Holding

Initiation of contempt proceedings occurs only when the court, after forming a prima facie case, issues a notice calling the alleged contemner to show cause why he should not be punished; the order dated 6 January 1988 satisfied this, so the limitation period had not expired.

Summary

O.P. Jaiswal obtained a court order that the Nagar Mahapalika would not demolish his construction pending a writ petition. The Mahapalika demolished the structure on 11 January 1987, prompting Jaiswal to seek contempt proceedings under Section 12 of the Contempt of Courts Act, 1971. The Allahabad High Court issued show‑cause notices on 15 January 1987 and again on 6 January 1988, the latter directing the respondents to show cause why they should not be punished for disobeying the court’s undertaking. The High Court later held that merely issuing a show‑cause notice did not amount to "initiation" of contempt proceedings, so the one‑year limitation under Section 20 was deemed to have expired and the contempt application was dismissed. On appeal, the Supreme Court examined the meaning of "initiation" and held that initiation occurs only when the court, having formed a prima facie case, calls the alleged contemner to show cause for punishment; the 6 January 1988 order satisfied this test, making the initiation timely and the limitation bar inapplicable. Consequently, the High Court’s dismissal was set aside and the contempt proceedings were restored.

Issues considered

What constitutes "initiation of proceedings for contempt" under Section 20 of the Contempt of Courts Act, 1971?
Does the issuance of a show‑cause notice amount to initiation of contempt proceedings?
Was the High Court correct in holding that the limitation period had expired, thereby barring the contempt application?

Legislation cited

Contempt of Courts Act, 1971s. 12, s. 17, s. 20
Limitation Act

Subjects

contempt of courtlimitation periodinitiation of contempt proceedingsContempt of Courts Actshow cause noticewrit petitionjudicial undertaking

Judgment

A OM PRAKASH JAISWAL
v.
D.K..MIITAL AND ANR.

FEBRLARY 22, 20GO
B
(K.T. THOMAS A."ID R.C. LAHOTI, JJ.]

Contempt of Courts Act, 1971-Section 2o--Limitation-Contempt
proceedings-Initiation of-Held, proceedings can be said to have been in-
C itiated only after the court makes a prima facie opinion. 'Initiation', meaning
of

The appellant filed an application before tbe High Court seehlng
initiation of contempt proceedings against the respondents alleging that
the respondents had demolished the construction made by the appellant
D during the pendency of the writ petition and had, thus, violated the
undertaking. given to the High Court by their counsel on 19.12.1986 to the
effect that the "Nagur Mahapalika will not disturb or demolish the con-
struction in question made by the petitioner till the disposal of the writ
petition". The said construction was demolished on 11.1.1987.

E The High Court on 15.1.1987 passed an order issuing show cause
notice to opposite parties as to why contempt proceedings should not be
initiated against them. The respondents appeared before the Court and
filed their reply.

F On 16.12.1987, the High Court, taking into account the fact that the
matter would become barred by limitation after 11.1.1998 in view of the
provision of Section 20 of the Contempt of Courts Act, 1971, issued notices
to the respondents to show cause as to why they should not be punished
for disobeying the order of the Court. This order was, however, not signed
G by the Presiding Judge.

On 6.1.1998, when the matter came up for hearing before the High
Court, the High Court passed an order recording the fact that the counsel
appearing for the contemnor agreed that notices be issued to show cause
why the respondents be not punished for disobeying the order dated
H 19.2.1986.
1064
O.P. JAISWAL v. D.K. MITIAL 1065

On 23.11.1998, the High Court dismissed the application of the A
appellant for initiation of contempt proceedings on the ground that it was
barred by limitation pr~scribed under Section 20 of the Contempt of
Courts Act, 1971 as mere issuing of show cause notice did not amount to
"initiation of proceedings". Hence this appeal.

Allowing ti.le appeal, this Court B

HELD : 1.1. Filing of an application or petition for initiating
proceedings for contempt or a mere receipt of such reference by the court
does n1Jt amount to initiation of the proceedings by court. On receiving
any such document it is usual with the courts to commence some proceed- C
lngs by employing an expression such as 'admit', 'rule', 'issue notice' or
'issue notice to show cause whj' proceedings for contempt be not initiated'.
ln all such cases the notice is issued either in routine or because the court
has not ytt felt satisfied that a case for initiating any proceedings for
contempt has been made out and therefore the court calls upon the
opposite part to admit or deny the allegations made or to collect more D
facts so as to satisfy itself if a case for initiating proceedings for contempt
was made out. Such a notice is certainly anterior to initiation of contempt
proceedings. (1077-G-H; 1072-B]

1.2. lt is only when the court has formed an opinion that a prirna facie E
case fo• initiating proceedings for contempt is made out and that the
respondents or the alleged contemners should be called upon to show cause
why they should not be punished; then the court can be said to have
initiated proceedings for contempt. It is the result of a conscious applica-
tion of the mind of the court to the facts and the material before it. (1072-C]
F
Baradakanta Misra v. Justice Gatikrushna Misra, Chief Justice of the
Orissa High Court, (1975) 3 SCC 535; Advocate General, A.P. v. A. V. Kotes-
wara Rao, (1984) Cri lJ 1171; Kishan Singh v. Hon'ble Mr. T. Anjaiah, Chief
Minister, (1985) Cri W 1428 and Dineshbhai A. Parikh v. Kripalu Coop.
Housing Society, Nagarve~ Ahrnedabad and Ors., AIR (1980) Guj. r94, G
referred to.

Words and Phrases, Permanent Edition; Black's Law Dictionary, 6th
Edn. 1, referred to.
'
1.3. Initiation of proceedings for contempt based on application of H
1066 SCPREME COURT REPORTS [2000] 1 S.C.R.
A mind by the court to the facts of the case and the material before it must
take place within a period of one year from the date on which the contempt
is alleged to have been committed failing which the jurisdiction to initiate
any proceedings for contempt is lost. [1072-D]

2.1. Availability of an independent judiciary and an atmosphere
B wherein Judges may act independently and fearlessly is the source of exist-
ence of civilisation in society. The writ issued by the court must be obeyed.
It is the binding efficacy attaching with the commands of the court and th~
respect for the orders of the court which deter the aggrieved persons from
taking the law in their own hands because they are assured of an efficacious
C civilised method of settlement of disputes being available to them wherein
they shall be heard and their legitimate grievances redeemed. Any act or
omission which undermines the dignity of the Court is therefore viewed
with concern by the society and the court treats it as an obligation to
zealously guard against any onslaught on its dignity. [1072-G-H]

D Re Clements, Republic of Costa' Rica v. Erlanger, [1876] 46 LJ. 37,
referred to.

2.2. Source of initiation of contempt proceedings may be suo motu, on
a reference being made by the Advocate General or any other person with the
consent in writing of the Advocate General or on reference made by a subor-
E
dinate court in case of criminal contempt. A private party or a litigant may
also invite the attention of the court to such facts as may persuade the court
in initiating proceedings for contempt. However, such person filing an ap-
plication or petition before the court does not become a complainant or
petitioner in the proceedings. He is just an informer or relator. His duty
F ends with the facts being brought to the notice of the court. It is thereafter for
the court to act on such information or not to act.though the private party or
litigant moving the court may at the discretion of the court continue to
render its assistance during the course of proceedings. [1073-H; 1074-A-B]

23. The jurisdiction to punish for contempt is summary but the
G consequences are serious. That is why the jurisdiction to initiate proceed-
ings in contempt as also the jurisdiction to punish for contempt in spite of
a case of contempt having been made out are both discretionary with the
. court. Contempt generally and criminal contempt certainly is a matter
between the court and the alleged contemner. No one can compel or demand
H as of right initiation of proceedings for contempt. [1073-F]
O.P.JAISWALv. DXMITIAL[R.C. LAHOTI,J.] 1067

2.4. A jurisdictio11 in contempt shall be exercised only on clear case A
having been made out. Mere technical contempt may not be taken note of.
It is not personal glorification of a Judge in his office but an anxiety to
maintain the efficacy of the justice administration system effectively which
dictates the conscience of a Judge to move or not to move in contempt
jurisdiction. Often an apology is accepted and the felony condoned if the B
Judge feels convinced of the genuineness of the apology and the prestige
of the court having been restored. (1073-G]

3. The order dated 6.1.1988 issuing notices to the opposite parties to
show cause why they be not punished for disobeying the order dated
9.12.1986 shows and it will be assumed that the Court had applied its mind C
to the facts and material placed before it and had formed an opinion that
a case for initiating proceedings for contempt was made out. The proceed·
ings were therefore initiated on 6.l.1988 and were within the limitation
prescribed by Section 20 of the Contempt of Cou11s Act, 1971. (1074-E·G]

CIVIL APPELLATE JlJRISDICTION : Civil Appeal No. 1632 of D
1990.

From the Judgment and Order dated 23.11.89 of the Allahabad High
Court in M.C.A. No. 39 of 1987.

Ms. Kamini Jaiswal, Rajiv Bansal and Arvind Singh for the Appel- E
lant.

Rakesh Uttemchandra Upadhyay for the Respondents.

The Judgment of the Court was delivered by
F
R.C. LAHOTI, J. This appeal is directed against an order dated
23.11.1989 passed by the High Court of Allahabad whereby proceedings
under Section 12 of the Contempt of Courts Act, 1971 (hereinafter 'the
Act', for short) have been directed to be dropped as barred by Section 20
of the Act.
G
We are not concerned with the merits of the allegations made by the
appellant and denied by the respondents, constituting the gravamen of
alleged contempt. We are concerned only with the question whether the
bar created by Section 20 of the Act was attracted to the facts of the case
or not. H
1068 SUPREME COVRT REPORTS [2000] 1 S.C.R

A It appears that the appellant was sought to be dispossessed by the
Nagar Mahapalika, Allahabad and Allahabad Development Authority by
demolishing and removing certain construction existing over a piece of
land. The appellant filed a Civil Miscellaneous Writ Petition No.20471 of
1986 before the High Court of Allahabad seeking a writ or direction
commanding the respondents not to dispossess or interfere with the pos-
B session of the appellant. On 19.12.1986 Shri AK. Mohiley, tht: lt:arned
counsel appearing on behalf of the respondents gave an undertaking before
the Court in the following terms :

'"Shri AK. Mohiley, counsel for Nagar Mahapalika, Allahabad
c undt:rtakes before us that the Nagar Mahapalika will not disturb
or demolish the construction in question made by the petitioner
till the disposal of tht: Writ Petition.

The undertaking is placed on record. The application accordingly
dismissed.,.
D
According to the appellant, the employees of the respondents
demolished the appellant's construction in the morning of 11.1.1987. The
appellant moved an application before the Court seeking initiation of
proceedings under Section 12 of the Act against the respondents. On
E 15 .1.1987 the Court passed the following order :-

"Issue show cause notice to opposite parties as to why contempt
proceedings should not be initiated against them for defiance of
order dated 19.12.1986 passed by this court in civil writ petition
no. 20471 of 1988, O.P. Jaiswa/ v. Nagar Mahapalika and Others.
F List it for orders on 4.2.87 ."

(underlining by us)

The respondents, i.e., the alleged contemners appeared before the
G Court and filed thdr reply. On 16.12.1987 when the matter came up for
hearing before the Court, the Court passed the following order :-

"Apparently till now notice to show cause has been issued to
the opposite parties as to why proceedings be not initiated.
Manifest!) the application would become non maintainable after
H 11.1.1988.
O.P. JAISWAL v. D.K. MITIAL [R.C. LAHOTI, J.] 1069

The learned Advocate General has very fairly conceded that in A
view of the matter having been heard on several dates the notices
to show cause to the opposite parties as to why they should not be
punished for disobeying the order of this court dated 19.12.1986
can be issued."

It appears that the abovesaid order, though it was dictated in the B
Court, was not signed by the presiding Judge. The attention of the Court
having been invited to this fact, on 6.1.1988 the Court passed the following
order:-

"6.1.1988 c
The case could not be taken up on the date fixed i.e. 5.1.1988.
Learned counsel for the opposite party, Shri Ashok Mohiley agrees
that the notices be issued in view of statement earlier made by the
learned Advocate General fairly conceding that the notices be
issued to show cause why the OPs be not punished to disobeying the
order dated 19.12.1986. Issue notice to the 0.Ps. However, notices D
be not sent to the opposite parties as Shri Ashok Mohiley accepts
them on their behalf. List for hearing on 28.1.1988.

Sci!- Judge."
(underlining by us) E
On 23.11.1989 the High Court, Without going into the merits of the
allegations made, formed an opinion that mere issuing of notice tor show-
ing cause against did not amount to 'initiation of proceedings' under the
Act and inasmuch as the proceedings were not initiated till then the bar
enacted by Section 20 of the 'Act was attracted and therefore the applica- F
tion filed by the appellant was liable to the rejected.

The short question arising for decision is whether the order dated
6.1.1988 amounts to initiation of proceedings for contempt.

Section 20 of the Act reads as under:- G

"20. Limitation for actions for contempt. - No Court shall
initiate any proceedings for contempt, either on its own motion or
otherwise, after the expiry of a period of one year from the date
on which the contempt is alleged to have been committed." H
1070 SVPREME COURT REPORTS (2000] 1 S.C.R.
A The expression - 'initiate an~' proceedings for contempt' is not
defined in the Act. Words and Phrases, (Permanent Edition) defines
'initiate' to mean -an introductory step or action, a first moVt:; beginning;
start, and 'to initiate' as meaning - to commence. Black's Law Dictionary
(Sixth Edition) defines 'initiate' to mean commence; start; originate; intro-
B duce; inchoate. In Section 20, the word 'initiate' qualifies 'any proceedings
for contempt'. It is not the initiation of just any proceedings; the proceed-
ings initiated have to be proceedings for contempt.

The expression was dealt with by this Court in Baradakanta Mishra
v. Mr. Justice Gatikmshna Misra, a of the Orissa High Court, AIR 1974 SC
C 2255. It was held:-

"It is only when the court decides to take action and initiates a
proceeding for contempt that it assumes jurisdiction to punish for
contempt. The exercise of the jurisdiction to punish for contempt
commences with the initiation of a proceeding for contempt,
D
whether suo mom or on a motion or a reference. That is why the
terminuus a quo for the period of limitation provided in Section
20 is thi:: date wht:n a proct:eding for contempt is initiatt:d by the
Court."

E Several dtcisions of the High Courts dealing with the meaning of the
above said word 'initiate' in various settings of facts were also brought to
our notice. However, we would like to mention only thret: Division Bench
decisions, namely, T7ie Advocate General v.A. V. Koteswara Rao, (1984) Cri.
L.J. 1171 and Kisha11 Singh v. Honourable Mr. T. Anjaiah, Chief Mi11ister
F and Others, (1985) Cri. L.J. 1428 by the Andhra Pradesh High Court and
Dineshbhai A. Pa1ikh v. [(Jipalu Co-operative Housing Society, Nagarvel,
Ahmedabad and Others, AIR (1980) Gujarat 194 by Gujarat High Court.

Following this Court's di::cision in Bardakanta Mishra, in the two
decisions a.bovesaid the Division Benches of the Andhra Pradesh High
G Court speaking through Jagahnadha Rao, J.(as His Lordship then was)
stated that the word 'initiation' of contempt proceedings has a distinct
connotation and cannot be equated with the mere presentation of the
petition and observed :-

H "initiation of the contempt proceeding is the time when the
O.P.JAISWALv. DX MITTAL[R.C. LAHOTI,J.) 1071

Court applies its mind to the allegations in the petition and decides A
to direct, under S.17 the alleged contemners to show cause why he
should not be punished."

In order to appreciate the exact connotation of the expression 'in-
itiate any proceedings for contempt' we may notice several situations or
stages which may arise before the Court dealing· with contempt proceed- B
ings. These are :

(i) (a) a private party may file or present an application or
petition for initiating any proceedings for civil contempt;

or c
(b) the Court may receive a motion or reference from the
Advocate General or with his consent in writing from any other
person or a specified Law Officer or a Court subordinate to High
Court; D
(ii)(a) the Court may in routine issue notice to the person
sought to be proceeded against;

or
E
(b) the Court may issue notice to the respondent calling upon
him to show cause why the proceedings for contempt be not
initiated;

(iii) the Court may issue notice to the person sought to be
proceeded against calling upon him to show cause why he be not F
punished for contempt.

In the cases contemplated by (i) or (ii) above, it cannot be said that
any proceedings for contempt have been initiated. Filing of an application
or petition for initiating proceedings for contempt or a mere receipt of such
reft:rence by the Court does not amount to initiation of the proceedings by G
Court. On receiving any such document it is usual with the Courts to

- commence some proceedings by employing an expression such as 'admit',
'rule', 'issue notice' or 'issue notice to show cause why proceedings for
contempt be not initiated'. In all such cases the notice is issued either in
routine or because the Court has not yet felt satisfied that a case for H
1072 SUPREME CO CRT REPORTS (2000] 1 S.C.R.

A initiating any proceedings for contempt has been made out and therefore
the Court calls upon the opposite party to admit or deny the allegations
made or to collect more facts so as to satisfy itself if a case for initiating
the proceedings for contempt was made out. Such a notice is certainly
anterior to initiation. The tenor of the notice is itself suggestive of the fact
that in spite of having applied its mind to the allegations and the material
B placed before :t the Court was not satisfied of the need for initiating
proceedings for contempt; it was still desirous of ascertaining facts or
collecting further material whereon to formulate such opinion. It is only
when the Court has formed an opinion that a prim a f acie case for initiating
proceedings for contempt is made out and that the respondents or the
c alleged contemners should be called upon to show cause why they should
not be punished then the Court can be said to have initiated proceedings
for contempt. It is the result of a conscious application of the mind of the
Court to the facts and the material before it. Such initiation of proceedings
for contempt based on application of mind by the Court to the facts of the
case and the material before it must take place within a period of one year
D
from the date on which the contempt is alleged to have been committed
failing which the jurii.diction to initiate any proceedings for contempt is
lost. The heading of Section 20 is 'limitation for actions for contempt'.
Strictly speaking, this section does not provide limitation in the sense in
which the term is understood in the Limitation Act. Section 5 of the
E Limitation Act also does not, therefore, apply. Section 20 strikes at the
jurisdiction of th.: Court to initiate any proceedings for contempt.

A look at the concept of contempt and m:ed for can: and cir-
cumspection to be exercised before initiating proceedings for contempt
p would show the necessity for enacting Section 20 and devising therein the
concept of 'initiation of proceedings for contempt'. Availability of an
independent judiciary and an atmosphere wherein Judges may act inde-
pendently and fearlessly is the source of existence of civilisation in society.
The writ issued by the Court must be obeyed. It is the binding efficacy
att\iching with tht commands of the Court and the respect for the orders
G of the Court which deter the aggrieved persons from taking the law in their
own hands becau~e they are assured of an efficacious civilised method of
settlement of disputes being available to them wherein they shall be heard
and their legitimate grievances redeemed. Any act or omission which
undermines the dignity of the Court is therefore viewed with concern by
H the society and the Court treats it as an obligation to zealously guard
t;r

O.P. JAISWAL v. D.K MITIAL [R.C. LAHOTI, J.] 1073

against any onslaught on its dignity. In Re, Clement:i~ Republic of Costa Rica A
'.~-
v. Erlanger - {1876J 46 LJ. 37, 385, Sir George Jessel M.R. said :-

'It seems to me that this jurisdiction of committing for contempt,
being practically arbitrary and unlimited, should be most jealously
and carefully watched, and exercised; if I may say so, with the B
greatest reluctance and the greatest anxiety on the part of Judges,
to see whether there is no other mode which is not open to the
objection of arbitrariness and which can be brought to bear upon
the subject. I say that a Judge should be. most careful to sec that
the cause cannot be fairly prosecuted to a hearing, unless this C
extreme mode of dealing with persons brought before him on
accusations of contempt should be adopttd. I have myself had on
many occasions to consider this jurisdiction, and I have always
thought that, necessary though it may be, it is necessary only in the
sense in which extreme measures are sometimes necessary to
preserve men's rights, that is if no other pertinent n:medy can be D
found, probably that will be discovered after consideration to be
the true measure of the exercise of the jurisdiction."

The jurisdiction to punish for contempt is summary but the conse- E
quences arc serious. That is why the jurisdiction to initiate proceedings in
contempt as also the jurisdiction to punish for contempt in spite of a case
of contempt having bc::en made out are both discretionary with the C,ourt.
Contempt gc::neraily and criminal contempt certainly is a matter between
the Court and the alleged Contemnor. No one can compel or demand as
of right initiation of proceedings for contempt. Certain principles have F
emerged. A jurisdiction in contempt shall be exercised only on a clear case
having been made out. Mere technical contempt may not be taken note of.
a
It is not personal glorification of Judge in his office but an anxiety to
maintain the efficacy of justice administration system effectively which
dictates the conscience of a Judge to move or not to move in contempt G
jurisdiction. Often an apology is accepted and the felony condoned if the
Judge feels convinced of the genuineness of the apology and the prestige
of the Court having been restored. Source of initiation of contempt
proceedings may be suo moat, on a Reference being made by the Advocate
General or any other person with the consent in writing of the Advocate H
1074 SUPREME COURT REPORTS [2000J l S.C.R.
A General or on Refen:nce made by a Subordinate Court in case 'of criminal
contempt. A private party or a litigant may also invite the attention of the
Court to such facts as may persuade the Court in initiating proceedings for
contempt. However, such person filing an application or petition before
the Court does not become a complainant or petitioner in the proceedings.
B He is just an informer or relator. His duty ends with the facts being brought
to the notice of the Court. It is thereafter for the Court to act on such
information or not to act though the private party or litigant moving the
Court may at the discretion of the Court continue to render its assistance
during the course of proceedings. That is why it has been held that an
C informant does not have a right of filing an appeal under Section 19 of the
Act against an order refusing to initiate the contempt proceedings or
disposing the application or petition filed for initiating such proceedings.
He cannot be called an aggrieved party.

In the case at hand the order which was passed. on 15.1.1987 had
D called upon the respondents only to show cause why contempt proceedings
be not initiated. After the cause was shown the Court was to make up its
mind whether to initiate or not to initiate proceedings for contempt. It was
not an initiation of proceedings. We will ignore the order datei:l 16.12.1987
as it was not signed. But the order dated 6.1.1988 issuing notices to the
E opposite parties to show cause why they be not punished for disobeying
the order dated 9.12.1986, shows and it will be assumed that the Court had
applied its mind to the facts and material placed bcfort: it and had formed
an opinion that a case for initiating proceedings for contempt was made
'

'
-,

out. Need for issuance of ~uch notices was conceded to by the Advocate
F General as also by the counsel for the respondents. That is why it directed
the respondents to be called upon to show cause why they be not punished
for disobedience of the order of the Court. The proceedings were therefore
initiated on 6.1.1988 and were within the limitation prescribed by Section
20 of the Act. The impugned order directing dropping of the proceedings
G is based on an erroneous view of Section 20 of the Act and hence is liable
to be set aside.

The appeal is allowed, the impugned order is set aside. The proceed-
ings are restored to the file of the High Court which shall hear the parties
H and then proceed ahead in accordance with law.
O.P JAISWALv. D.K. MITIAL[R.C. LAHOTI,J.) 1075

Before parting, we may make it clear that during the course of A
hearing we had asked the learned counsel for the parties about the result
of the main writ petition wherein the undertaking was given on behalf of
the respondents. The learned counsel for the parties were not duly in-
structed to assist this Court on this asp,ect. The findings arrived at by the
Court in the main case, if the same has been disposed of, would have a B
material bearing on the discretion of the Court to proceed or not to
proceed ahead with the proceedings for contempt. We leave that aspect to
be taken care of by the High Court.

B.K.M. Appeal allowed. .