254 of the Constitution of India.
c
In this connection our attention was drawn to the observations of this
Court in Ch. Tika Ramji's case (supra). The Court in that case was
concerned with the legislative competence of the State Government to
legislate in respect of sugarcane in the light of Section 18G of the Industries
(Development and Regulation) Act, 1951. This Court observed (at page D
432) that even assuming that sugarcane was an article relatable to the sugar
industry within the meaning of Section 18G, no order had been issued by
the Central Government in exercise of the powers vested in it under that
Section. Hence no question of repugnancy would arise. Repugnancy must
exist in fact and not depend merely on a possibility. Ch. Tika Ramji's case
(supra) has been cited with approval in the more recent case of Indian E
Aluminium Company Ltd. and Anr. v. Kamataka Elect1icity Board and Ors.,
[1992] 3 SCC 580 where this Court again held that in the absence of any
notification under Section 18G of the Industries (Development and
Regulation) Act there was no question of any repubrnancy on the score of
tariff of electricity fixed by the State Amending Act. Section 18G per se did F
not take away the State's right also to legislate under Entry 33 of List III.
This Court also noted the provisions of Article 254 (2) of the Constitution
in this connection.

The appellants, however, relied upon certain observations in the case
of Synthetics and Chemicals Ltd. and Ors. v. State of U.P. and Ors., [1990] G
1 SCC 109, to contend that by the enactment of Section 18G the entire
field relating to sugar industry was an occupied field and the State could
not legislate in that connection. This argument has been negatived by the
Full Bench of Allahabad High Court in the present case by detailed and
cogent reasoning. The High Court has rightly observed that in the said case H
572 SUPREME COURT REPORTS [1998] SUPP. 1 S.C.R.

A this Court had no occasion to examine Entry 33 of List III in relation to
Entries 24, 26 and 27 of List II and Entry 52 of List I. A mere observation
that Union had evinced a clear intention to occupy the whole field was in
the context of exclusive privilege claimed by the State of U .P. In fact, in
the said case this observation was not in the context of any product of the
controlled industry; and hence these observations ·cannorbe considered as
B holding that Section 18G prevented ~he State from exercising its power of
legislation under Entry 33 List Ill. In fact, Ch. Tika Ramji's case (supra)
has been followed subsequently in a number of cases including Indian
Aluminium case (supra). It has also been followed in B. Viswanathiah and
Company and Ors. V. State of Kamataka and Ors., [1991) 3 sec 358 where
C this Court held that when the industry is a controlled industry and falls
under Entry 52 of List I legislation in regard to the products of that
industry would be permissible both by the Central and the State Legisla-
tures by virtue of Entry 33 of List III. This Court has relied upon Ch. Tika
Ramji's case (supra) and has cited with approval the following passage
D from Ch. Tika Ramji's case :

"Industry in the wide sense of the term would be capable of
comprising three different aspects: (1) raw materials which are an
integral part of the industrial process, (2) the process of manufac-
ture or production, and (3) the distribution of the products of the
E industry. The raw materials would be goods which would be
comprised in Entry 27 of List II. The process of manufacture or
production would be comprised in Entry 24 of List II except where
the industry was a controlled industry when it would fall within
Entry 52 of List I and the products of the industry would also be
comprised in Entry 27 of List II except where they were the
F
products of the controlled industries when they would fall within
Entry 33 List III.

In the case of (third) State of U.P. and Anr. v. Synthetics and C!wni-
cals Ltd. and Anr., (1991) 4 SCC 139 this Court explained certain observa-
G tions made in the earlier Synthetics and Chemicals case (supra). What is
however, relevant for our present purposes is to note that the case of Ch.
Tika Ramji (supra) has been relied upon by this Court and this Court has
reaffirmed that the power to control industry being vested in Parliament
(Entry 52 of List I) and the legislative power in respect of trade and
H commerce in the product of such industry being concurrently vested in the
SIELLTD. v. U.O.L [SUJATA V. MANOHAR,J.] 573

Union and the States (Entry 33 of List III) any exercise of control by the A
State by legislation under Entry 33 List III must be subject to and in
accordance with Articles 246 and 254 of the Constitution. However, it is
also necessary to note in this context the provisions of Article 254 (2) under
which a law made by the Legislature of a State with respect to one of the
matters enumerated in the Concurrent List if it contains any provision
B
repugnant to the provisions of an earlier law made by Parliament or an
existing law with respect to that matter, the law so made by the Legislature
of such State shall, if it has been reserved for the consideration of the
President and has received his assent!prevail in the State provided that the
Parliament is not prevented from enacting at any time any law with respect
to the same matter including a law adding to amending, varying or repeal- c
ing the law so made by the Legislature of a State.

The respondents have pointed out that the U.P. Sheera Niyantran
Adhiniyam, 1964 has also received President's assent under Article 254(2).
In any event, looking to the fact that the Molasses Control Order of 1961 D
passed by the Central Government in exercise of powers conferred by
Section lSG was not extended at any point of time to the State of U.P. or
the State of Bihar, the question of repugnancy between the Molasses
Control Order, 1961 and the U.P. Sheera Niyantran Adhiniyam, 1964 does
not arise. In fact, the present litigation has commenced after the Molasses
Control Order, 1961 of the Central Government has been rescinded and E
the only legislation which holds the field is the U.P.Sheera Niyantran
Adhiniyam of 1964 which is in legitimate exercis.e of power of legislation
under Entry 33 of List III.

Iii. the premises the U.P. Sheera Niyantran Adhiniyam of 1964 is F
within the legislative competence of the State Government.

It was also contended that the three notifications of 13.8.1993,
22.10.1993 and 1.1.1994 are unreasonable or they do not constitute a
reasonable restriction on the right to carry on any occupation, trade or
business under Article 19(1) (g). It is contended that there is also a violation G
of Article 301 of the Constitution. The State Government has submitted
that the provisions of the U .P. Sheera Niyantran Adhiniyam, 1964 and the
, State notifications have to be viewed in the context of development of
'sugar, alcohol and chemical industries in t!ie State of U.P. If looked at in
a historical perspective, there has been control over molasses in the State H
574 SUPREME COURT REPORTS [1998] SUPP. l S.C.R.

A of U .P. from the year 1947 and this was not challenged. The State Govern-
ment has tried the policy of partial decontrol by the notification of
13.8.1993 under which the State kept control only over 30% of the molasses
and the sugar industry owners were left free to sell 70% in the open market
subject to certain regulatory provisions. '(he impact of such partial
decontrol had been watched and judged. By another order of 31.12.1993,
B the ratio of controlled over uncontrolled molasses was substantially
changed. The percentages of permissible sales in the control zorie and in
the free market have had to be cll.anged depending upon the economic
impact of such decontrol.

C The respondents also submitted that molasses is an important raw
material for the distilleries which produce industrial alcohol - a raw
material for chemical industries in the State. To attract various industries
to that State, steps were taken from the beginning to facilitate availability
of industrial alcohol. A policy of control over molasses is framed bearing
D in mind the economic requirements of the State and , therefore, this policy
should not be now challenged.

Respondents have pointed out that industrial development of Uttar
Pradesh is largely based on this control over allocation and pricing of
molasses, and a sizeable revenue of the Government is dependent on the
E control. Even prior to 1964 the control over allocation and price fixation
of molasses in the State of U.P. was with the State Government. Even when
the Government of India issued the Molasses Control Order of 1961 it left
the control of molasses in Uttar Pradesh in the hands of the State Govern-
ment Neither the sugar industry nor any body else objected to this control
of the State over allocation and prices of molasses at any point of time till
F
the announcement of decontrol over molasses by the Government of India.

In order to keep a proper balance over distribution of molasses to
the industries which had come up over a pericd of time when decontrol
was announced by the Government of India, it was not possible for the
G State of Uttar Pradesh to announce a total decontrol. Nevertheless by the
first notification of 13.10.1993, 70% of molasses were freed from control.
However, it had an immediate adverse effect on the chemical and down
stream industries in U .P. As a result, the subsequent State notifications
were issued in October, 1993 and January, 1994 reducing substantially the
H percentage of molasses which were made free of control and increasing the
SIEL LID. v. U.O.L [SUJATA V. MANO HAR, J.] 575

percentage of controlled molasses. Simultaneously, the price of controlled A
molasses was also enhanced by the State Government. The State has
followed a fair economic policy. In fixing, from time to time, the percentage
of free and controlled molasses and the prices for controlled molasses, the
overall market position had also been borne in mind and the extent of
availability, and the price of imported petro feed stock and chemical
products had also to be borne in mind. In other words, the State has
B
submitted that price fixation of molasses and the percentage of free and
controlled molasses is essentially a matter of economic policy and the same
should not be the subject matter of challenge under Article 19(1)(g) of the
Constitution when the policy is fair and has been in force for a long time.
This submission has much force. This Court has held that in examining the C
reasonableness of an economic measure, the State should have more
latitude in formulating economic policy as well as appropriate legislation
in comparison to legislating relating to fundamental rights. (See in this
connection Delhi Science F01um & Ors. Etc. v. Union of India & Anr. Etc.,
JT (1996) 2 SC 295 and Dalmia Cement (Bharat) Ltd. & Anr. Etc. v. Union D
of India & Ors. Etc., JT (1996] 4 SC 555.)

It has also been pointed out by the respondents that in public interest
an industry, in the present case, the sugar industry, can be required to make
a supply to another industry of their product or by-product. Looking to all
the circumstances, the U.P. Sheera Niyantran Adhiniyam 1964 and the E
·" State notifications of 13.8.1993, 22.10.1993 and 1.1.1994 having been held
by the High Court as not violative of Article 19(1)(g) of the Constitution,
we are inclined to agree with the findings so arrived at by the High Court.
\
In the premises these appeals are dismissed with costs.
F
Civil Appeal Nos. 4742-43 of 1998 (Arising out of SLP (C)Nos.14670/95 and
16925/95)

Leave granted.

These two appeals pertain to the distribution and price control over G
molasse~ in the State of Bihar. In 1947 the Bihar State Legislature had
enacted Bihar Molasses (Control) Act, 1947 with the assent of the Gover-
nor General. Initially the Act was intended to remain in force only for one
year. But from time to time various Acts were passed by the State Legis-
lature extending the validity of the said Act. Even after coming into force H
576 SUPREME COURT REPORTS [1998] SUPP. 1 S.C.R.

A of the Industries (Development and Regulation) Act of 1951, and the
Molasses Control Order of 1961 issued by the Central Government, the
Bihar Molasses Control Act, 1947 continued to remain in force as the
Molasses Control Order of 1961 was not extended to the State of Bihar.

The Bihar State Legislature thereafter enacted the Bihar Amending
B Act' 1 of 1964 which was passed with the assent of the President, under
which the Bihar Molasses (Control) Act, 1947 was made permanent instead
of temporary.

After the repeal of the Molasses Control Order, 1961 by the Central
Government in June, 1993 the State Government of the State of Bihar
C issued an order in the exercise of powers under Section 7 of the Bihar
Molasses (Control) Act, 1947 on 9.6.1993 directing sugar industry to sell
molasses at a specified controlled rate to different distilleries. The Con-
troller of Molasses in the State of Bihar also gave a further clarification
that the Central Government had not rescinded the Bihar Molasses (Con-
D trol) Act, 1947 and the State authorities were free to regulate and control
molasses in exercise of power vested in the State under the State Act. In
the State of Bihar also, in September 1993, a system of partial decontrol
of molasses was introduced allowing sugar factories to sell the remaining
molasses at free market prices after fixing a certain percentage for molasses
E to be supplied at fixed controlled rates to the distilleries.
The challenge to these orders and the Bihar Molasses (Control) Act,
1947 are similar to the challenges in the appeals pertaining to the State of
U.P. For reasons which we have set out in our judgment in the appeals
pertaining to the State of U .P ., these appeals are also dismissed with costs.

R.C.K. Appeals dismissed.