THE SEC.TO GOVT. PUBLIC (L.&O.)D.S. & ANR Vs. NABILA & ANR : Supreme Court - Section 3 (1)(a) of the National Security Act 1980
Supreme Court of India
CRIMINAL APPEAL NO. 2545_OF 2014 Judgment Date: Dec 09, 2014
REPORTABLE
IN THE SUPREME COURT OF INDIA
CRIMINAL APPELLATE JURISDICTION
CRIMINAL APPEAL NO. 2545_OF 2014
(Arising out of SLP (Criminal) No.4199 of 2013)
The Secretary to Government,
Public (Law and Order-F) and another .....Appellants
Versus
Nabila and another .....Respondents
J U D G M E N T
M.Y. EQBAL, J.
Leave granted.
2. By way of present appeal by special leave, Secretary to the
Government of Tamil Nadu, Public (Law and Order-F) Department, Chennai has
assailed the Order dated 26.4.2013 passed by the Division Bench of the
Madras High Court at Madurai Bench by which order of detention passed by
the appellant under Section 3 (1)(a)of the National Security Act 1980 has
been quashed.
3. The respondent-writ petitioner, being the wife of the detenu, by way
of Habeas Corpus Petition before the High Court, challenged the detention
order mainly on the ground that the detenu was detained on the solitary
ground case and the sponsoring authority has failed to place any material
before the detaining authority to show that either the detenu himself or
his relatives have taken any step to file bail application in a solitary
ground case. The High Court held that the satisfaction arrived at by the
detaining authority that there is real or imminent possibility of the
detenu being enlarged on bail is vitiated in law.
4. Assailing the impugned order, Mr. L. Nageshwara Rao, learned senior
counsel appearing for the appellants, submitted that the detention of the
detenu on the solitary ground case cannot be held to be erroneous and even
on solitary ground the detenu can be detained in custody if sufficient
materials on record are available to the satisfaction of the authority
concerned. Learned counsel relied upon the decision of this Court in Shiv
Ratan Makim vs. Union of India, (1986) 1 SCC 404, and Union of India & Anr.
vs. Chhaya Ghosal & Anr., (2004) 10 SCC 97.
5. Mr. Rao then submitted that the High Court has not appreciated the
law in holding that the subjective satisfaction arrived at by the detaining
authority that there is a real or imminent possibility of the detenu being
enlarged on bail and if he is released on bail, he would indulge in such
activities which would be prejudicial to the security of the State. In
this connection, learned senior counsel relied upon Constitution Bench
judgment of this Court in the case of Haradhan Saha vs. State of West
Bengal and others, (1975) 3 SCC 198, Ahmad Nssar vs. State of Tamil Nadu &
Ors., (1999) 8 SCC 473 and Baby Devassy Chully vs. Union of India & Ors.,
(2013) 4 SCC 531.
6. Mr. Rao, learned senior counsel, lastly submitted that by reason of
the detention order dated 5.12.2012 the detenu remained in jail till the
order passed by the High Court dated 26.4.2013. On the question as to
whether the detenu is required to undergo remaining period of detention,
learned counsel fairly submitted that the matter is to be sent to the
detaining authority to decide the same in accordance with law. In this
regard, learned counsel relied upon the decision of this Court in the case
of Sunil Fulchand Shah vs. Union of India & Ors., (2000) 3 SCC 409 and
Chanddrakant Baddi vs. ADM & Police Commissioner & Ors., (2008) 17 SCC
290.
7. Mr. S. Gowthaman, learned counsel appearing for respondent no.1, at
the very outset submitted that no bail application was filed on the date of
passing of detention order although the respondent was confined in jail
since 16.9.2012 and hence the detaining authority ought to have been
satisfied while passing the order of detention that the detenu was likely
to be released on bail. In this regard, learned counsel relied upon the
decision of this Court in Pebam Ningol Mikoi Devi vs. State of Manipur and
others, (2010) 9 SCC 618. Learned counsel also relied upon T.V. Sravanan
alias A.R. Prasana Venkatachaariar Chaturvedi vs. State through Secretary
and another, (2006) 2 SCC 664.
8. On the question of detention on solitary ground, learned counsel
submitted that no criminal prosecution against the detenu is pending in any
court of law except the instant case where the detenu was detained without
any subjective satisfaction. There is no material against the detenu for
the purpose of passing order of detention. In this connection, learned
counsel relied upon the case of Ayub alias Pappukhan Nawabkhan Pathan vs.
S.N. Sinha and another, (1990) 4 SCC 552.
9. Learned counsel, on the question of undergoing remaining period of
detention when the period of detention has expired, relied upon Fulchand
Shah vs. Union of India and Others (supra). Mr. Gowthaman lastly
contended that very stringent conditions have been imposed while allowing
the bail petition, as a result he has not gone to his hometown and is
always available in Trichy. In that view of the matter there is no need
for the detenu to undergo the remaining period of detention.
10. We have heard the learned counsel appearing for the parties and
perused the orders passed by the Detaining Authority and the High Court.
11. The Habeas Corpus Writ Petition under Article 226 of the Constitution
of India was filed by the respondent No.1, the wife of the detenu. The
order of detention was primarily based on the information received by the
Sub-Inspector of Police Q. Branch, CID, Trichy, who went to TVS toll gate,
Trichy along with his force and detenu was arrested and confessional
statement was recorded which lead to seizure of incriminating articles
containing official secrets relating to Indian Defence Forces and other
articles. The Inspector of Police 'Q' Branch CID, Karur received those
incriminating and other articles along with the special report and
registered a case in Crime No.1 of 2012 under Sections 3,4, and 9 of
Official Secrets Act, 1923 read with Section 120(B) IPC. Later on the
detenu was produced before the Court of Judicial Magistrate No.2, Trichy
and was remanded to judicial custody and his remand was periodically
extended. The Detaining Authority being satisfied with the material placed
by the Sponsoring Authority that the activities of the detenu are
prejudicial to the security of the State, passed the order of detention on
5.12.2012.
12. As noticed above, the order of detention in the Habeas Corpus
Petition was challenged before the High Court mainly on the ground that the
detenu is involved in a solitary case and has not filed any application for
bail. But the order of detention was passed without recording any
subjective satisfaction as to the real imminent possibility of the detenu
being enlarged on bail as would indulge in such activities which have
prejudicial to the security of the State. The High court while allowing
the habeas corpus petition and quashing the order of detention observed as
under:-
"A perusal of paragraph No.11 of the grounds of detention would disclose
that the detenu is in remand in connection with the solitary grounds case
and admittedly he has not filed any bail application. The sponsoring
authority has failed to place any material before the detaining authority
to show that either the detenu himself or his relatives are taking steps to
file application for bail in the solitary ground case and in the absence of
such vital and cogent materials, the subjective satisfaction arrived at by
the detaining authority that there is a real or imminent possibility of the
detenu being enlarged on bail and if he is released on bail, he would
indulge in such activities which would be prejudicial to the security of
the state, is vitiated and therefore on this sole ground the impugned order
of detention is liable to be quashed."
13. Indisputably, the object of law of preventive detention is not
punitive, but only preventive. In case of preventive detention no offence
is to be proved nor is any charge formulated. The justification of such
detention is suspicion and reasonability and there is no criminal
conviction which can only be warranted by legal evidence. However, the
detaining authority must keep in mind while passing the order of detention
the civil and constitutional right granted to every citizen by Article 21
of the Constitution of India inasmuch as no person shall be deprived of
life and liberty except in accordance with the procedure established by
law. The laws of Preventive Detention are to be strictly construed and the
procedure provided must be meticulously complied with.
14. In the instant case, as noticed above, the High Court quashed the
order of detention mainly on the ground that the detenu was in remand in
connection with the solitary ground case when there was no material before
the detaining authority to show that either the detenu himself or his
relatives are taking steps to file application for bail in the solitary
ground case. In our opinion, the view taken by the High Court while
passing the impugned order cannot be sustained in law. This point was
considered by this Court in the case of Union of India & Anr. vs. Chhaya
Ghosal & Anr., (2004) 10 SCC 97, and observed:-
"23. So far as the finding of the High Court that there was only one
incident is really a conclusion based on erroneous premises. It is not the
number of acts which determine the question as to whether detention is
warranted. It is the impact of the act, the factual position as highlighted
goes to show that the financial consequences were enormous and ran into
crores of rupees, as alleged by the detaining authority. The High Court
seems to have been swayed away that there was only one incident and none
after release on bail. The approach was not certainly correct and the
judgment on that score also is vulnerable. At the cost of repetition it may
be said that it is not the number of acts which is material, it is the
impact and effect of the act which is determinative. The High Court's
conclusions in this regard are therefore not sustainable."
15. In Shiv Ratan Makim's case (supra), the same question arose where on
the basis of information received the customs officer intercepted one auto-
rickshaw and on search two foreign mark gold in the shape of round tablets
were recovered from the possession of the husband of respondent no.1. He
was immediately arrested and was detained by the order passed by the
government under Section 3 of the COFEPOSA Act. The said order was
assailed on the ground that the detention order was passed on the solitary
incident which cannot be sustained in law. This Court, while rejecting the
said view, held:-
"3. Though several grounds were taken in the writ petition only three were
seriously pressed by the learned counsel appearing on behalf of the
petitioner. The first ground was that the order of detention was based on
the solitary incident in which two pieces of foreign marked gold were
recovered from the pocket of the trousers of the petitioner on November 20,
1984 and apart from this incident there were no other incidents showing
that he was habitually smuggling gold. The second ground was that
considerable time had elapsed between the date when he was found to be
carrying two pieces of foreign marked gold and the date of the order of
detention and this long lapse of time showed that the order of detention
was vitiated by mala fides. And the last ground was that the order of
detention was made with a view to circumventing or bypassing the criminal
prosecution instituted against the petitioner and the detaining authority
had not applied its mind to the vital aspect that the power of detention
cannot be used to subvert, supplant or substitute the punitive law. We do
not think any of these three grounds can be sustained.
4. So far the first ground is concerned, it is obvious that having regard
to the nature of the activity of smuggling, an inference could legitimately
be drawn even from a single incident of smuggling that the petitioner was
indulging in smuggling of gold. Moreover, the written statement given by
the petitioner clearly indicated that the petitioner was engaged in the
business of purchase and sale of foreign marked gold and that this incident
in which he was caught was not a solitary incident. The facts stated by the
petitioner in his written statement could legitimately give rise to the
inference that the petitioner was a member of a smuggling syndicate and
merely because only one incident of smuggling by the petitioner came to
light, it did not mean that this was the first and only occasion on which
the petitioner tried to smuggle gold. There can be no doubt that having
regard to the nature of the activity and the circumstances in which the
petitioner was caught smuggling gold and the facts set out by him in his
written statement, the second respondent was justified in reaching the
satisfaction that the petitioner was engaged smuggling gold and that with
[pic]a view to preventing him from smuggling gold, it was necessary to
detain him.
16. Mr. Gowthaman, learned counsel appearing for the respondent
vehemently argued that on the date of passing the detention order no bail
was sought for by the detenu hence the detaining authority while passing
the impugned order must be satisfied that the detenu was likely to be
released on bail. Learned counsel submitted that there is no material or
evidence in this regard. In our view, the detention order cannot be set
aside merely on this ground. The Constitution Bench of this Court in
Haradhan Saha vs. State of West Bengal & Others, (1975) 3 SCC 198, while
considering the constitutional validity of maintenance of Internal Security
Act 1971, as being ultra vires and violates Article 19 and 21 of the
Constitution of India, observed:-
"32. The power of preventive detention is qualitatively different from
punitive detention. The power of preventive detention is a precautionary
power exercised in reasonable anticipation. It may or may not relate to an
offence. It is not a parallel proceeding. It does not overlap with
prosecution even if it relies on certain facts for which prosecution may be
launched or may have been launched. An order of preventive detention may
be, made before or during prosecution. An order of preventive detention may
be made with or without prosecution and in anticipation or after discharge
or even acquittal. The pendency of prosecution is no [pic]bar to an order
of preventive detention. An order of preventive detention is also not a bar
to prosecution.
33. Article 14 is inapplicable because preventive detention and prosecution
are not synonymous. The purposes are different. The authorities are
different. The nature of proceedings is different. In a prosecution an
accused is sought to be punished for a past act. In preventive detention,
the past act is merely the material for inference about the future course
of probable conduct on the part of the detenu.
34. The recent decisions of this Court on this subject are many. The
decisions in Borjahan Gorey v. State of W.B., Ashim Kumar Ray v. State of
W.B.; Abdul Aziz v. District Magistrate, Burdwan and Debu Mahato v. State
of W.B. correctly lay down the principles to be followed as to whether a
detention order is valid or not. The decision in Biram Chand v. State of
U.P., (1974) 4 SCC 573, which is a Division Bench decision of two learned
Judges is contrary to the other Bench decisions consisting in each case of
three learned Judges. The principles which can be broadly stated are these.
First, merely because a detenu is liable to be tried in a criminal court
for the commission of a criminal offence or to be proceeded against for
preventing him from committing offences dealt with in Chapter VIII of the
Code of Criminal Procedure would not by itself debar the Government from
taking action for his detention under the Act. Second, the fact that the
Police arrests a person and later on enlarges him on bail and initiates
steps to prosecute him under the Code of Criminal Procedure and even lodges
a first information report may be no bar against the District Magistrate
issuing an order under the preventive detention. Third, where the concerned
person is actually in jail custody at the time when an order of detention
is passed against him and is not likely to be released for a fair length of
time, it may be possible to contend that there could be no satisfaction on
the part of the detaining authority as to the likelihood of such a person
indulging in activities which would jeopardise the security of the State or
the public order. Fourth, the mere circumstance that a detention order is
passed during the pendency of the prosecution will not violate the order.
Fifth, the order of detention is a precautionary measure. It is based on a
reasonable prognosis of the future behaviour of a person based on his past
conduct in the light of the surrounding circumstances."
17. The submission of Mr. Gowthaman that in absence of any satisfaction
having been recorded by the authority while passing the impugned order of
detention that detenu was likely to be released on bail cannot be accepted.
The detaining authority has arrived at the conclusion that there is a real
and imminent possibility of the detenu being enlarged on bail cannot be
said to be erroneous. This point was considered by this Court in the case
of Ahamed Nassar vs. State of Tamil Nadu, (1999) 8 SCC 473, held as under:-
"46. So before the detaining authority, there existed not only the order
dated 12-4-1999 rejecting his bail application but the contents of the bail
application dated 1-4-1999. The averments made therein are relevant
material on which subjective satisfaction could legitimately be drawn
either way. Thus in spite of rejection of the bail application by a court,
it is open to the detaining authority to come to his own satisfaction based
on the contents of the bail application keeping in mind the circumstances
that there is likelihood of the detenu being released on bail. Merely
because no bail application was then pending is no premise to hold that
there was no likelihood of his being released on bail. The words "likely to
be released" connote chances of being bailed out, in case there be pending
bail application or in case if it is moved in future is decided. The word
"likely" shows it can be either way. So without taking any such risk if on
the facts and circumstances of each case, the type of crime to be dealt
with under the criminal law, including contents [pic]of the bail
application, each separately or all this compositely, all would constitute
to be relevant material for arriving at any conclusion. As the contents of
bail application would vary from one case to the other, coupled with the
different set of circumstances in each case, it may be legitimately
possible in a given case for a detaining authority to draw an inference
that there is likelihood of the detenu released on bail. The detention
order records:
"The Administrator of the National Capital Territory of Delhi is aware that
you are in judicial custody and had not moved any bail application in the
court(s) after 9-6-1992 but nothing prevents you from moving bail
applications and possibility of your release on bail cannot be ruled out in
the near future. Keeping in view your modus operandi to smuggle gold into
India and frequent visits to India, the Administrator of the National
Capital Territory of Delhi is satisfied that unless prevented you will
continue to engage yourself in prejudicial activities once you are
released."
18. Having regard to the law discussed hereinabove, the impugned order
passed by the High Court quashing the order of detention on solitary ground
case is erroneous in law.
19. Admittedly, the detenu was confined in jail since 16.9.2012. The
detention order was passed on 5.12.2012, after about three months from the
date of arrest, and the said order of detention was finally quashed by the
High Court by passing the impugned order on 26.4.2013. The question,
therefore, that needs to be considered is as to whether if the impugned
order passed by the High Court is quashed, can the detenu be then asked to
undergo the remaining period of detention. In this regard Mr. Rao relied
upon the Constitution Bench judgment of this Court in Sunil Fulchand Shah
vs. Union of India and Others, (2000) 3 SCC 409, and fairly submitted that
it is for the detaining authority to consider the matter afresh. Relevant
paragraphs from the judgment in Fulchand Shah's case are worth to be quoted
hereinbelow:-
"32. The quashing of an order of detention by the High Court brings to an
end such an order and if an appeal is allowed against the order of the High
Court, the question whether or not the detenu should be made to surrender
to undergo the remaining period of detention, would depend upon a variety
of factors and in particular on the question of lapse of time between the
date of detention, the order of the High Court, and the order of this
Court, setting aside the order of the High Court. A detenu need not be sent
back to undergo the remaining period of detention, after a long lapse of
time, when even the maximum prescribed period intended in the order of
detention has expired, unless there still exists a proximate temporal nexus
between the period of detention prescribed when the detenu was required to
be detained and the date when the detenu is required to be detained
pursuant to the appellate order and the State is able to satisfy the court
about the desirability of "further" or "continued" detention. Where,
however, a long time has not lapsed or the period of detention initially
fixed in the order of detention has also not expired, the detenu may be
sent back to undergo the balance period of detention. It is open to the
appellate court, considering the facts and circumstances of each case, to
decide whether the period during which the detenu was free on the basis of
an erroneous order should be excluded while computing the total period of
detention as indicated in the order of detention, though normally the
period during which the detenu was free on the basis of such an erroneous
order may not be given as a "set-off" against the total [pic]period of
detention. The actual period of incarceration cannot, however, be permitted
to exceed the maximum period of detention, as fixed in the order, as per
the prescription of the statute.
33. The summary of my conclusions by way of answer to the questions posed
in the earlier portion of this order are:
1. Personal liberty is one of the most cherished freedoms, perhaps more
important than the other freedoms guaranteed under the Constitution. It was
for this reason that the Founding Fathers enacted the safeguards in Article
22 in the Constitution so as to limit the power of the State to detain a
person without trial, which may otherwise pass the test of Article 21, by
humanising the harsh authority over individual liberty. In a democracy
governed by the rule of law, the drastic power to detain a person without
trial for security of the State and/or maintenance of public order, must be
strictly construed. However, where individual liberty comes into conflict
with an interest of the security of the State or public order, then the
liberty of the individual must give way to the larger interest of the
nation.
.........
..........
5. That parole does not interrupt the period of detention and, thus, that
period needs to be counted towards the total period of detention unless the
terms for grant of parole, rules or instructions, prescribe otherwise.
6. The quashing of an order of detention by the High Court brings to an end
such an order and if an appeal is allowed against the order of the High
Court, the question whether or not the detenu should be made to surrender
to undergo the remaining period of detention, would depend upon a variety
of factors and in particular on the question of lapse of time between the
date of detention, the order of the High Court, and the order of this
Court, setting aside the order of the High Court.
A detenu need not be sent back to undergo the remaining period of
detention, after a long lapse of time, when even the maximum prescribed
period intended in the order of detention has expired, unless there still
exists a proximate temporal nexus between the period of detention indicated
in the order by which the detenu was required to be detained and the date
when the detenu is required to be detained pursuant to the appellate order
and the State is able to satisfy the court about the desirability of
"further" or "continued" detention.
7. That where, however, a long time has not lapsed or the period of
detention initially fixed in the order of detention has not expired, the
detenu may be sent back to undergo the balance period of detention. It is
open to the appellate court, considering the facts and circumstances of
each case, to decide whether the period during which the detenu was free on
the basis of an erroneous order should be excluded while computing the
total period of detention as indicated in the order of detention though
normally the period during which the detenu was free on the basis of such
an erroneous order may not be given as a "set-off" against the total period
of detention. The actual period of incarceration cannot, however, be
permitted to exceed the maximum period of detention, as fixed in the order,
as per the prescription of the statute."
20. Fulchand Shah's case was also considered in the case of Chandrakant
Baddi vs. Additional District Magistrate & Police Commissioner and Others,
(2008) 17 SCC 290, paragraph nos.5 & 6 of which are reproduced hereunder:-
"5. This judgment (in Sunil Fulchand Shah v. Union of India) was followed
in Alagar case, (2006) 7 SCC 540, and in para 9 it was observed that: (SCC
p. 542)
"9. The residual question is whether it would be appropriate to direct the
respondent to surrender for serving remaining period of detention in view
of passage of time. As was noticed in Sunil Fulchand Shah v. Union of
India, (2000) 3 SCC 409, and State of T.N. v. Kethiyan Perumal, (2004) 8
SCC 780, it is for the appropriate State to consider whether the impact of
the acts, which led to the order of detention still survives and whether it
would be desirable to send back the detenu for serving remainder period of
detention. Necessary order in this regard shall be passed within two months
by the appellant State. Passage of time in all cases cannot be a ground not
to send the detenu to serve remainder of the period of detention. It all
depends on the facts of the act and the continuance or otherwise of the
effect of the objectionable acts. The State shall consider whether there
still exists a proximate temporal nexus between the period of detention
indicated in the order by which the detenu was required to be detained and
the date when the detenu is required to be detained pursuant to the present
order."
[pic]6. A reading of the above quoted paragraphs would reveal that when an
order of a court quashing the detention is set aside, the remittance of the
detenu to jail to serve out the balance period of detention does not
automatically follow and it is open to the detaining authority to go into
the various factors delineated in the judgments aforequoted so as to find
out as to whether it would be appropriate to send the detenu back to serve
out the balance period of detention. In this view of the matter, we are of
the opinion that the detaining authority must be permitted to re-examine
the matter and to take a decision thereon within a period of 3 months from
the date of the supply of the copy of this order. We further direct that
during this period the interim order in favour of the appellant given by us
on 30-4-2007 will continue to operate."
21. As noticed above, the detenu was taken into custody in September,
2012, and the order of detention was passed in December, 2012. The said
order of detention was finally quashed by the High Court in terms of Order
dated 26.4.2013. Apparently, therefore, a long time has lapsed inasmuch as
the period of detention fixed in the order of detention has already expired
in April, 2014. Even if the impugned order passed by the High Court is set
aside, the detenu cannot and shall not be taken into custody for serving
the remaining period of detention unless there still exist materials to the
satisfaction of the detaining authority for putting him under detention.
In other words, initial detention order having been expired long back, it
is for the detaining authority to take a decision in accordance with law.
22. In the facts and circumstances of the case and after giving out
anxious consideration in the matter, we are of the considered opinion that
the impugned order passed by the High Court cannot be sustained.
Therefore, this appeal is allowed and the impugned order passed by the High
Court, quashing the order of detention, is hereby set aside with the
direction and observations made hereinabove.
..................................J.
(M.Y. Eqbal)
...................................J.
(Shiva Kirti Singh)
New Delhi
December 09, 2014
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