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, f%71 ~ ^XK, WfftfflfiSM rtgl f ^ r r TIT H T.I r i rP r rT i^T n^r - r - . r ^ yTXT^rfiin" ^ T 2TTii i •-! J-JJ-I ^ T fV^r T I i r^ ry yrtrrT^^rr TST [iJl^rfTTra^^nTfr^f Cf T l l f i T J7TT SfT. t !•> , I - ^ - f l l l u f f ^ j - l n . r i i ^ t *IIIH«I | i http://fa-.ii 8 r^ &ffr ft i l • 2010 201) 2012 2013 1 2014 | 113554123700 THE GAZETTE OF INDIA: EXTRAORDINARY I I 779991375 40ZS57233 SS3373378 9S92SS170 7M6SW2S 1 23eeMSB8SS4\l1&SS13a?4 [ 6627076526-, ^544879733 33SS4323S13 I [PARIII—StiC.3 1 1 • MINISTRY OF HOME AFFAIRS ORDER New Delhi, the 12th June, 2015 S.O. 1641(E).—Whereas, the Ministry of Home Affairs, Government of India issued a Notificatic No.G.S.R.833 (E), dated the I5,h December,201 i published in the Gazette of India, Extraordinary, Part II, Section sub-section (i), the Central Government, in exercise of the powers conferred by section 6 of the Lotteries (Re^ulatio Act,199S read with Rule 5 of the Lotteries (Regulation) Rules,2010, prohibited the Government of Sikkim from sale, its lotteries within the territory of the State of Kerala, for a period of two years from the date of publication of the sa order;
2. And whereas, M/s Future Gaming Solutions, the distributor of Sikkim State Lotteries challenged the sai order of the Government of India in WP (C) No.7768 of 2012 before the Hon'ble Hi»h Court of Delhi dated tr 5 December,20!2.
3. And whereas, the Hon'ble High Court of Delhi vide its order dated I6"1 October, 2014 directed th Central Government in the Ministry of Home Affairs, inter-allia, to decide in a tin the petitioner;
ime bound manner the representation c And whereas, the Centra! Government, on the basis of detailed analysis of the case (appended herewith a Appendix 'A'), has considered it necessary to further extend the said prohibition on the State Government of Sikkta beyond the said period of two years.
Now, therefore, in exercise of the powers conferred by Section 6 of the Lotteries (Reaulation) Act 1991 (17 of 1998) read with Rule 5 of the Lotteries (Regulation) Rules,20IO, the Central Government hereby prohibits th:
Government of Silckim from saleofits lotteries within the territory of the State of Kerala, until further orders.
[t. No. v-! 7014-4.2010-CSR-I KUMAR ALOKJt.Secv PPEND1X LA;
CASE ANALYSIS The Ministry of Home Affairs, Government of India issued a Notification No.G.S R.883 (E) dated I 5.12.201 and ordered the following:-
(i) Lotteries of the Government of Sikkim shall not be sold within the territory of the Slate of Kerala for a period of 2 years from the date of publication of this Order in the Official Gazette;
(ii) After the above period is over, the Government of Sikkim shall apply with due compliance of rhe Lotteries (Regulation) Act,l998 and the Lotteries (Regulation) Rules,2010 for permission to start the lotteries business in the State of Kerala again, as per the rules and processes of the Government of Kerala upon whose satisfaction the lottery business of the Government ofSikkim may restart in the State of Kerala.
2. M/s Future Gaming Solutions, the distributor of Sikkim State Lotteries challenged the above Notification in 20II before the Sikkim High Court which declined territorial jurisdiction and had relegated the petitioner to the Hi<di Court of Delhi. The petitioner again filed the WP (C) No.7768 of 2012 at Hon'ble Hight Court of Delhi against the ban imposed by the Government of India on the State of Sikkim because he was losing the right to sale of Sikkim State Lotteries owing to this ban.
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3. The- Hon'ble High Court of Delhi on 16.10.2014 passed an Order in W.P. (C) No.7768/12 directing this Ministry that :
(i) The Petitioner will make the representation to the Ministry and the same may be decided by the respondent No. 1 (Ministry of Home Affairs, Central Government) in time bound manner.
(ii)The representation filed by the petitioner shall be decided within 10 weeks after the receipt of the same after giving an oDportunity of being heard of respondent No.2, the State of Kerala. The decision taksn"by the respondent No.I shall be communicated to the Petitioner and other parties concerned within one week thereafter.
(iii) If the petitioner or any respondent is still aggrieved with the decision taken by the respondent No. 1, they may challenge before appropriate forum.
4.. In compliance of the above order of the Delhi High Court, all the concerned parties i.e. (i) Government of Kerala,
(ii) Government of Sikkim and (iii) M/s Future Gaming Solutions were called for hearing by the Ministry of Home Affairs and were given the opportunity to present their case orally as well as in writing. The Government of Kerala was represented by Shri Rabindra Kumar Agarwal, Secretary Taxes and two others, M/s Future Gaming Solutions was represented by Shri J. Dhameeja, Propriter and Shri Rishi Kumar Agarwal, Advocate and his associate and̂ the GovernmentaFSikkim was represented by Shri N.D. Bhata, Joint Secretary, Sikkim State Lotteries and the Law Officer.
The hearings were held on 23.12.2014 for the Government of Kerala, M/s Future Gaming Solutions and on 7.1.2015 for -the Government of Sikkim respectively.
5. During the hearing, the representatives of :-
(a) Government of Kerala on 23.12.2014 brought to the notice of the Ministry that:
(i) Rule 12 of the Lotteries (Regulation) Act-1998. delegates power to the State to make rules to carry out provisions of the Lotteries (Regulation) Act, 199S.
(ii) M/s. Future Gaming Solutions is the distributor of Sikkim Government for sale of paper lotteries in the State of Kerala and it has no locus standi to file the case against the ban because the ban imposed by the Government of India was on the State Government of Sikkim and not on M/s Future Gaming Solutions.
(iii) As per the lottery rules it is mandatory thai the Lottery tickets should be printed in a secured press but in the case of the Sikkim Lottery, tickets, were not being primed in a secured press as mandated by the lotteries rules.
(fv) There were 32 cases in total registered by CBI, out or which closure report For 22 cases had been submitted by the CBI, though the State of Kerala has contested CBI's view. In 7 cases, charge-sheet has been filed by CBI and investigation is still going on in the remaining 3 cases.
(v) The lottery tickets of Sikkim State amounting to Rs. 16.3 lakhs were seized at Nedumbassery International Airport, Kochi even during the ban period.
(vi) It was also informed that the same distributor was conducting sale of Bhutan lotteries in the State of Kerala and these operations are also under CBI investisaticn and till the completion of investigations the sale of rickets of Bhutan latteries had also been banned in the State of Kerala. On similar lines, they requested the Ministry to continue the ban on the sale of Sikkim State Lotteries in the State of Kerala till the final orders are pronounced by the CBI Court in cases related to Sikkim Lottery in Kerala.
(b) M/s Future Gaming Solutions on 23.12.2014 submitted before the Ministry that:
(i) They had filed the case in 2011 at the Hon'ble High Court of Sikkim which declined territorial jurisdiction and had relegated them to the High Court of Delhi: In 2012,-they filed the case at Hon'ble High Court of Delhi because it was losin° the ri<mt to sale owing to the ban imposed by the Central Government on Sikkim Lotteries on 15.12.2011. They also submitted that the Lotteries (Regulation) Rules, 2010 became operational from lsl April, 2010 and there was no transition period provided to the States. At that time Sikkim lotteries were being printed at Mahalakshmi Offset Printers, Sivakasi, which although was earlier approved by RBI but at that time was in the process of renewal of the approval and therefore, the State was getting the lottery tickets primed at an unsecured press for a period of one month leading to the ban.
(ii) They also defended that the State of Sikkim was noi involved in any sale of lotteries in Kerala during the ban period.
(iii) The Advocate for M/s Future Gaming also informed the Ministry that as per the Supreme Court ruling, any State conducting its own lotteries cannot stop the sale of lotteries by other States in its jurisdictional area,
(iv) It was also brought to the notice of the Ministry thai the Charges levied by the Slate Government of Kerala on the other State Governments who prefer to sell their lotteries in Kerala arc very high which in the opinion of the Future Gaming Solutions was contrary to the spirit of the Lotteries Act and Rules of Central Government.
27bit <?£) l?-3, ; 1 0 THE GAZETTE OF INDIA: EXTRAORDINARY [PART ll-SEC. 3(ii)
(v) The representatives requested thai since the period of ban imposed on 15,12.2011 on sale of lotteries in Kerala wa< already over on I i 12,20 13 so it should be revoked and sale of Sikkim State lotteries be allowed in the State oi'Keraia.
(vi) They defended the allegation made by the Govovernment of Kerala that the lottery tickets of Sikkim State amounts to Rs. 16.8 lakhs were seized atNedumbassery International Airport, Kochi during the ban period.
(vi) They also informed that their present agreement with the Government of Sikkim is expiring on 3 1.1.2015.
(c) Sikkim State Lotteries on 7.1.2015 submitted before the Ministry that:
(i) Since the ban period of 2 years is over on 15.12.2013, it should be revoked.
(ii) The total sale proceeds consisting of minimum Assured Revenue given to the State Government bv the distributor as per agreement on the pro-rata basis, cost of paper, printing charges, Transportation charges of printed tickets given to the concerned distributor, unclaimed prizes received from the distributor as per their invoice are credited to the consolidated fund of the State of Sikkim.
(iii) As per Lottery Rules a particular scheme could be banned or be asked to change it if it is found not in accordance with the Rules, but in their case, the Ministry has totally banned their lotteries from being marketed in the State of Kerala, 3
(iv) Since the ban notification period has expired on 15.12.2013, they tried to take permission from the Govt of Kerala but it was not given. They also submitted that by not allowing the sale of Sikkim State lotteries in Kerala the only motive of Kerala Government was to monopolise its own lottery market in their State; and
(v) They have been efficiently and promptly organizing its lotteries since last 30 years in various other States without any problem.
5. During the course of hearing held on 7.1.2015, Government of Sikkim was requested to furnish the details of the-lottery business of Sikkim running in various States including Sikkim during the last five years ie?OIO-->014 and accordingly a proforrna was provided to Government of Sikkim by the Ministry.
6. The Directorate of Sikkim State Lotteries vide its letter dated 9.3 2015. placed at Annexure-I has submitted details or its Lottery business running in the States of Kerala, Maharashtra, Goa. Punjab and West-Ben°al includina Sikkim for the last five years i.e. 2010 to 2014. = On going through the data submitted, following anomalies are observed.
i) In case of lottery business of Sikkim State in Sikkim, the total number of tickets printed for the year 2011 is 199,00,000/- and the total face value (MRP) given is Rs.290,31,137/- whereas even if we take the face value of each ticket as Rs.2/-only for all tickets the total face value would have been Rs.390.00 000/- (199 00 000 X 2=390 00 000^ whereas it has been shown as Rs.290,31,137/- which shows that there is a difference of Rs.99 6s's63/- in~a single year t has also been informed (in the remarks column of the Statement) that the face value of tickets varied from Rs 2 to 100/-. Similarly, it ts evident from the data (shown in the statement) that the total number of tickets shown is I I S55 41 crore, and even if the face value of each ticket is taken as Rs.2/- then also the total face value of all tickets should have taStJSI fr0re P ' 2 X l l 8 5 5 - 4 = R s - 2 3 ' 7 ! ° - 8 0 C r 0 r e ] W h e r e a s t h e f a c e v a l u e s h o w n is Rs.23,860.16 crore -vi™,= u ° ' 'n ' Z r ''' , "'"" f' y Ch ~-^-'iC h a v e "e* i ; muc& higher depending upon the face values of tickets wove Rs.2/-From the as well as and the remarks of the Dte. of Sikkim State Lotteries [in Column No I I regarding ascertaining the total face value of the tickets] which states thai it cannot be ascertained because then ' different MRP's for different tickets varying from Rs.2 to 100/- it appears that proper records of lottery ticke different face values have not been maintained by the Government of Sikkim.
(it) Further perusal of the data furnished by the Government of Sikkim reveals the following:
(A) Number of tickets printed is 11,855.41 Crore.
(B) Number of ticket sold is 11,243.51 Crore.
(C) Number of tickets unsold or returned is 662.70 Crore.
Total tickets utilized (B) + (C) = 11906,21 Crore which is more than the total tickets printed.
It is evident that as per the statement of Sikkim Government, 50.81 crore number of tickets are in excess of the number of tickets printed mentioned in the statement, which shows that Sikkim Government is not keepin- croner records and there is no proper check maintained by the Sikkim Government on the functioning of the distributor" From observations indicated at (i) and (ii) above, it is inferred that the State has not maintained the proper records of its tickets as required under section/clause 3(16) & 4(5) of the Lotteries (Regulation) Rules 2010 The relevant section/clause of the Lotteries (Regulation) Rules, 2010 are siven be lowto re are is of % (, [W] [\-W^S 3 (ii)3 •qm T̂ ira1^ : •sraiwr -' 3(16): "The Organizing State shall keep records of the tickets printed, tickets issued Tor sale, tickets sold, tickets which remain unslold at the time of the draw, and the prize winning tickets along with the amount of prize or prizes in respect of each draw, in the manner prescribed by the Organizing State" and 4(5):"The distributors or-selling agents shall return the unsold tickets to the Organizing State with full accounts along with the challans of the money deposited in the Public Ledger Account or in the Consolidated Fund of the Organizing State through the sale of tickets".
(iii) Amount deposited in the Consolidated fund of Sikkim State (for all States, for five years, taken together) has been intimated as Rs.354.46 crore (and not the face value of sold tickets which should have been at least Rs. 224S7.02 crore) as per clause 3(17) and 4(4) of the Lotteries (Regulation) Rules, 2010 which states as under:- 3(17)' "The organizing State shall ensure that proceeds of the sale of lottery tickets, as received from the distributors or selling agents or any other source, are deposited in the' Public Ledger Account or in the Consolidated Fund of the Organizing State".
4(4) • "The Organizing State shall pay to the distributors or selling agents any commission due to them and the prize amounts disbursed by the distributors or selling agents to the winners, if any, out of the money so deposited Jn the Public Ledger Account or in the Consolidated fund of the Organizing State".
So it isrevident that Sikkim State Lotteries has not followed the Lotteries (Regulation) Rules, 2010.
(iv) The State of Sikkim could not inform about the amount retained by the Distributor. In view of" non-maintenance of this dataalongwith the total face value of tickets printed, total amount due for sold tickets and unsold/returned tickets' amount, it shows that the State has also not undergone proper annual financial & System audit as per clause 3 (19) of me Lotteries (Regulation) Rules, 2010 which states that:
3(19) r "Every Organizing State shall conduct an annuai financial and systems audit of the various lottery schemes organized by if including online lottery".
7 As the CBI also is investigating cases of Sikkim State Lotteries, this.M inistry called' for the comments ofCBl on the above matter. It is mentioned in their report that 32 cases related lo Sikkim Lottery were registered in different Police Stations in Kerala during 2010. These were referred to the CBIfor investigation by the Government of Kerala vide GO (MS) No 130/2011/Home/Trivandrum dated 1S.6.2011 i.e. Notification U/s 6 of the DSPE Act, 1946.
Subsequently the Central Government also issued Notification U/s of the DSPE Act, 1946 on 14.07.2011 for the investigation of the said cases by the CBI. Investigation has revealed that M/s Future Gaming Solutions (India) Pvt. Ltd.
(FGSIPL), Coimbatore during the period from 18,10.2009 to 17.10.2010 has remitted an amount of Rs. 96.06 crore (Rs Ninety six crores and six lakhs only) against the total sale proceeds out of sale of lotteries of Rs. 3751.21 crores (Rs.Three thousand seven hundred fifty one crore and twenty one lakhs only) . As per the provisions of Lottery (Regulation) Rules 2010 M/s FGSIPL should have deposited the entire sale proceeds to the Treasury of Government of Sikkim and then claimed reimbursement from Sikkim Government. Further, the Sikkim Government did not ensure that the proceeds of the sale of lottery tickets were credited into the consolidated fund. M/s FGSIPL had thus not paid
97.44% of the sale proceeds to the Government of Sikkim. It is pertinent to mention here that during investigation of the l 0 t t s p / c a s s 3 tfo consent of the Government of Sikkim Uh 6 of DSPE Act. 19-16 was sought. However, the Government of Sikkim had declined to give consent U/s 6 of the DSPE Act, 1946. Hence, investigation w.r.i. violations/irregularities could not be conducted on the part of the officials of Sikkim Government. The CBI has filed charge-sheet in seven cases closure report for 22 cases which is being contested by the Government of Kerala and investigation is still going on in the remaining 3 cases. In view of the reasons mentioned above, the CBI requested that the ban imposed on the sale of tickets of the Sikkim State Lotteries in Kerala may be extended further.
8 In view of the analysis of the statement given by the Sikkim State Lotteries vide its letter dt. 9.3.2015, submissrons nTade by'the Government of Kerala and the CBI, the Central Government is of the view that Government of Sikkim has not followed the provisions of the Lotteries (Regulation) Aci.1998 and the Lotteries (Regulation) Rules,2010 in full letter and spirit. Therefore, in exercise of the powers conferred by Section 6 of the Lotteries (Regulation) Act,!998 read with Rule 5 of the Lotteries (Regulation) Rules.2010. the Central Government hereby passes the following order: - "The ban imposed by the Government of India, Ministry of Home Affairs vide GSR-S83 dated 15 12 2011, on the sale of Government of Sikkim lotteries in the State of Kerala, shall continue til! further orders, Based on the outcome of the CBI inquiry in all cases related to conduct of illegal sale of Sikk.m lotteries in Kerala and verdict by the trial court, the Sikkim Government may submit its proposal for revoking of ban on the sale of Sikkim State Lotteries in the State of Kerala to the Central Government".
12 THE GAZETTE OF INDIA : EXTRAORDINARY FPARIII—Six, 3fii)] Pro SI.
i 2 3 4 5 5 7 forma for furnishing the details ofthe Lottery business of State of Sik Sla le fS ikk im, K grata, Maharasht ra etc.
SIKKfM K E R A L A M A H A R A S H T R A GOA PUNJAB WEST B E N G A L Amount deposiied.
in (he consolidated iund of Sikkim Year IOI0 10 !1 1012 70 L3 20 W 10 10 201 1 2012 201] 2014" 2010 2 0 1 !
2012 2013 2014 2010 201 I 1012 201J 2014 2010 2011 2012 2013 29 M 2010 2011 7012 2013 2014 2010 2011 2012 2013 201-4 Tota l ."So. of t i c k e t p r i m e d .
ISaQOOOO J03200CCQ 127-HOCflO 14000000 564540000 5341ssocoo 5342550000 3350CCO 225OCO00 8)300600 9"!44CD0D J23T9OOO0 - S624N55CO ]923rj!392QO 25532200000 J32 1̂ 5 5-OOOD 24J25250CCO 11303 1334700 [13554123700 To*al Face values (MR?)
'993 1131 -12 0-7.7 424 J 3J24SSI20> 56597629 347831129 2273314&I29 22733340129 nsnm J3SW35W 4S923TO2 fentMKSI 104(3716453 .
• 496393146:
219369961ca 36204365530 595533 U 9 J J S-320616030 11397?73l l73 2j360if i6S834 M t D f l f c k e u Mid".
iwcoaoo ;iD32£ffoffi» 2274JGO0D uooccoo 564540000 270?OSJ67fj 2705033 1433395 225OO0CO 4133600 • 745S.5IJ5H 1UZ7505-S5 - 3032577123 |7903|SG73o 2>5322cCOCO MZlfeSBBIM
243252.S0000 IDj9U«7fi3S.?9 1124 j . i 133074 kim running in various Sia unsold/ : returned tickets J&J746G3M • 1637466220 B 4 & W 5 1316400 !hfi>f. lH0 110394$$ - .
.
2;91563377 1377001464 .
396357034t 6627U766Z6 Amount dcncsiled in ihc CansoEidaled fund of S iUt im 7 7 W I S 7 u -i02S<J:25.7 fin;373.i78 Wi f l i *6 i70 728oM02u .3544679733 us dur ing the 1 Money , disbursed in pr i ies 2?MMj>b 1 i [.K^SKI'J , i : 5972769 5(1] 12560 SO5II0SS4 33483*45924 - 21403S4J924 I 146! 1 !4 - 323299540 M I 9 W S 5 ftiftfiS4vJ22 • • - 4949276ql3 27 5 3 3,3979 > 3 .i?f-772ii9:.i(, 5X72.122 L 221 S47 |70u l34 [ 111655716349 23?a54J235l3 •SI five years i.e. 2010-2014 j-r iainetl by Distr ibutor, O n n o l be ' ascertained ('annul be C'anniH he fasvinaJ [ltd C'.iriiiiH fce ascertained CJH/KH be" ueertsuied C'amtpl he ascertained rnni .u i Ot:
iisccrtaieftiJ C'aiUlBl be Bacertaiiwd Tannol be ascenained Cannot be ascertained Cannul he u c c n w n t d Cannoi b-e 332 ruined Cannui be ascen ained Cannot be ascertained t iinnoi hiaseunafned ascertained C'annci he ascertained Cannot be ascertained Ctmm be nsoertamud CaHnui be .isu inamed Caflooiije ascertained Cannot be ascertained CSflfltlthC aaEWisiiwad i';inmn tw ascenmned Cannot ire ascertained ascend inee Cannulas CinnmW fouri be ascertained Remarks 1 With rsaaxd LQ Column [5), i i ts to mention here lJiat ihe re are difterent MRP'S lur djITcreiu tickets varying i rom Rs"2* io Rs KiO fur " Baritlus-* dill'LTem jcficmss u f wecfclv and bumper latteries I i is, iherefore.
EfiR'cuJi io ascertain Ihc total lace value d*ikfcetS oin ihc basis o f MRP i r d "derive a! one single 2 [ i j Id rciABrcJ la Culumn iS)'(it 'Si.Nu 7. j i i s t u i U i t t lha( i lu rtVc:niii: ta f l l^ led irtnn iciiJividiial slates has h^L'fi Jeposiieti in ihe curisaiidaied fLind oT ihe Slate However, [he icial collcciion rrurn differed!
states has been ciubbed lagether and deposiletf in lh£ cunsdid i led nind •:•:"
the Sikkim l i i ) Ii is tunh i r ID add thai •,hc jmcjijni sodepojited in ihc iaid torsoI idsi^J fund rntiLdcs (a J T^ablt: Pr ix i Monty indduina Ccniral Tax Araouftl tb) Printing, Pijicr and Transpartaiian L-hanjcs [c) Min imum Assured Revsnue la this Siaie Govt, as per ihe * t i l she amount shuwrt in Column <{>) inclLdeS ihc amounts of i it i ih laxa&e dnii N"un-la.\a;bie prices li i) TJIL1 amauiil on Column (3) includes ihe payntents made far various eJH^gea as indicated In r«ma(';s 2 ab^ve juin alio includes ihc payments remitlUd for [jxaijle p f ' ie Imoun i ; to be disbursed hi |Jie CJovcrnment to 1he Prize winners.claimants Printed by the Manager. Government of India Press. Ring R.oad. Mayapuri. New_Dethi-l 10064 and Published by the Controller of Publications/Delhi- II0054. ~ http://rnni.ui