Full Judgment Text
REPORTABLE
IN THE SUPREME COURT OF INDIA
CRIMINAL APPELLATE JURISDICTION
CRIMINAL APPEAL NO. 1746 OF 2019
(Arising from S.L.P.(Criminal) No.7010/2019)
Union of India through
Joint Secretary (COFEPOSA),
Ministry of Finance, New Delhi …Appellant
Versus
Ankit Ashok Jalan …Respondent
WITH
SPECIAL LEAVE PETITION(CRIMINAL) NO.7013/2019
WRIT PETITION(CRIMINAL) NO. 204 OF 2019
WRIT PETITION(CRIMINAL) NO. 206 OF 2019
WRIT PETITION(CRIMINAL) NO. 209 OF 2019
J U D G M E N T
M.R. SHAH, J.
Leave granted in Special Leave Petition (Criminal) No. 7010
Signature Not Verified
of 2019.
Digitally signed by
MEENAKSHI KOHLI
Date: 2019.11.22
16:17:43 IST
Reason:
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2. Feeling aggrieved and dissatisfied with the impugned
judgment and order dated 02.08.2019 passed by the High Court
of Delhi at New Delhi in Writ Petition (Criminal) No. 1840 of
2019, by which the High Court has allowed the said writ petition
preferred by the respondent herein and has quashed and set
aside the detention orders bearing Nos. PD12001/34/2019
COFEPOSA and PD12001/35/2019COFEPOSA dated 1.7.2019,
the Union of India through the Detaining Authority has preferred
the present appeal. Feeling aggrieved and dissatisfied with the
aforesaid impugned judgment and order passed by the High
Court, even the detenu has preferred the special leave petition
challenging the aforesaid impugned judgment and order,
inasmuch as on grounds ‘C’, ‘D’, ‘E’, ‘F’ and ‘G’ raised in the main
writ petition before the High Court, having not been decided one
way or the other, while allowing the writ petition of the original
writ petitioner on the first two grounds, i.e., grounds ‘A’ & ‘B’.
2.1 Writ Petition (Criminal) Nos. 204/2019, 206/2019 and
209/2019 have been preferred by the respective writ petitioners
under Article 32 of the Constitution of India for an appropriate
writ, direction or order declaring that the disjunctive ‘or’ in
Section 13 of the Conservation of Foreign Exchange and
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Prevention of Smuggling Activities Act, 1974 (hereinafter referred
to as ‘COFEPOSA Act’) shall be read as ‘and’ so that only those
actions which are actually done in good faith would be protected
under the said Section, to enable the respective petitioners to
take such further action against the Detaining Authority, as may
be permissible in law.
2.2 At the outset, it is required to be noted that so far as the
respective writ petitioners of writ petitions are concerned, though
detention orders qua them have been set aside by the High
Court, still the respective petitioners have prayed for the
aforesaid reliefs.
Criminal Appeal @ SLP (Criminal) No.7010/2019 and
SLP(Criminal) No. 7013 of 2019
3. The facts of the case in nutshell are as follows:
That in the light of specific intelligence, the Directorate of
Revenue Intelligence, Kolkata Zonal Unit (for short ‘DRI’)
intercepted one Anand on 09.06.2019 near Dankuni Toll Plaza,
West Bengal, while he was travelling on a bus from Siliguri to
Kolkata, carrying 8 Kgs. of gold of foreign origin valued at Rs.2.71
crores approximately. That the said Anand, vide his statements
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recorded on 09.06.2019 and 10.06.2019 indicated that, he had
been engaged by the detenus to receive the 8 bars of smuggled
gold from IndoBhutan border at Jaigaon from an unknown
person, to be transported and delivered to Kolkata and Delhi.
That as per the detenus, they were apprehended by officers of
DRI on 10.06.2019 at about 2:00 p.m. at the Food Court of Quest
Mall, 33, Syed Amir Ali Avenue, Park Circus, Beck Bagan Row,
Kolkata, West Bengal – 700017 and taken to the latter’s office.
That the detenus’ selfincriminating confessions were purportedly
obtained under Section 108 of the Customs Act, 1962
(hereinafter referred to as the ’Act’) and they were formally shown
as arrested on 11.06.2019 under the provisions of Section 104 of
the Act. That thereafter the detenus were produced before the
Court of Judicial Magistrate on 12.06.2019.
3.1 That vide order dated 12.06.2019 in Misc. 67/2019, the
learned Chief Metropolitan Magistrate, Kolkata rejected the
prayer of bail made on behalf of the detenus and remanded them
to judicial custody till 18.06.2019.
3.2 That while the detenus were in custody, the detention
orders were rendered by the Detaining Authority on 01.07.2019.
The detention orders were served on both the detenus on
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02.07.2019. The detenus have been served with the relied upon
documents with the list of documents on 04.07.2019.
3.3 That the detenus filed their representations dated
07.07.2019, under Article 22(5) of the Constitution of India read
with Section 3(3) of the COFEPOSA Act, addressed to the
Detaining Authority against the impugned detention orders,
through the jail authorities.
3.4 That the respondent Ankit Ashok Jalan filed writ petition
before the High Court challenging the aforesaid detention orders
against his father – Ashok Kumar Jalan and his brother – Amit
Jalan (detenus) dated 01.07.2019. It was mainly contended on
behalf of the original writ petitioner that despite the detenus
already being in judicial custody, the Detaining Authority
rendered the detention orders and there being no imminent
possibility of their being released on bail nor any material relied
upon therein to raise an apprehension that they may be so
released in the near future since no bail application was pending,
the same are ex facie illegal and without any basis. It was
further contended that the relied upon documents have not been
perused by the Detaining Authority, inasmuch as, the retraction
petition of the said Anand, which is a vital document, has neither
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been placed before the Detaining Authority nor considered by it
in accordance with law, the document purported to be a copy of
the ‘retraction petition’ in respect of the said Anand, placed at Sr.
No.30 of the list of relied upon documents, is actually the latter’s
bail application, and thus the subjective satisfaction is sham,
erroneous and incomplete, and therefore, violative of the detenus’
right to effective representation as mandated and guaranteed by
the Constitution, and by law.
4. The writ petition before the High Court was opposed by the
Detaining Authority. It was requested not to entertain the writ
petition at this stage, since the detenus’ representations were
pending consideration before the Advisory Board. On merits, it
was submitted that there was cogent material before the
Detaining Authority to arrive at the subjective satisfaction that
the detenus were likely to be released from judicial custody and
that there was likelihood of their continuing to indulge in the
prejudicial activities. It was also submitted on behalf of the
Detaining Authority that all the relevant documents were
supplied to the detenus. That by the impugned judgment and
order, the High Court has quashed and set aside the detention
orders mainly on the ground that there was a clear lapse and
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failure on the part of the Detaining Authority to examine and
consider the germane and relevant question relating to the
imminent possibility of the detenus being granted bail, while
recording its subjective satisfaction and passing the detention
orders.
4.1 Feeling aggrieved and dissatisfied with the impugned
judgment and order passed by the High Court quashing and
setting aside the detention orders, Union of India through the
Detaining Authority has preferred the present appeal. As
observed hereinabove, even the original writ petitioner has also
approached this Court against the impugned judgment and order
passed by the High Court, inasmuch as on grounds ‘C’, ‘D’, ‘E’,
‘F’ and ‘G’ raised in the main writ petition before the High Court,
having not been decided one way or the other, while allowing the
writ petition of the original writ petitioner on the first two
grounds, i.e., grounds ‘A’ & ‘B’ only.
5. Shri K.M. Nataraj, learned Additional Solicitor General of
India has vehemently submitted that the impugned judgment
and order passed by the High Court is clearly contrary to the law
laid down by this Court in a recent judgment rendered in the
case of Union of India and another v. Dimple Happy Dhakad,
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Criminal Appeal No. 1064/2019 arising out of SLP (Criminal) No.
5459/2019, decided on 18.07.2019, 2019 SCC OnLine SC 875. It
is submitted that despite the categorical finding recorded by the
Detaining Authority with regard to the “immediate possibility of
the release of the detenus from judicial custody”, the High Court
has observed that the same is not sufficient compliance in law
and has quashed the detentions orders on this sole ground.
5.1 Relying upon para 7 of the detention orders, it is submitted
that the Detaining Authority was aware with regard to detenus
being in custody and their immediate possibility of the release
and their propensity to indulge in prejudicial activities after
release. It is submitted that the subjective satisfaction of the
Detaining Authority has been clearly recorded with regard to the
custody the likelihood of the release and the propensity to
indulge in prejudicial activities. It is submitted that even the bail
application of Anand was also considered by the Detaining
Authority.
5.2 It is further submitted by the learned Additional Solicitor
General that the aforesaid consideration on the part of the
Detaining Authority is sufficient compliance with the
constitutional protections. Reliance is placed upon the decision
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of this Court in the case of Noor Salman Makani v. Union of India
(1994) 1 SCC 381 (paras 5 & 6).
5.3 It is further submitted by the learned Additional Solicitor
General that even in the case of Kamarunnisa v. Union of India
(1991) 1 SCC 128 , relied upon by the respondent, this Court lays
down a threepointer test in passing of a detention order in case
of a person already in judicial custody as under:
“(1) if the authority passing the order is aware of the
fact that he is actually in custody;
(2) if he has reason to believe on the basis of reliable
material placed before him;
(a) that there is a real possibility of his being
released on bail, and
(b) that on being so released he would in all
probability indulge in prejudicial activity and
(3) if it is felt essential to detain him to prevent him
from so doing.”
It is submitted that in the said decision, this Court further
observed:
“if the authority passes an order after recording his
satisfaction in this behalf, such an order cannot be
struck down on the ground that the proper course for the
authority was to oppose the bail and if bail is granted
notwithstanding such opposition, to question it before a
higher court.”
It is submitted that this Court further clarified as under:
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“….What this court stated in the case of Ramesh Yadav
[(1985) 4 SCC 232] was that ordinarily a detention order
should not be passed merely to preempt or circumvent
enlargement on bail in cases which are essentially
criminal in nature and can be dealt with under the
ordinary law. It seems to be well settled that even in a
case where a person is in custody, if the facts and
circumstances of the case so demand, resort can be had
to the law of prevention detention.”
5.4 It is submitted that even as per the said decision, the
awareness that the detenus are in custody and the categorical
recording of the fact that the detenu is likely to be released on
bail, is sufficient when a detention order is being passed against
a person in custody. Learned ASG has also relied upon the
following decisions of this Court, Merugu Satyanarayana v. State
of A.P. (1982) 3 SCC 301; S tate of Gujarat v. Sunil Fulchand Shah
(1988) 1 SCC 600; Vijay Kumar v. Union of India (1988) 2 SCC 57;
Abdul Sathar Ibrahim Manik v. Union of India (1992) 1 SCC 1;
Veeramani v. State of T.N. (1994) 2 SCC 337; and Baby Devassy
Chully v. Union of India (2013) 4 SCC 531.
5.5 It is further submitted by the learned ASG that the detenus
have been released on bail subsequent to the impugned judgment
and order of the High Court and therefore the ground of
imminent likelihood of release stood proved. It is submitted that
10
admittedly the detenus have been granted bail by the Court on
the very date of the order of detention was quashed by the High
Court by the impugned judgment and order dated 2.8.2019. It is
submitted therefore the apprehension in the mind of the
Detaining Authority that the detenus are likely to be released on
bail and regarding the prejudicial activities of the detenus has to
be taken as well founded and fortified. It is submitted therefore
that the grounds raised by the detenus regarding nonmentioning
of imminent likelihood of release does not survive for
consideration, as the detenus have been released subsequent to
the order of detention as apprehended by the Detaining
Authority. It is submitted that as on date if the detention order is
quashed, the detenus will be free to indulge in the prejudicial
activities as mentioned in the detention order thereby causing
serious harm and prejudice to the society in general and the
economy of the nation in particular.
5.6 Now so far as the other grounds raised by the detenus with
respect to retraction statement of Shri Anand not being with the
Detaining Authority on the date of passing of the detention orders
and therefore the detention orders have been vitiated is
concerned, it is submitted that an affidavit has been furnished
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along with documentary evidence by the Sponsoring Authority by
letter dated 31.8.2019. It is submitted that as per letter dated
31.08.2019 of the jail authority, prisoner’s petition dated
22.6.2019 submitted by Shri Anand, was forwarded to the
learned court of Chief Metropolitan Magistrate, Calcutta only. It
is submitted that the said petition was not forwarded to any
other concerned including the Sponsoring or Detaining Authority
except the court of Chief Metropolitan Magistrate, Calcutta. It is
submitted that further, as per letter memo dated 30.08.2019 of
jail authority, a copy of the prisoner’s petition of Shri Anand
dated 22.6.2019 was forwarded on 22.6.2019 to learned Chief
Metropolitan Magistrate, Calcutta. The same was received by the
office of Chief Metropolitan Magistrate on 24.6.2019. It is
submitted that Shri Anand, Shri Ashok Kumar Jalan and Shri
Amit Jalan were produced before the learned Chief Metropolitan
Magistrate, Calcutta from judicial custody on 2.7.2019. It is
submitted that during the course of hearing of the case, it came
to the notice of the prosecution that a retraction petition was filed
by Shri Anand. Accordingly, a request was made before the
learned Chief Metropolitan Magistrate for supply of a copy of the
same. Accordingly, learned Chief Metropolitan Magistrate
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ordered advocate of accused No.1 (Shri Anand) to serve the copy
vide order dated 2.7.2019. It is submitted that the office of DRI,
Kolkatta received a copy of the prisoner’s petition/retraction
petition of Shri Anand dated 22.6.2019 on 15.7.2019, which was
served by one Shri Sumit Dey, Advocate of Shri Anand as per
learned Chief Metropolitan Magistrate’s order dated 2.7.2019. It
is submitted that therefore when the Sponsoring Authority was
not aware about the retraction application of Shri Anand dated
22.6.2019 when the proposal was forwarded by the Sponsoring
Authority to the Detaining Authority and therefore the alleged
retraction application dated 22.6.2019 could not be placed by
Sponsoring Authority before the Detaining Authority before
passing the detention orders on 1.7.2019 against the detenus. It
is submitted that therefore and even otherwise nonconsideration
of the retraction application dated 22.6.2019 of Shri Anand by
the Detaining Authority does not vitiate the orders of detention.
In support of his above submission, learned ASG has relied upon
a decision of this Court in the case of Raverdy Marc Germain
Jules v. State of Maharashtra (1982) 3 SCC 135.
5.7 It is further submitted by the learned ASG that even
otherwise the contents of the prisoner’s petition/retraction
13
petition of Shri Anand dated 22.6.2019 is a mere afterthought. It
is submitted that Shri Anand was caught carrying 8Kgs. of
foreign origin gold without any supporting documents whatsoever
in the presence of the independent witnesses, as per due process
and procedure. It is submitted that whatsapp messages
exchanged between him and Shri Ashok Jalan and the whatsapp
calls made between them provides unclenching evidence about
their acquaintance and complicity in the case. It is submitted
that hence the prisoner’s petition/retraction petition does not
prejudice the decision of the Detaining Authority in passing of the
detention orders, which were based on the facts and evidence on
record which were duly mentioned in the detention orders and
relied upon documents supplied along.
5.8 It is further submitted that even the retraction statement of
Shri Anand is not a vital document in case of the present
detention orders against the detenus as their retractions have
been duly considered by the Detaining Authority.
5.9 It is further submitted by the learned ASG that apart from
the above facts, Shri Anand after his release on bail has
reiterated his earlier statements dated 9.6.2019, 10.6.2019 and
14.6.2019 on 19.7.2019 wherein he has categorically stated that
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he filed the retraction petition as per the directions of his
advocate which was a mistake on his part.
5.10.It is further submitted by the learned ASG that even
otherwise failure to place certain documents may not necessarily
be fatal to a detention order. In support of his submission,
learned ASG has also relied upon the decisions of this Court in
the cases of Prakash Chandra Mehta v. Commissioner and
Secretary., Government of Kerala, (1985) Suppl. SCC 144 (paras
69 to 73, 75, 82 & 83) and Madan Lal Anand v. Union of India
(1990) 1 SCC 81.
5.11 Making the above submissions and relying upon the above
decisions, it is prayed to allow the present appeal and quash and
set aside the impugned judgment and order passed by the High
Court quashing and setting aside the detention orders.
6. While supporting the impugned judgment and order passed
by the High Court quashing and setting aside the orders of
detention, learned counsel appearing on behalf of the respondent
has vehemently submitted that the High Court has given cogent
reasons while quashing and setting aside the orders of detention,
and therefore, the same is not required to be interfered with by
this Court.
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6.1 Shri Vikram Chaudhri, learned Senior Advocate appearing
on behalf of the original writ petitioner has taken us to the
relevant grounds of detention, more particularly paragraphs (v)
and (vii) and has submitted that the statements of Shri Anand
are the fulcrum, basis and foundation on which the entire case
set up against the detenus rests. Consequently, if the statements
are excluded from the zone of consideration, nothing shall
survive qua the detenus. It is submitted that there is no
incriminating recovery from the detenus as such.
6.2 It is further submitted by the learned Senior Advocate
appearing on behalf of the original writ petitioner that though a
specific reference has been made by the Detaining Authority
regarding the factum of retraction of their statement by the
present detenus, however, not a whisper has been made as to the
fact of any retraction made by Shri Anand even in his bail
application. It is submitted that even if the short denial of
statement of bail application of Shri Anand is seen as retraction,
the same has never gone into the mind making of the Detaining
Authority for arriving at his subjective satisfaction. It is
submitted that the Detaining Authority has chosen to make a
detailed consideration of the retraction made by the detenus, but
16
it will not show the same consideration to the retraction made by
Shri Anand, it was alive and aware regarding the same.
6.3 It is further submitted that as such the retraction statement
of Shri Anand has not been supplied by the Detaining Authority
to the detenus. It is submitted that as per the relied upon
documents, it is stated as “copy of retraction petition in respect of
Shri Anand”. It is submitted that however the above document is
a bail application of Shri Anand and not a retraction statement.
It is submitted that therefore nonsupply of the retraction
statement of Shri Anand to the detenus has vitiated the orders of
detention.
6.4 It is further submitted that in the grounds of detention,
there is no reference to the retraction petition on behalf of Shri
Anand.
6.5 It is further submitted that as it is evident from the order
sheet of the Court, retraction petition filed by Shri Anand has
reached the Court on 24.06.2019 and handwritten court
proceedings recorded the said fact. It is submitted that therefore
retraction petition formed a part of the judicial/court record,
much prior to the issuance of the detention orders. It is
submitted that therefore the retraction petition of Shri Anand
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was in complete knowledge of the DRI Officers as well as their
Advocates. It is submitted that except the Detaining Authority
and the prosecution, none was aware of the proposal for
detention and it was their bounden duty to call for all the
records. It is submitted that, however, request for supply of the
said retraction petition and the entire Court record was not made
before passing of the detention orders.
6.6 It is further submitted that the stand that the authorities
got knowledge of the retraction only on 2.7.2019 has not been
substantiated. It is submitted that the retraction petition dated
22.6.2019 of coaccused Shri Anand had a vital bearing on the
complicity or otherwise of the detenus in the alleged prejudicial
activities. It is submitted that the Detaining Authority would
have been aware of the contents of the retraction and would have
considered the same, it may have influenced the mind of the
Detaining Authority one way or the other. It is submitted
therefore that nonsupply of the retraction petition by Shri Anand
and/or nonconsideration of the factual factum of retraction
petition by Shri Anand has definitely vitiated the orders of
detention and therefore the High Court has rightly set aside the
detention orders. In support, learned counsel has heavily relied
18
upon the decisions of this Court in the cases of V.C. Mohan v.
Union of India (2002) 3 SCC 451; Deepak Bajaj v. State of
Maharashtra (2008) 16 SCC 14; and Rushikesh Tanaji Bhoite v.
State of Maharashtra (2012) 2 SCC 72 .
6.7 It is further submitted that even otherwise subjective
satisfaction was also vitiated for lack of any cogent material to
arrive at the satisfaction regarding the imminent possibility of
release on bail, more particularly when the bail application filed
by both the detenus was already rejected by the Magistrate and
no further bail application of the detenus was pending.
6.8 It is further submitted that indisputably bail application of
the detenus was rejected on 12.06.2019. No further bail
application was filed or pending before any court. It is submitted
therefore the subjective satisfaction of the Detaining Authority
that the detenus are likely to be released on bail has been vitiated
and therefore the High Court has rightly quashed and set aside
the orders of detention on this ground alone. In support, learned
counsel has heavily relied upon the decisions of this Court in the
cases of
Rameshwar Shaw v. District Magistrate AIR 1964 SC
19
334; Kamaarunnissa (supra); T.V. Sravanan v. State (2006) 2 SCC
664; and Rekha v. State of T.N. (2011) 5 SCC 244.
6.9 Relying upon the decision of this Court in the case of
Union
of India v. Dimple Happy Dhakad (supra) , it is vehemently
submitted by the learned counsel appearing on behalf of the
respondent that, as held by this Court, the satisfaction of the
Detaining Authority that the detenus may be released on bail
cannot be ipse dixit of the Detaining Authority. It is submitted
that as such on facts in the case of Dimple Happy Dhakad
(supra) , this Court confirmed the orders of detention having been
satisfied that the subjective satisfaction of the Detaining
Authority that the detenu is likely to be released on bail is based
on the materials. It is submitted that even otherwise the decision
of this Court in the case of Rekha (supra) has been delivered by
three Judges Bench and the decision in the case of Dimple Happy
Dhakad (supra) has been delivered by two Judges Bench. It is
submitted that in any case, in the present case, as such no bail
application of the detenus was pending before any court.
6.10 It is further submitted that even the question of severability
under Section 5A of the COFEPOSA was never urged/pleaded by
20
the appellant/Detaining Authority either before the High Court or
before this Court in any of their pleadings. It is submitted that
even otherwise in view of the decisions of this Court in the cases
of (2000) 7 SCC 148
A. Sowkath Ali v. Union of India ; and P.
Saravanan v. State of T.N. (2001) 10 SCC 212 , Section 5A of
COFEPOSA shall not be applicable.
6.11 It is further submitted that even otherwise there was a delay
in deciding the representation and therefore also the orders of
detention were liable to be set aside.
6.12 Learned counsel appearing on behalf of the detenus has
also requested to consider the observations made by the learned
trial Court while granting bail to the detenus, more particularly
strictures on the conduct of the DRI officials thereby highlighting
illegal incarceration of the detenus by the DRI and extraction of
false statements during such illegal custody.
6.13 Making the above submissions and relying upon the
aforesaid decisions, it is prayed to dismiss the present
appeal/petitions and not to interfere with the impugned
judgment and order passed by the High Court quashing and
setting aside the orders of detention.
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7. We have heard the learned counsel for the respective parties
at length.
8. By the impugned judgment and order, the High Court has
set aside the respective orders of detention and released the
detenus, namely, Ashok Kumar Jalan and Amit Jalan under the
provisions of COFEPOSA. The orders of detention are set aside
by the High Court mainly, inter alia, on the ground that there
was a clear lapse and failure on the part of the Detaining
Authority, to examine and consider the germane and relevant
question relating to the imminent possibility of the detenus being
granted bail, while recording its subjective satisfaction and
passing the detention orders and also on the ground that non
placement of the relevant material in the form of Anand’s
retraction petition and its nonconsideration by the Detaining
Authority, also vitiates the detention orders.
8.1 Now so far as the first ground on which the detention orders
have been set aside, namely, there is a clear lapse and failure on
the part of the Detaining Authority, to examine and consider the
germane and relevant question relating to imminent possibility of
detenus being granted bail while recording its subjective
satisfaction and passing the detention orders is concerned, at the
22
outset, it is required to be noted that in paragraph 7, the
Detaining Authority observed and stated as under:
“7. I am aware that you, i.e., Shri Ashok Kumar Jalan are
in judicial custody at present at Presidency Correctional
Home, Alipore, Kolkata. However, there is an immediate
possibility of your release from judicial custody and if you
are released on bail, you are likely to continue to indulge
in the prejudicial activities and therefore there is a need
to issue a Detention Order against you under the
COFEPOSA Act, 1974 with a view to prevent you from
smuggling of gold and foreign currency in future.”
Therefore, it is evident that the Detaining Authority while passing
the detention orders was aware of the fact that the detenus are
actually in custody; that there is a real possibility of their being
released on bail; and that on being so released they would in all
probability indulge in prejudicial activities and therefore it is
essential to prevent them from smuggling of gold and foreign
currency in future.
As per catena of decisions of this Court, even if a person is
in judicial custody, he can be detained under the relevant
provisions of the concerned Act, like COFEPOSA etc. However,
there must be a proper application of mind and the Detaining
Authority must have been subjectively satisfied on considering
the relevant material that there is a reason to believe that there is
23
a real possibility of detenus being released on bail and that on
being so released the detenus will in all probability indulge in
prejudicial activities. In the recent decision, this Court in the
case of had an occasion to
Dimple Happy Dhakad (supra)
consider the aforesaid aspect and after considering the decisions
of this Court in the cases of Kamarunnisa (supra); Union of India
v. Paul Manickam (2003) 8 SCC 342; Huidrom Konungjao Singh v.
State of Manipur (2012) 7 SCC 181; Dharmendra Suganchand
Chelawat v. Union of India (1990) 1 SCC 746; and Veeramani
(supra) , this Court observed and held (i) that the order of
detention validly can be passed against a person in custody and
for that purpose it is necessary that the grounds of detention
must show whether the Detaining Authority was aware of the fact
that the detenu was already in custody; (ii) that the Detaining
Authority must be further satisfied that the detenu is likely to be
released from custody and the nature of activities of the detenu
indicate that if he is released, he is likely to indulge in such
prejudicial activities and therefore, it is necessary to detain him
in order to prevent him from engaging in such activities; and (iii)
the satisfaction of the Detaining Authority that the detenu is
already in custody and is likely to be released on bail and on
24
being released, he is likely to indulge in the same prejudicial
activities with the subjective satisfaction of the Detaining
Authority.
8.2 In the case of Noor Salman Makani (supra) , a submission
was made regarding nonapplication of mind by the Detaining
Authority with regard to the circumstance that the detenu was in
jail and a mere bald statement that the possibility that the
detenu was likely to be released on bail cannot be ruled out is not
enough and it only shows that there was no proper application of
mind. This Court did not accept the said submission and has
observed that nothing more could have been said by the
Detaining Authority in this context. It is required to be noted
that in the said decision the apprehension of the Detaining
Authority came to be true as the
detenu was released on bail. This Court refused to set aside the
detention order on the aforesaid ground. It appears that the
detenus were waiting for the setting aside of the detention orders
on the ground that they are in custody and that there is no real
apprehension that the detenus are likely to be released on bail.
As discussed earlier, the detention orders show the
application of mind by the Detaining Authority based on the
25
material available on record, facts and circumstances of the case,
nature of activities and propensity of the detenus indulging in
such activities. Therefore, in the facts and circumstances of the
case, the High Court has erred in setting aside the detention
orders on the ground stated hereinabove, namely, that there is a
clear lapse and failure on the part of the Detaining Authority, to
examine and consider the germane and relevant question relating
to the imminent possibility of the detenus being granted bail,
while recording its subjective satisfaction and passing the
detention orders.
8.3 A Constitution Bench of this Court in the case of
Rameshwar Shaw (supra) has observed and held that the
detention of the said person would be necessary after he is
released from jail, and if the authority is bona fide satisfied that
such detention is necessary, he can make a valid order of
detention a few days before the person is likely to be released. It
is further observed that “therefore the question as to whether an
order of detention can be passed against a person who is in
detention or in jail, will always have to be determined in the
circumstances of each case. Following the aforesaid decision of
this Court, in the subsequent decision, in the case of
N. Meera
26
Rani v. Government of T.N. (1989) 4 SCC 418, in para 22, this
Court observed and held as under:
“….Subsisting custody of the detenu by itself does not
invalidate an order of his preventive detention and the
decision must depend on the facts of the particular case;
preventive detention being necessary to prevent the
detenu from acting in any manner prejudicial to the
security of the State or to the maintenance of public
order etc. ordinarily it is not needed when the detenu is
already in custody; the detaining authority must show its
awareness to the fact of subsisting custody of the detenu
and take that factor into account while making the order;
but, even so, if the detaining authority is reasonably
satisfied on cogent material that there is likelihood of his
release and in view of his antecedent activities which are
proximate in point of time he must be detained in order
to prevent him from indulging in such prejudicial
activities, the detention order can be validly made even in
anticipation to operate on his release. This appears to
us, to be the correct legal position.”
8.4 Now so far as the reliance placed upon the decisions of this
Court in the cases of and by
Rekha (supra) T.V. Sravanan (supra)
the learned counsel appearing on behalf of the detenus is
concerned, at the outset, it is required to be noted that on the
facts and circumstances of the case, narrated hereinabove, the
aforesaid decisions shall not be of any assistance to the detenus
and/or, as such, the same shall not be applicable to the facts of
the case on hand. Even in the case of Rekha (supra) , the decision
of the Constitution Bench of this Court in the case of Rameshwar
27
Shaw (supra) was not placed before the Court for consideration
and therefore this Court had no occasion to consider the said
decision. It is also required to be noted that even after
considering the decision of this Court in the case of Rekha
(supra) , which has been heavily relied upon by the learned
counsel appearing on behalf of the detenus, in the case of Dimpy
Happy Dhakad (supra) , this Court has observed that even if a
person is in judicial custody, he can be put on a preventive
detention provided there must be an application of mind by the
Detaining Authority that (i) the order of detention validly can be
passed against a person in custody and for that purpose it is
necessary that the grounds of detention must show whether the
Detaining Authority was aware of the fact that the detenu was
already in custody; (ii) that the Detaining Authority must be
further satisfied that the detenu is likely to be released from
custody and the nature of activities of the detenu indicate that if
he is released, he is likely to indulge in such prejudicial activities
and therefore, it is necessary to detain him in order to prevent
him from engaging in such activities; and (iii) the satisfaction of
the Detaining Authority that the detenu is already in custody and
is likely to be released on bail and on being released, he is likely
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to indulge in the same prejudicial activities with the subjective
satisfaction of the Detaining Authority.
8.5 In the case of Kamarunnissa (supra) , this Court concluded
as under:
“(1) A detention order can validly be passed even in the
case of a person who is already in custody. In such a
case, it must appear from the grounds that the authority
was aware that the detenu was already in custody.
(2) When such awareness is there then it should
further appear from the grounds that there was enough
material necessitating the detention of the person in
custody. This aspect depends upon various
considerations and facts and circumstances of each case.
If there is a possibility of his being released and on being
so released he is likely to indulge in prejudicial activity
then that would be one such compelling necessity to pass
the detention order. The order cannot be quashed on the
ground that the proper course for the authority was to
oppose the bail and that if bail is granted
notwithstanding such opposition the same can be
questioned before a higher court.
(3) If the detenu has moved for bail then the
application and the order thereon refusing bail even if not
placed before the detaining authority it does not amount
to suppression of relevant material. The question of non
application of mind and satisfaction being impaired does
not arise as long as the detaining authority was aware of
the fact that the detenu was in actual custody.
(4) Accordingly the nonsupply of the copies of bail
application or the order refusing bail to the detenu
cannot affect the detenu’s right of being afforded a
reasonable opportunity guaranteed under Article 22(5)
when it is clear that the authority has not relied or
referred to the same.
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(5) When the detaining authority has merely referred
to them in the narration of events and has not relied
upon them, failure to supply bail application and order
refusing bail will not cause any prejudice to the detenu in
making an effective representation. Only when the
detaining authority has not only referred to but also
relied upon them in arriving at the necessary satisfaction
then failure to supply these documents, may, in certain
cases depending upon the facts and circumstances
amount to violation of Article 22(5) of the Constitution of
India. Whether in a given case the detaining authority
has casually or passingly referred to these documents or
also relied upon them depends upon the facts and the
grounds, which aspect can be examined by the Court.
(6) In a case where detenu is released on bail and is at
liberty at the time of passing the order of detention, then
the detaining authority has to necessarily rely upon them
as that would be a vital ground for ordering detention. In
such a case the bail application and the order granting
bail should necessarily be placed before the authority and
the copies should also be supplied to the detenu.”
9. Now applying the law laid down by this Court, referred to
hereinabove, to the facts of the case on hand and considering the
ground (para 7) and the various circumstances noted by the
Detaining Authority, we are satisfied that the detention orders
cannot be quashed on this ground. It is to be noted that the
detenus have been granted bail by the Court on the very date the
orders of detention were quashed by the High Court, i.e., on
2.8.2019. Therefore, the apprehension in the mind of the
30
Detaining Authority that the detenus are likely to be released on
bail was well founded and fortified. Therefore, the High Court
has fallen in error in quashing and setting aside the detention
orders on the ground that there is a clear lapse and failure on
the part of the Detaining Authority, to examine and consider the
germane and relevant question relating to the imminent
possibility of the detenus being granted bail, while recording its
subjective satisfaction and passing the detention orders.
10. Now so far as the other submissions made by the learned
counsel appearing on behalf of the detenus, which according to
the learned counsel were not considered by the High Court,
namely, nonconsideration of the relevant facts, namely, the
retraction statement made by Shri Anand, by the Detaining
Authority is concerned, at the outset, it is required to be noted
that it appears that Memo No. 9920/ABI dated 31.08.2019 of
Jail Authority, prisoner’s (Shri Anand) petition dated 22.6.2019
was forwarded to the learned Chief Metropolitan Magistrate,
Calcutta only. It appears that the said petition was not
forwarded to any other concerned including the Sponsoring
Authority or Detaining Authority. It also appears from the
material on record that as per letter Memo No. 9899/ABI dated
31
30.08.2019 of Jail Authority, a copy of the prisoner’s petition of
Shri Anand dated 22.6.2019 was forwarded on 22.6.2019 itself to
the learned Chief Metropolitan Magistrate, Calcutta, The same
was received by the office of the learned Chief Metropolitan
Magistrate, Calcutta on 24.6.2019. It appears that Shri Anand
and the detenus herein were produced before the learned Chief
Metropolitan Magistrate, Calcutta from judicial custody on
2.7.2019 and during the course of hearing, it had come to the
notice of prosecution that a retraction petition was filed by Shri
Anand. Therefore, and accordingly, a request was made before
the learned Chief Metropolitan Magistrate, Calcutta for supply a
copy of the same and accordingly the learned Chief Metropolitan
Magistrate ordered advocate of Shri Anand to serve a copy of the
retraction petition vide order dated 2.7.2019. It appears from the
material on record that the office of DRI, Calcutta received a copy
of the retraction petition of Shri Anand dated 22.6.2019 on
15.07.2019. Much reliance is placed upon the orders sheet of
the learned trial Court dated 22.06.2019 in support of the
submission on behalf of the detenus that the Sponsoring
Authority was aware of the Anand’s retraction statement and
therefore the Sponsoring Authority ought to have drawn the
32
attention of the Detaining Authority on the wider aspect of
Anand’s retraction. However, it is required to be noted that there
are two orders available on the order sheet of the trial Court.
First is the handwritten order and other is a typed order. All
other orders are typed orders. The handwritten order does not
bear the stamp of the court and/or signature of the learned
Magistrate. Therefore, the handwritten order does not inspire
any confidence and therefore no reliance can be placed upon the
handwritten order on the order sheet of the trial Court dated
24.06.2019. Under the circumstances, it appears that when the
detention orders were passed by the Detaining Authority, neither
the Sponsoring Authority nor even the Detaining Authority was
aware of any retraction petition of Shri Anand. Under the
circumstances, there was no occasion and/or reason for the
Detaining Authority to consider the retraction statement of Shri
Anand. Under the circumstances, it cannot be said that on non
consideration of the Anand’s retraction petition, the detention
orders have been vitiated.
11. In view of the above and for the reasons stated above, the
High Court has committed a grave error in quashing and setting
aside the detention orders and interfering with the subjective
33
satisfaction of the Detaining Authority. Consequently, the appeal
preferred by the Detaining Authority, i.e., Civil Appeal arising
from Special Leave Petition (Criminal) No. 7010 of 2019 is
allowed, the impugned judgment and order passed by the High
Court quashing and setting aside the detention orders is hereby
quashed and set aside and the detention orders of the respective
detenus are hereby restored. The detenus, i.e., Ashok Kumar
Jalan and Amit Jalan shall be taken into custody forthwith by
the Detaining Authority. Accordingly, the special leave petition
preferred by the respondent, i.e., Special Leave Petition (Criminal)
No. 7013/2019 stands dismissed.
Writ Petition (Criminal) Nos. 204, 206 & 209/2019
As stated above, Writ Petition (Criminal) Nos. 204/2019,
206/2019 and 209/2019 have been preferred by the respective
writ petitioners under Article 32 of the Constitution of India for
an appropriate writ, direction or order declaring that the
disjunctive ‘or’ in Section 13 of the COFEPOSA Act shall be read
as ‘and’ so that only those actions which are actually done in
good faith would be protected under the said Section, to enable
the respective petitioners to take such further action against the
Detaining Authority, as may be permissible in law. But in
34
support of the prayer(s) made in the writ petitions, during the
course of hearing, no such submissions were advanced by the
learned counsel for the respective petitioners.
Even otherwise, in view of our judgment rendered in
Criminal Appeal arising from Special Leave Petition (Criminal) No.
7010/2019, we find no merits in the present writ petitions and
they are accordingly dismissed.
………………………….J.
[UDAY UMESH LALIT]
………………………….J.
[INDIRA BANERJEE]
NEW DELHI; ………………………….J.
NOVEMBER 22, 2019. [M.R. SHAH]
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