AMANULLA KHAN KUDEATALLA KHAN PATHANversusSTATE OF GUJARAT AND ORS.

        AMANULLA KHAN KUDEATALLA KHAN PATHAN                                  A
                                    v.
                   STATE OF GUJARAT AND ORS.

                             JUNE 28, 1999

             [G.B. PATTANAIK AND D.P. WADHWA, JJ.]                            B

     Criminal Law :

       Gujarat Prevention of Anti-Social Activities Act, 1985-Section 2(c)-
"Dangerous person"-Preventive detention of-Detenu on two incidents C
demanded money from a person by putting him to fear of death and on his
refusal dragged and assaulted him-Held, In order to be a "dangerous
person" the detenu should be a habitual offender-Expression "habitually"
means repeatedly or persistently or continuously-Therefore, one isolated
incident for which a criminal case is registered against a person is not
sufficient to hold him a dangerous person-However, the satisfaction of the D
detaining authority holding the detenu to be a dangerous person based on
the two incidents, not vitiated

      Section 3(4)-Preventive detention-Public order-Detenu-Activities
of-"Jn a manner prejudiciqJ to the maintenance ofpublic order or amounted     E
to breach oflaw and order"-Determination of-test-Detenu extorted money
from a person by putting him to fear of death and on refusal dragged and
assaulted him-Held, Such activities affected the even tempo of life of the
society-Hence, satisfaction of the detaining authority that such activities
amounted to disturbance of public order, does not warrant interference.
                                                                              F
      Sections I I and I 2-Preventive detention-Detenu-Advisory Board
did not indicate detenu was to be detained for more than 3 months-Advisory
Board's report rejecting detenu's representation not produced-No such
contention raised in High Court-Held, Such contention cannot be raised
before the Supreme Court-Constitution of India, 1950, Art. 22(5)
                                                                              G
     Section I 2-Preventive detention-Detenu-Made representation
against his detention only to the Advisory Board-Effect of-Held, Detaining
authority need not consider the same-Such non-consideration does not
amount to violation of Article 22(5).

     Preventive detention--Detenu-Jn the grounds of detention it was H
                                   807
    808                    SUPREME COURT REPORTS                    [1999] 3 S.C.R.

A indicated that. the activities of the detenu could not be dealt with under
    Bombay Police Act-Held, Detaining authority is not required to state in the
    grounds of detention the reasons therefore.

          Words and Phrases: "Habitually"-Meaning of-Jn the context ofS.2(c)
    of the Gujarat Prevention of Anti-Social Activities Act, 1985.
B
          The appellant-detenu belonged to a notorious gang and hatched a
    conspiracy to extort money from people by putting them to fear of death and
    demanded a sum of Rs. 1 lakh on the first occasion and when the person
    concerned refused, he was dragged and assaulted; on the second occasion the
    appellant-detenu demanded a sum of Rs. 50,000 and on refusal, the persons
C   were dragged and were beaten on the public road. Prior to these incidents
    there was also a criminal case registered against the appellant-detenu. The
    detaining authority, therefore, declared the appellant-detenu as a "dangerous
    person" under Section 2(c) of the Gujarat Prevention of Anti-Social Activities
    Act, 1985 and detained the appellant-detenu. The High Court upheld the
D   detention order. Hence this appeal.

           On behalf of the appellant-detenu it was contended that the detention
    order was based only on a solitary incident for which a criminal case was
    registered against the appellant, that the activities of the appellant were
    violations of the normal criminal law and had no connection with maintenance
E   of public order and therefore, the detention order passed under S.3 of the
    Act was illegal; that the Advisory Board had not indicated that the appellant
    was to be detained for more than three months and, therefore, Article 22(5)
    of the Constitution was violated; that even though the appellant made a
    representation to the Advisory Board against his detention yet the non-
F   consideration of the same by the detaining authority was violative of Article
    22(5) of the Constitution and that in the grounds of detention no reasons
    were given that the activities of the detenu could not be dealt with under the
    Bombay Police Act.

          Dismissing the appeal, this Court
G         HELD: 1.1. The expression "habitually" occurring in Section 2(c) of
    the Gujarat Prevention of Anti-Social Activities Act, 1985 would obviously
    mean 'repeatedly' or 'persistently'. It supplies the threat of continuity of the
    activities and, therefore, an isolated act would not justify an inference of
    habitual commission of the activity. Therefore, the question that requires
H   adjudication is whether the satisfaction of the detaining authority in the
                           AMANULLA KHAN v. STATE                               809

    present case is based upon the isolated incident for which the criminal case A
    was registered or there are incidents more than one which indicate a repeated
    and persistent activity of the detenu. [813-C-D]

           1.2. It is clear from the grounds of detention that apart from the
    criminal case which had been registered against the detenu for having
    formed a gang hatched a conspiracy to extort money from the innocent B
    citizens by threatening them and keeping them under constant fear of death,
    the two witnesses examined by the detaining authority narrated the two
    incidents in which the detenu was involved and on the first occasion a sum
    of Rs. 1 lakh was demanded and when the person concerned refused, he was
    dragged and assaulted and on the second occasion a sum of Rs. 50,000 was C
    demanded and on refusal, the persons were dragged on the road and were
    beaten on the public road. The grounds of detention clearly mentioned the
    aforesaid state of affairs and there is no bar for taking these incidents into
    consideration for the satisfaction of the detaining authority that whether the
    person is a "dangerous person" within the ambit of Section 2(c) of the Act.
    Therefore, there is no substance in the contention that the satisfaction of the D
    detaining authority that the detenu is a "dangerous person" is based upon
    the solitary incident in respect of which a criminal case has already been
    registered. The detaining authority has considered the three different
    incidents happened on three different dates and not a solitary incident and,
    therefore, the test of repeated-ness or continuity of the activity is fully E
    satisfied and the satisfaction of the detaining authority holding the detenu
    to be a "dangerous person" is not vitiated in any manner. [813-E-H; 814-A]

          2.1. Even an activity violating an ordinary legal provision may in a
    given case be a matter of public order. It is the magnitude of the activities
    and its effect on the even tempo of life of the society at large or with a section F
    of society that determines whether the activities can be said to be prejudicial
    to the maintenance of public order or the same amounted to a breach of law
    and order. The fall out and the extent and reach of the alleged activities must
    be of such a nature that they travel beyond the capacity of the ordinary law
    to deal with him or to prevent his subversive activities affecting the community
    at large or a large section of society. [814-E-G]                                  G

-        Mustakmiya Jabbarmiya Shaikh MM' Mehta v. Commissioner of Police,
    (1995] 3 sec 237, relied on.

        2.2. In the present case, the activities of the detenu by trying to extort
    money from ordinary citizens by putting them to fear of death and on their H
    810                    SUPREME COURT REPORTS                     [1999) 3 S.C.R.

A refusal to part with the money to drag them and torture them on public road
    undoubtedly affected the even tempo of life of the society and, therefore, such
    activities cannot be said to be a mere disturbance of law and order. The
    activities of the detenu are such that the detaining authority was satisfied
    that such activities amount to disturbance of public order and to prevent such
B   disturbance the order of detention was passed.[ 814-H; 815-A]

          3. The detenu had not made any grievance in the writ petition filed in
    the High Court that because of the failure of the Advisory Board in not
    indicating that the detenu was to be detained for more than three months
    there has been an infringement of Article 22(5) of the Constitution. That
C   apart, the opinion of the Advisory Board to the State Government, rejecting
    the representation of the detenu and expressing its opinion with regard to
    the existence of sufficient cause for the detention of the detenu is not a part
    of the record and what is pressed into service by the counsel in support of
    his argument is the mere communication from the Section Officer of the
    Home Department intimating the factum of the rejection of representation
D   by the Advisory Board. Therefore, a contention that the Advisory Board
    failed to discharge its obligation cannot be raised. In view of the counter
    affidavit filed in the present case that all the provisions have been duly
    complied with and in the absence of any supporting material there is no force
    in the contention raised alleging any infraction of the provision of law in the
E   opinion given by the Advisory Board and the said Board in rejecting the
    representation of the detenu. (815-B-G)

          A.K. Gopalan v. State of Madras, [1950) SCR 88 and John Martin v.
    State of West Bengal, [1975) 3 SCR 211, referred to.

F          4. If a representation is made by the detenu to the authorised officer
    for revoking or modifying the detention order then it would be certainly his
    constitutional obligation to consider the same and pass appropriate orders
    thereon and non-consideration would tantamount to violation of the
    Constitutional rights of a detenu under Article 22(5). But if a representation
G   is made to a specified authority and that specified authority in the given case
    is the State Government and the Advisory Board considers the same and
    disposes it of, then at that stage the question of the detaining authority
    considering the said representation even though not addressed to it does not
    arise. If the Gujarat prevention of Anti-Social Activities Act, 1985 is analysed
    it would appear that the legislature has circumscribed the powers of the
H   detaining authority by providing that an order of detention would lapse after
                           AMANULLA KHAN v. STATE                            811

    12 days from the passing of the order unless the State Government has A
    within the said period endorsed and ratified the same. But once the State
    Government approves the order of detention then on the same set of
    circumstances the detaining authority cannot revoke an order of detention.
    Though if subsequent circumstances change, the detaining authority may
    have the power of revocation in view of the provisions of the General Clauses
    Act. But when no representation is made to the detaining authority after the B
    order of detention passed by him is approved by the State Government
    indicating new set of circumstances requiring the detaining authority to
    consider his representation and on the other hand the representation is
    addressed to the Advisory Board, there is no requirement of law for that
    representation being also to be disposed of by the detaining authority and C
    such non-disposal would amount to violation of the Constitutional right of the
    detenu under Article 22(5) of the Constitution. (816-C-G]

          Kamleshkumar Ishwardas Patel v. Union of India, (1995] 4 SCC 51,
    referred to.
                                                                                    D
           5. The satisfaction of th.e detaining authority on an opinion that the
    activities are such which affects the maintenance of public order and as such
    it is necessary to put the detenu under detention cannot be interfered with
    by the court of law on mere assertion of the detenu. It is not required to be
    stated in the grounds of detention as to why the detaining authority has
    formed the opinion that the activities in question cannot be adequately dealt   E
    with under the provisions of the Bombay Police Act. (817-B-C]

        CRIMINAL APPELLATE JURISDICTION : Criminal Appeal No.
    618of1999.

         From the Judgment and Order dated 5.4.99 of the Gujarat High Court in      F
'   S.C.A. No. 6896 of 1998.

                                       WITH
         WRIT PETITION (CRL.) NO. 71 OF 1999 : Under Article 32 of the
    Constitution of India.                                             G
           Anil Kumar Nauriya, Shaukat A. Shaikh and A.P. Medh for the Appellant/
    Petitioner.

         Mrs. Rekha Pandey, Mrs. Hemantika Wahi and Ms. Anu Sawhey for the
    Respondents.                                                                    H
    812                    SUPREME COURT REPORTS                    [1999) 3 S.C.R.

A         The Judgment of the Court was delivered by

          PATTANAIK, J. Leave granted.

          The detenu, who has been detained by the detaining authority under
    Section 3(2) of the Gujarat Prevention of Anti-Social Activities Act, 1985 (for ·   >
B   short 'PASA') approached the Gujarat High Court for quashing the order of
    detention dated 13.8.98 in Special Civil Application No. 6896of1998. The said
    application was dismissed by the High Court by its Judgment dated 5.4.99 and
    the aforesaid order has been assailed in the Special Leave Petition in this
    court. The detenu has also filed an independent writ petition under Article
    32, challenging his detention under sfveral grounds. Both, the Special Leave
C   Petition and the Writ Petition having been heard together are being disposed
    of by this common Judgment.

           The detaining authority on being satisfied from the activities of the
    detenu that he belongs to a notorious gang and the members of the gang
D   hatched conspiracy to extort money from the people who are engaged in
    building construction business in the city by putting the people under threat
    of fear of death, was satisfied that the deten\l is a "dangerous person" within
    the meaning of Section 2[c] of the Act and the activities of the detenu and
    his gang members were such that for maintenance of public order it was
    necessary to detain the detenu and accordingly the order of detention against
E   the detenu was passed. Immediately after the order of detention was passed,
    the detenu approached the Gujarat High Court as already stated inter alia on
    the ground that the single activity of the detenu for which CR No. 36/97 under
    Sections 120-B, 387 and 506(2) IPC had been registered is not sufficient to
    hold him to be a "dangerous person" within the meaning of Section 2[c] of·
    the Act and as such the order of detention is vitiated. By the impugned
F   Judgment, the High Court came to the conclusion that the satisfaction of the
    detaining authority was not based solely on the incident culminating in
    registration of the criminal case under Sections 120-B, 387 and 506(2) of the
    Indian Penal Code but also the incidents that happened on 26.7.98 and 2.8.98
    about which the two witnesses have stated before the detaining authority and
G   therefore, the satisfaction of the detaining authority, holding the detenu to be
    a "dangerous person" cannot be said to be vitiated.

           Mr. Anil Kumar Nauriya, the learned counsel appearing for the detenu
    in this court reiterated the same contention namely that a single incident in
    which the detenu is alleged to be involved and for which the criminal case
H   had been registered will not be sufficient to hold the detenu to be a "dangerous
             AMANULLA KHAN v. STATE [PATTANAIK, J.]                      813
person" under Section 2[c] of the Act inasmuch as the expression "dangerous A
person" has been defined to be a person who either by himself or as a member
or leader of a gang, during a period of three successive years, habitually
commits, or attempts to commit or abets the commission of any of the offences
punishable under Chapter XVII of the Indian Penal Code or any of the
offences punishable under Chapter V of the Arms Act, 1959. In other words
according to the learned counsel unless the activities of the detenu considered B
by the detaining authority indicate that he has either habitually committed or
attempted to commit or abet the commission of offence, cannot be held to be
a "dangerous person" under Section 2[c] of the Act. The expression
"habitually" would obviously mean repeatedly or persistently. It supplies the
threat of continuity of the activities and, therefore, as urged by the learned C
counsel for the petitioner an isolated act would not justify an inference of
habitually commission of the activity. In this view of the matter the question
that requires adjudication is whether the satisfaction of the detaining authority
in the present case is based upon the isolated incident for which the criminal
 case was registered or there are incidents more than one which indicate a
 repeated and persistent activity of the detenu. If the grounds of detention is D
examined from the aforesaid stand point, it is crystal clear that apart from the
criminal case which had been registered against the detenu for having formed
a gang and hatched a conspiracy to extort money from the inno".ent citizens
by threatening them and keeping them under constant fear of death, the two
witnesses examined by the detaining authority narrated the incident that E
 happened on 26.7.98 and 2.8.98 in which the detenu was involved and on the
 first occasion a sum of Rs. 1 lac was demanded and when the person concerned
 refused, he was dr"gged and assaulted and on the second occasion a sum
of Rs. 50 thousand was demanded and on refusal, the persons were dragged
on the road and were beaten on the public road. It is not the grievance of
the detenu that the statements of the aforesaid two witnesses had not been F
appended to the grounds of detention or had not been mentioned in the
grounds of detention. In fact the grounds of detention clearly mention the
aforesaid state of affairs and there is no bar for taking these incidents into
consideration for the satisfaction of the detaining authority that whether the
person is a "dangerous person" within the ambit of Section 2[c] of the Act. G
We, therefore, fail to appreciate the first contention raised by the learned
counsel for the petitioner that the satisfaction of the detaining authority, that
the detenu is a "dangerous person", is based upon the solitary incidence in
respect of which a criminal case has already been registered. In our considered
opinion the detaining authority has considered the three different incidents
happened on three different dates and not a solitary incidence and, therefore, H
                                                                              \

     814                     SUPREME COURT REPORTS.                    [1999) 3 S.C.R.

A    the test of repeated-ness or continuity of the activity is fully satisfied and the
     satisfaction of the detaining authority holding the detenu to be a "dangerous
     person" is not vitiated in any manner. The contention of the learned counsel
     for the petitioner therefore stands rejected.

           Mr. Anil Kumar, the learned counsel then urged that even if the activities
 B   of the detenu were sufficient to hold him to be a "dangerous person" yet an
     order of detention can be passed under the Gujarat Act only with a view to
     prevent the detenu from acting in any manner prejudicial to the maintenance
     of the public order. By virtue of provisions contained in Sub-section (4) of
     Section_ 3 of the Act a person shall be deemed to be "acting in any manner
 C   prejudicial to the maintenance of public order" when such person is engaged
     in or is making preparation for engaging in any activities, whether as a
     bootlegger or dangerous person or drug offender or immoral traffic offender
     or property grabber, which affect adversely or are likely to affect adversely
     the maintenance of public order. Thus maintenance of public order is sine qua
     non for passing an order of detention under Section 3 of the Gujarat Act. But
 D   in the case in hand the alleged activities of the detenu are all in relation to
     violation of the normal criminal law and it has got no connection with the
     maintenance of public order and, therefore, the order of detention is vitiated.
     We are unable to appreciate this contention of the learned counsel for the
     detenu inasmuch as even an activity violating an ordinary legal provision may
 E   in a given case be a matter of public order. It is the magnitude of the activities
     and its effect on the even tempo of life of the society at large or with a section
     of society that determines whether the activities can be said to be prejudicial
     to the maintenance of public order or not. In Mustakmiya Jabbarmiya Shaikh
     v. MM Mehta, Commisioner ofPolice and Ors., [1995] 3 SCC 237, it has been
     held by this court that in order to bring the activities of a person within the
•F   expression of "acting in any manner prejudicial to the maintenance of public
     order", the fall out and the extent and reach of the alleged activities must be
     of such a nature that they travel beyond the capacity of the ordinary law to
     deal with him or to prevent his subversive activities affecting the community
     at large or a large section of society. It is the degree of disturbance and its
 G   impact upon the even tempo of life of the society or the people of a locality
     which determines whether the disturbance caused by such activity amounts
     only to a breach of"law and order" or it amounts to breach of"public order".
     Applying the ratio of the aforesaid decision to the· facts of the present case
     we find that the activities of the detenu by trying to extort money from
     ordinary citizens by putting them to fear of death and on their refusal to part
 H   with the money to drag them and tmture them on public road undoubtedly
                   AMANULLA KHAN v. STATE [PATTANAIK, J.]                       815

      affected the even tempo of life of the society and, therefore such activities A
      cannot be said to be a mere disturbance of law and order. In our considered
      opinion the activities of the detenu are such that the detaining authority was
•.    satisfied that such activities amount to disturbance of public order and to
      prevent such disturbance the order of detention was passed. We, therefore,
      do not find any substance in the second contention of the learned counsel B
     ,for the detenu. Mr. Anil Kumar then urged that the Advisory Board having
      not indicated that the detenu is to be detained for more than three months,
      has failed to discharge its constitutional obligation and there has been an
      infringement of Article 22(5) of the Constitution and in support of the same
      reliance has been placed on the decision of this court in A.K. Gopalan v. The
     State of Madras, [1950] SCR 88 and the decision of this Court in John Martin C
      v. The State of West Bengal, [1975] 3 SCR 21 l. At the outset it may be stated
     that the detenu had not made any such grievance in the writ petition that had
      been filed in the Gujarat High Court. That apart, the opinion of the Advisory
      Board to the State Government, rejecting the representation of the detenu and·
      expressing its opinion with regard to the existence of sufficient cause for the D
      detention of the detenu is not a part of the record and what is pressed into
      service by the learned counsel in support of his argument is the mere
      communication from the Section Officer of the Home Department dated 27th
      August, 1998, intimating the factum of the rejection of representation by the
      Advisory Board. Section 11 of the Act is the procedure for making reference
      to the Advisory Board and Section 12 provides the duties and obligation of E
      the Advisory Board on the basis of materials placed before it. Under Sub-
      section (2) of Section 12 it is the requirement of law that the report of the
      Advisory Board shall specify in a separate part thereof the opinion of the
     Advisory Board as to whether or not there is sufficient cause for the detention
      of the detenu and this opinion of the Advisory Board has been furnished i~ F
      the present case. We really fail to understand how a contention could be
      raised that the Advisory Board has failed to discharge its obligation and how
      the court would be entitled to examine the same without even the copy of the
      report of the Advisory Board being formed a part of the records of the present
      proceedings. In view of the counter affidavit filed in the present case that all G
      the provisions have been duly complied with and in the absence of any
      material to support the arguments advanced by the learned counsel, we do
      not find any force in the contention raised alleging any infraction of provision
      of law in the opinion given by the Advisory Board and the said Board in
      rejecting the representation of the detenu. This contention therefore, is devoid
      of force.                                                                        H
    816                    SUPREME COURT REPORTS                    [1999] 3 S.C.R.

A       The next contention raised by the learned counsel for the detenu is that
  even though the representation was made to the Advisory Board yet the
  detaining authority were also duty bound to consider the same as the detaining
  authority also could have revoked the order of detention and non-consideration
  of the representation by the detaining authority constitute an infraction of
  Article 22(5) of the Constitution and in support of this contention reliance has
B been placed on the decision of this Court in (1995]4 sec 51 Kamleshkumar
  lshwardas Patel etc. etc. v. Union of India & Ors. etc. etc. This contention
  to us appears to be based upon a mis-conception of the relevant provisions
  of the Act. Admittedly, the representation in question was made to the
  Advisory Board and not to the detaining authority. If a representation is made
C by the detenu to the authorised officer for revoking or modifying the detention
  order then it would be certainly his constitutional obligation to consider the
  same and pass appropriate orders thereon and non-consideration would
  tantamount to violation of Constitutional rights to a detenu under Article
  22(5). But if a representation is made to a specified authority and that specified
  authority in the given case is the State Government and the Advisory Board
D considers the same and disposes it of, then at that stage the question of the
  detaining authority considering the said representation even though not
  addressed to it does noL arise. If the Gujarat Prevention of Anti-Social Activities
  Act, 1985 is analysed it would appear that the legislature has circumscribed
  the powers of the detaining authority by providing that an order of detention
E would lapse after 12 days from the passing of the order unless the State
  Government has within the said period endorsed and ratified the same. Therefore
  within the aforesaid period of 12 days, the detaining authority has the power
  to revocation which he can exercise before the State Government ratifies the
  same. But once the State Government approves the order of detention then
  on the same set of circumstances the detaining authority cannot revoke an
F order of detention. Though if subsequent circumstances change, the detaining
  authority may have the power of revocation in view of the provisions of the
  General Clauses Act. But when no representation is made to the detaining
  authority after the order of detention passed by him is approved by the State
  Government indicating new set of circumstances requiring the detaining
G authority to consider his representation, and on the other hand the
  representation is addressed to the Advisory Board, we see no requirement of
  law for that representation being also to be disposed of by the detaining
  authority and such non-disposal would amount to violation of the Constitutional
  right of the detenu under Article 22(5) of the Constitution. This contention
  of the learned counsel for the petitioner is devoid of force. That apart, the
H detenu never raised this question before the High Court_ making any such
             AMANULLA KHAN v. STATE [PATTANAIK, J.]                      817
allegation. Another ground was raised by the learned counsel in this court A
to the effect that the grounds of dete!lJion no doubt indicated that the
activities are such that it cannot be dealt with by Bombay Police Act but no
reasons have been given and therefore, it is mere ipse dixit of the detaining
authority and on that score the order of detention is vitiated. We are also
unable to accept this contention. The satisfaction of the detaining authority
on consideration of the activities of the detenu and on forming an opinion B
that the activities are such which affects the maintenance of public order and
as such it is necessary to put the detenu under detention cannot be interfered
with by the court of law on mere assertion of the detenu. It is not required
to be stated in the grounds of detention as to why the detaining authority
has formed the opinion that the activities in question cannot be adequately C
dealt with under the provisions of Bombay Police Act. We see no infirmity
with the order of detention or with the satisfaction arrived at by the detaining
authority, requiring the detenu to be detained under the Act on that score.
We, therefore, have no hesitation to reject the said submission of the learned
counsel for the petitioner. In the aforesaid premises all the contentions raised
having failed, the Criminal Appeal by grant of Special leave arising out of the D
Judgment of Gujarat High Court as well as the Writ Petition filed under Article
32 of the Constitution, fail and are dismissed.

v.s.s.                                       Appeal and Petition dismissed.