MD. ASFAK ALAMversusTHE STATE OF JHARKHAND & ANR.

1184               [2023] 10
                SUPREME      S.C.R.REPORTS
                           COURT    1184 : 2023 INSC [2023]
                                                     660 10 S.C.R.


 A                              MD. ASFAK ALAM
                                          v.
                     THE STATE OF JHARKHAND & ANR.
                       (Criminal Appeal No(s). 2207 of 2023)
 B                                 JULY 31, 2023
            [S. RAVINDRA BHAT AND ARAVIND KUMAR, JJ.]
               Code of Criminal Procedure, 1973: s. 438 – Grant of
       anticipatory bail – Disentitlement to – Husband accused of s. 498A
       and various other provisions under the Penal Code, and under the
 C     Dowry Prohibition Act – Anticipatory bail application pending and
       no protection afforded to the husband – Grant of an interim order
       by the High Court directing the police not to arrest the husband
       during the pendency of his application u/s. 438 – Thereafter, the
       investigation was completed, charge sheet was filed and cognizance
 D     was taken by the Sessions Judge – Subsequently, order by the High
       Court denying anticipatory bail to the husband as also directed the
       husband to surrender and later, seek regular bail – Correctness of
       – Held: High Court erred in mechanically rejecting the anticipatory
       bail and in adopting such a casual approach – Husband co-operated
       with the investigation both before and after the grant of protection,
 E     till the filing of the chargesheet and the cognizance thereof – Thus,
       once the chargesheet was filed, there was no impediment on the
       part of the husband – High Court having regard to the nature of
       the offences, the allegations and the maximum sentence of the
       offences they were likely to carry, ought to have granted the bail –
 F     Thus, the impugned order rejecting bail set aside.
              Judicial directions: Issuance of – Guidelines on arrest –
       Offences u/s. 498A IPC and other offences punishable with
       imprisonment for term of seven years or less – Unnecessary arrest
       of the accused by the police officers, and Magistrate authorizing
 G     detention casually and mechanically – In view thereof, issuance of
       directions to all the courts ceased of proceedings to strictly follow
       the law laid down in Arnesh Kumar’s case– High Court to frame the
       directions in the aforesaid case, in the form of notifications and
       guidelines to be followed by the lower courts – Director General of
       Police in all States to ensure that strict instructions in terms of these
 H     directions are issued.
                                         1184
 MD. ASFAK ALAM v. THE STATE OF JHARKHAND & ANR.                              1185


      Arnesh Kumar v. State of Bihar and Another [2014] 8                     A
      SCR 128 – relied on.
      Lalita Kumari vs. Govt. of UP & Ors. [2013] 14 SCR
      713; Satender Kumar Antil v. Central Bureau of
      Investigation and Another [2022] 10 SCR 351;
      Siddharth v. State of Uttar Pradesh and Another (2022)                  B
      1 SCC 676; Sushila Aggarwal v. State (NCT of Delhi)
      [2020] 2 SCR 1; Gurbaksh Singh Sibbia v State of
      Punjab [1980] 3 SCR 383 – referred to.
                         Case Law Reference
[2013] 14 SCR 713                  referred to                Para 3          C
[2022] 10 SCR 351                  referred to                Para 7
(2022) 1 SCC 676                   referred to                Para 7
[2020] 2 SCR 1                     referred to                Para 10
[1980] 3 SCR 383                   referred to                Para 10         D
[2014] 8 SCR 128                   relied on                  Para 12, 13
      CRIMINAL APPELLATE JURISDICTION: Criminal Appeal No.
2207 of 2023.
      From the Judgment and Order dated 18.01.2023 of the High Court
                                                                              E
of Jharkhand at Ranchi in ABA No. 5771 of 2022.
      Smarhar Singh, Ms. Shweta Kumari, Chinmay Kumar, Mohd.
Asim, Manoj Kumar, Rishi Raj, Advs. for the Appellant.
       Vishnu Sharma, Ms. Madhusmita Bora, Pawan Kishore Singh,
Dipankar Singh, Mrs. Anupama Sharma, Rajesh Singh Chauhan, Advs.              F
for the Respondents.
      The Judgment of the Court was delivered by
      S. RAVINDRA BHAT, J.
       1. On the previous date of hearing, i.e., on 26.07.2023, this Court
heard the counsel for the parties to the Special Leave Petition. But having   G
regard to the peculiar nature of the impugned order, kept this matter
back for orders to be pronounced today.
       2. Special leave granted. The appellant is aggrieved by the denial
of anticipatory bail and a further direction to surrender before the Court
and seek regular bail.                                                        H
1186             SUPREME COURT REPORTS                        [2023] 10 S.C.R.


 A            3. The necessary facts are that the appellant and the second
       respondent (hereafter referred to as “husband and wife”, respectively)
       were married on 5.11.2020. The appellant alleges that the respondent-
       wife was not happy and her father used to interfere and pressurize him
       and his family. This led to complaints lodged against the wife’s family
       for threatening the appellant’s family. It is alleged that on 02.04.2022,
 B
       without complying with the directions of Five Judge Bench in Lalita
       Kumari vs. Govt. of UP &Ors.,1 the concerned Police Station2, registered
       the First Information Report (FIR) against the appellant and his brother
       and others, complaining of commission of offences under Section 498A,
       323/504/506 of the Indian Penal Code, 1860 (IPC) and Section 3 & 4 of
 C     the Dowry Prohibition Act.
              4. The appellant apprehended arrest and applied for anticipatory
       bail under Section 438 of the Code of Criminal Procedure, 1973 (CrPC)
       before the Sessions Judge, Gumla, Jharkhand; that application was
       dismissed on 28.06.2022. The appellant then approached the Jharkhand
 D     High Court seeking anticipatory bail on 05.07.2022. All this while, the
       appellant cooperated with the investigation, and after its completion, a
       charge-sheet was filed before the Sessions Judge.
              5. Cognizance was taken on 01.10.2022 by the Sessions Court.
       The Sessions Court noted in this order that on 08.08.2022, the High
 E     Court had protected the appellant with the interim order directing that he
       may not be arrested. When the application was heard by the High Court
       next on 18.01.2023, without adverting, the pending anticipatory bail was
       rejected, and the High Court went on to direct the appellant to surrender
       before the competent Court and seek regular bail. The relevant extracts
       of the High Court impugned order3 read as follows:
 F
              “Considering the facts and circumstances of the case and
              rival contentions of the learned counsel, I found that there
              are serious allegations against the petitioner that the informant
              is also being subjected to cruelty by lodging criminal cases
              against the family members just after institution of this case.
 G
              Considering the rival submission of learned counsels and
              materials available against petitioner as well as gravity of

       1
         [2013] 14 SCR 713.
       2
         Gumla Mahila P.S. in Case No. 07/2022.
       3
 H       A.B.A. No. 5771 of 2022 dated 18.01.2023
    MD. ASFAK ALAM v. THE STATE OF JHARKHAND & ANR.                           1187
                 [S. RAVINDRA BHAT, J.]

       allegations, I am not inclined to grant privilege of anticipatory      A
       bail to the petitioner, which stands rejected.
       Petitioner is directed to surrender before the court below and
       pray for regular bail, the learned court below shall consider
       the same on its own merits, without being prejudiced by this
       order.”                                                                B
        6. The appellant contends that importance has been placed by the
Constitution on the value of personal liberty, the necessity for arrest
before filing of the charge sheet occurs when the accused’s custodial
investigation or interrogation is essential or in certain cases involving
serious offences where the accused’s possibility of influencing witnesses     C
cannot be ruled out. Learned counsel contends that an arrest can be
made does not mandate that it ought to be made in every case and
emphasised that the distinction between the existence of the power (to
arrest) and the justification of exercising it must always be kept in mind.
It is thus argued that the procedural requirements of Section 41A of the
CrPC must always be followed in this regard.                                  D

       7. Learned counsel relied upon the decisions of this Court in
Arnesh Kumar v. State of Bihar and Another4, Satender Kumar Antil
v. Central Bureau of Investigation and Another 5 and Siddharth v.
State of Uttar Pradesh and Another6 to underline the submissions and
also highlighted that it is only if the Investigating Officer believes that   E
the accused may abscond or disobey summons then only, he or she
needs to be taken into custody.
        8. Learned counsel on behalf of the State submitted that the mere
fact that a charge sheet is filed would not per se entitle an accused to
the grant of anticipatory bail, which always remains discretionary. The       F
Court always weighs the possibility of an accused [depending on his
past conduct] of influencing witnesses or otherwise tampering with
evidence. It was highlighted that the respondent, who is a complainant in
this case, had alleged harassment on a regular basis by the appellant and
his relatives at the matrimonial home just about one and a half months        G
after their marriage and that she had even been threatened with loss of
life. It was highlighted that according to the complainant, the threat

4
  [2014] 8 SCR 128.
5
  [2022] 10 SCR 351.
6
  (2022) 1 SCC 676.                                                           H
1188               SUPREME COURT REPORTS                        [2023] 10 S.C.R.


 A     extended to the one that she would be injected in such a manner that
       medical evidence would disclose that she had died of a heart attack.
                Analysis
              9. This court has emphasised the values of personal liberty in the
       context of applying discretion to grant bail. It has been ruled, in a long
 B     line of cases that ordinarily bail ought to be granted and that in serious
       cases – which are specified in the provisions of the CrPC (Section 437)
       which involve allegations relating to offences carrying long sentences or
       other special offences, the court should be circumspect and careful in
       exercising discretion. The paramount considerations in cases where bail
 C     or anticipatory bail is claimed are the nature and gravity of the offence,
       the propensity or ability of the accused to influence evidence during
       investigation or interfere with the trial process by threatening or otherwise
       trying to influence the witnesses; the likelihood of the accused to flee
       from justice and other such considerations. During the trial, the court is
       always in control of the proceedings, and it is open for it to impose any
 D     condition which it deems necessary to ensure the accused’s presence
       and participation in the trial. The court must, in every case, be guided by
       these overarching principles.
              10. In the five judge Bench decision of Sushila Aggarwal v.
       State (NCT of Delhi)7, this court had occasion to review past decisions,
 E     including considering the judgment in Gurbaksh Singh Sibbia v State
       of Punjab8 and decide whether imposition of conditions limiting the order
       of pre-arrest bail, particularly when charge-sheet is filed, is warranted.
       The court held, inter alia, in its judgment (M.R. Shah, J) that:
                “7.6. Thus, considering the observations made by the
 F              Constitution Bench of this Court in Gurbaksh Singh
                Sibbia [Gurbaksh Singh Sibbia v. State of Punjab, (1980) 2
                SCC 565 : 1980 SCC (Cri) 465] , the court may, if there are
                reasons for doing so, limit the operation of the order to a
                short period only after filing of an FIR in respect of the matter
 G              covered by order and the applicant may in such case be
                directed to obtain an order of bail under Sections 437 or 439
                of the Code within a reasonable short period after the filing
                of the FIR. The Constitution Bench has further observed that
       7
           2020 (2) SCR 1
       8
 H         1980] 3 SCR 383
 MD. ASFAK ALAM v. THE STATE OF JHARKHAND & ANR.                            1189
              [S. RAVINDRA BHAT, J.]

       the same need not be followed as an invariable rule. It is           A
       further observed and held that normal rule should be not to
       limit the operation of the order in relation to a period of time.
       We are of the opinion that the conditions can be imposed by
       the court concerned while granting pre-arrest bail order
       including limiting the operation of the order in relation to a
                                                                            B
       period of time if the circumstances so warrant, more
       particularly the stage at which the “anticipatory bail”
       application is moved, namely, whether the same is at the stage
       before the FIR is filed or at the stage when the FIR is filed
       and the investigation is in progress or at the stage when the
       investigation is complete and the charge-sheet is filed.             C
       However, as observed hereinabove, the normal rule should
       be not to limit the order in relation to a period of time.”
       The concurring view expressed (by the author of this judgment)
was:
       “85.3. Section 438 CrPC does not compel or oblige courts to          D
       impose conditions limiting relief in terms of time, or upon filing
       of FIR, or recording of statement of any witness, by the police,
       during investigation or inquiry, etc. While weighing and
       considering an application (for grant of anticipatory bail)
       the court has to consider the nature of the offence, the role of     E
       the person, the likelihood of his influencing the course of
       investigation, or tampering with evidence (including
       intimidating witnesses), likelihood of fleeing justice (such as
       leaving the country), etc. The courts would be justified —
       and ought to impose conditions spelt out in Section 437(3)
       CrPC [by virtue of Section 438(2)]. The necessity to impose          F
       other restrictive conditions, would have to be weighed on a
       case-by-case basis, and depending upon the materials
       produced by the State or the investigating agency. Such special
       or other restrictive conditions may be imposed if the case or
       cases warrant, but should not be imposed in a routine manner,        G
       in all cases. Likewise, conditions which limit the grant of
       anticipatory bail may be granted, if they are required in the
       facts of any case or cases; however, such limiting conditions
       may not be invariably imposed.
                *********************************                           H
1190      SUPREME COURT REPORTS                       [2023] 10 S.C.R.


 A     85.4. Courts ought to be generally guided by the
       considerations such as nature and gravity of the offences,
       the role attributed to the applicant, and the facts of the case,
       while assessing whether to grant anticipatory bail, or refusing
       it. Whether to grant or not is a matter of discretion; equally
       whether, and if so, what kind of special conditions are to be
 B
       imposed (or not imposed) are dependent on facts of the case,
       and subject to the discretion of the court.
       85.5. Anticipatory bail granted can, depending on the conduct
       and behaviour of the accused, continue after filing of the
       charge-sheet till end of trial. Also orders of anticipatory bail
 C     should not be “blanket” in the sense that it should not enable
       the accused to commit further offences and claim relief. It
       should be confined to the offence or incident, for which
       apprehension of arrest is sought, in relation to a specific
       incident. It cannot operate in respect of a future incident that
 D     involves commission of an offence.
                *********************************
       87. The history of our Republic — and indeed, the Freedom
       Movement has shown how the likelihood of arbitrary arrest
       and indefinite detention and the lack of safeguards played
 E     an important role in rallying the people to demand
       Independence. Witness the Rowlatt Act, the nationwide protests
       against it, the Jallianwala Bagh Massacre and several other
       incidents, where the general public were exercising their right
       to protest but were brutally suppressed and eventually jailed
 F     for long. The spectre of arbitrary and heavy-handed arrests
       : too often, to harass and humiliate citizens, and oftentimes,
       at the interest of powerful individuals (and not to further any
       meaningful investigation into offences) led to the enactment
       of Section 438. Despite several Law Commission Reports and
       recommendations of several committees and commissions,
 G     arbitrary and groundless arrests continue as a pervasive
       phenomenon. Parliament has not thought it appropriate to
       curtail the power or discretion of the courts, in granting pre-
       arrest or anticipatory bail, especially regarding the duration,
       or till charge-sheet is filed, or in serious crimes. Therefore, it
 H     would not be in the larger interests of society if the Court, by
 MD. ASFAK ALAM v. THE STATE OF JHARKHAND & ANR.                             1191
              [S. RAVINDRA BHAT, J.]

      judicial interpretation, limits the exercise of that power : the       A
      danger of such an exercise would be that in fractions, little
      by little, the discretion, advisedly kept wide, would shrink to
      a very narrow and unrecognisably tiny portion, thus
      frustrating the objective behind the provision, which has stood
      the test of time, these 46 years.”
                                                                             B
       11. The decisions cited by counsel are useful and valuable guides
with respect to the powers of the police, the discretion and the duties of
the court in several kinds of cases, including those relating to the
matrimonial offences such as 498A of IPC, and other cases. In Arnesh
Kumar (supra), it was held that:
                                                                             C
      “9. From a plain reading of the aforesaid provision, it is
      evident that a person accused of an offence punishable with
      imprisonment for a term which may be less than seven years
      or which may extend to seven years with or without fine,
      cannot be arrested by the police officer only on his satisfaction
      that such person had committed the offence punishable as               D
      aforesaid. A police officer before arrest, in such cases has to
      be further satisfied that such arrest is necessary to prevent
      such person from committing any further offence; or for
      proper investigation of the case; or to prevent the accused
      from causing the evidence of the offence to disappear; or              E
      tampering with such evidence in any manner; or to prevent
      such person from making any inducement, threat or promise
      to a witness so as to dissuade him from disclosing such facts
      to the court or the police officer; or unless such accused
      person is arrested, his presence in the court whenever required
      cannot be ensured. These are the conclusions, which one may            F
      reach based on facts. The law mandates the police officer to
      state the facts and record the reasons in writing which led
      him to come to a conclusion covered by any of the provisions
      aforesaid, while making such arrest. The law further requires
      the police officers to record the reasons in writing for not           G
      making the arrest. In pith and core, the police officer before
      arrest must put a question to himself, why arrest? Is it really
      required? What purpose it will serve? What object it will
      achieve? It is only after these questions are addressed and
      one or the other conditions as enumerated above is satisfied,
                                                                             H
1192             SUPREME COURT REPORTS                            [2023] 10 S.C.R.


 A            the power of arrest needs to be exercised. In fine, before arrest
              first the police officers should have reason to believe on the
              basis of information and material that the accused has
              committed the offence. Apart from this, the police officer has
              to be satisfied further that the arrest is necessary for one or
              the more purposes envisaged by sub-clauses (a) to (e) of clause
 B
              (1) of Section 41 CrPC.”
              The court also issued valuable directions to be followed by the
       police authorities and the courts, in all cases where the question of grant
       of bail arises. Further, the court had underlined the centrality to personal
       liberty in its decision in Siddharth (supra):
 C
              “10. We may note that personal liberty is an important aspect
              of our constitutional mandate. The occasion to arrest an
              accused during investigation arises when custodial
              investigation becomes necessary or it is a heinous crime or
              where there is a possibility of influencing the witnesses or
 D            accused may abscond. Merely because an arrest can be made
              because it is lawful does not mandate that arrest must be made.
              A distinction must be made between the existence of the power
              to arrest and the justification for exercise of it. If arrest is
              made routine, it can cause incalculable harm to the reputation
 E            arid self-esteem of a person. If the investigating officer has
              no reason to believe that the accused will abscond or disobey
              summons and has, in fact, throughout cooperated with the
              investigation we fail to appreciate why there should be a
              compulsion on the officer to arrest the accused.”

 F             12. In the present case, this Court is of the opinion that there are
       no startling features or elements that stand out or any exceptional fact
       disentitling the appellant to the grant of anticipatory bail. What is important
       is not that the matrimonial relationship soured almost before the couple
       could even settle down but whether allegations levelled against the
       appellant are true or partly true at this stage, which at best would be
 G     matters of conjecture, at least for this Court. However, what is a matter
       of record is that the time when the anticipatory bail was pending can be
       divided into two parts - firstly, when there was no protection afforded to
       him through any interim order (between April 2022 and 08.08.2022).
       Secondly, it was on 08.08.2022 that the High Court granted an order
 H     effectively directing the police not to arrest him during the pendency of
 MD. ASFAK ALAM v. THE STATE OF JHARKHAND & ANR.                                1193
              [S. RAVINDRA BHAT, J.]

his application under Section 438 of the CrPC. Significantly, the               A
investigation was completed, and chargesheet was filed after 08.08.2022,
and in fact cognizance was taken on 01.10.2022 by the Sessions Judge.
These factors were of importance, and though the High Court has noticed
the factors but interpreted them in an entirely different light. What appears
from the record is that the appellant cooperated with the investigation
                                                                                B
both before 08.08.2022, when no protection was granted to him and
after 08.08.2022, when he enjoyed protection till the filing of the
chargesheet and the cognizance thereof on 01.10.2022. Thus, once the
chargesheet was filed and there was no impediment, at least on the part
of the accused, the court having regard to the nature of the offences, the
allegations and the maximum sentence of the offences they were likely           C
to carry, ought to have granted the bail as a matter of course. However,
the court did not do so but mechanically rejected and, virtually, to rub salt
in the wound directed the appellant to surrender and seek regular bail
before the Trial Court. Therefore, in the opinion of this court, the High
Court fell into error in adopting such a casual approach. The impugned
                                                                                D
order of rejecting the bail and directing the appellant, to surrender and
later seek bail, therefore, cannot stand, and is hereby set aside. Before
parting, the court would direct all the courts ceased of proceedings to
strictly follow the law laid down in Arnesh Kumar (supra) and reiterate
the directions contained thereunder, as well as other directions:
      “I. 11. Our endeavour in this judgment is to ensure that police           E
          officers do not arrest the accused unnecessarily and Magistrate
          do not authorize detention casually and mechanically. In order
          to, ensure what we have observed above, we give the following
          directions:
          11.1. All the State Governments to instruct its police officers       F
          not to automatically arrest when a case under Section 498-A
          IPC is registered but to satisfy themselves about the necessity
          for arrest under the parameters laid down above flowing from
          Section 41 CrPC;
          11.2. All police officers be provided with a check list containing    G
          specified sub-clauses under Section 41(1)(b)(ii);
          11.3. The police officer- shall forward the check list duly filled
          and furnish the reasons and materials which necessitated the
          arrest, while forwarding/producing the accused before the
          Magistrate for further detention;                                     H
1194      SUPREME COURT REPORTS                          [2023] 10 S.C.R.


 A        11.4. The Magistrate while authorizing detention of the accused
          shall peruse the report furnished by the police officer in terms
          aforesaid and only after recording its satisfaction, the Magistrate
          will authorize detention;
          11.5. The decision not to arrest an accused, be forwarded to
 B        the Magistrate within two weeks from the date of the institution
          of the case with a copy to the Magistrate which may be
          extended by the Superintendent of Police of the district for the
          reasons to be recorded in writing;
          11.6. Notice of appearance in terms of Section 41-A CrPC be
 C        served on the accused within two weeks from the date of
          institution of the case, which may be extended by the
          Superintendent of Police of the district for the reasons to be
          recorded in writing;
          11.7. Failure to comply with the directions aforesaid shall apart
 D        from rendering the police officers concerned liable for
          departmental action, they shall also be liable to be punished for
          contempt of court to be instituted before the High Court having
          territorial jurisdiction.
          11.8. Authorizing detention without recording reasons as
 E        aforesaid by the Judicial Magistrate concerned shall be liable
          for departmental action by the appropriate High Court.
          12. We hasten to add that the directions aforesaid shall not
          only apply to the case under Section 498-A IPC or Section 4
          of the Dowry Prohibition Act, the case in hand, but also such
 F        cases where offence is punishable with imprisonment for a
          terms which may be less than seven years or which may extend
          to seven years, whether with or without fine.”
       II. The High Court shall frame the above directions in the form
           of notifications and guidelines to be followed by the Sessions
           courts and all other and criminal courts dealing with various
 G
           offences.
       III. Likewise, the Director General of Police in all States shall
           ensure that strict instructions in terms of above directions are
           issued. Both the High Courts and the DGP’s of all States shall
           ensure that such guidelines and Directives/Departmental
 H
 MD. ASFAK ALAM v. THE STATE OF JHARKHAND & ANR.                                 1195
              [S. RAVINDRA BHAT, J.]

             Circulars are issued for guidance of all lower courts and police    A
             authorities in each State within eight weeks from today.
        IV.Affidavits of compliance shall be filed before this court within
           ten weeks by all the states and High Courts, though their
           Registrars.
       13. The appeal is accordingly allowed in the above terms. The             B
appellant is directed to be enlarged on bail subject to such terms and
conditions that the Trial Court may impose. The High Courts and the
Police Authorities in all States are required to comply with the above
directions in the manner spelt out in the para above, within the time
frame mentioned.                                                                 C

Nidhi Jain                                                     Appeal allowed.




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                                                                                 E




                                                                                 F




                                                                                 G




                                                                                 H