Holding

The Supreme Court held that the High Court erred; there was no unusual delay, the Central Government applied its mind independently, and the detention order under Section 3(1) of COFEPOSA is valid.

Summary

The Union of India appealed against a Calcutta High Court order that quashed a detention order issued under Section 3(1) of the Conservation of Foreign Exchange and Prevention of Smuggling Activities Act, 1974 (COFEPOSA) against Rajen Ghosal, an exporter accused of mis‑declaring export consignments. The High Court had held that there was undue and unusual delay in passing and executing the detention order and in disposing of the detenu’s representations, violating Articles 21 and 22(5) of the Constitution. The Supreme Court examined whether the delay was indeed unusual, whether the Central Government had applied its mind independently while rejecting the representations, and whether a representation to the President or Governor satisfies the statutory requirement. It found that the procedural steps were taken expeditiously, the Central Government did consider the representations independently, and the impact of the alleged foreign‑exchange fraud justified the detention despite being based on a single incident. Consequently, the Court set aside the High Court’s judgment and upheld the validity of the detention order.

Issues considered

The existence of undue or unusual delay in passing and executing the COFEPOSA detention order and in disposing of the detenu’s representations under Article 22(5).
Whether a representation made to the President of India or the Governor satisfies the statutory requirement of representation to the Central or State Government under COFEPOSA.
Whether the Central Government applied an independent mind in rejecting the detenu’s representations as required by Section 11 of COFEPOSA.
Whether the facts, including a single incident with large financial impact, justify the continuation of preventive detention under Section 3(1) of COFEPOSA.
Whether the High Court erred in quashing the detention order and whether the appeal should be allowed.

Legislation cited

Conservation of Foreign Exchange and Prevention of Smuggling Activities Act, 1974s. 11, s. 3(1)
Customs Act, 1962s. 108
General Clauses Act, 1897s. 21

Subjects

preventive detentionCOFEPOSAhabeas corpusArticle 22(5)representationdelayforeign exchange fraudcustomsdetention orderSupreme Court

Judgment

UNION OF INDIA AND ANR. A
v.
SHRIMATI CHAY A GHOSHAL AND ANR.

DECEMBER 13, 2004

[ARIJIT PASAYAT AND S.H. KAPADIA, JJ.]
B

Conservation of Foreign Exchange and Prevention of Smuggling
Activities Act, 1974-Sections 3(1) and 11-Detenu indulging in objection-
able activity-Detention order-Quashed by High Court-Legality of-Held
: Order of High Court unsustainable since there was no unusual delay in c
passing detention order, in executing it and in disposing of the represen-
tations-Central Government applied its mind to the representation inde-
pendently-Even solitary incident of objectionable activity warrants deten-
tion since the impact of the act enormous-Constitution of India, 1950-
Articles 22 and 22(5).
D
Constitution of India, 1950 :

Articles 226, 32 and 21-Writ of Habeas Corpus-Nature and issuance
of-Held : Habeas Corpus is writ of right-It is issued when prima facie
case of illegal detention is made out-Technicalities are not to be given E
undue importance when there is an attempt to defeat course of justice.

Article 22(5)-Preventive detention :

Nature and purpose of-When to be resorted to-Procedural safe- F
guards-Compliance of-Discussed

Representation to the Appropriate Authority by detenu-ls a consti-
.tutional protection and the Authorities are under obligation to dispose of
the representation expeditiously.
G
Representation to the President of India or the Governor-Effect of-
Held : Such representation amounts to representation to Central Govern-
ment and State Government respectively-Jn such cases reasons should be
indicated for making representation to President or Governor instead of
the indicated authorities-Further, the President or the Governor not H
869
.,

870 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.

A required to give explanation as to what happened after representation was
received by their office-Also Central Government or Detaining Authority
to explain the action taken by the said authority after receipt of
the representation by it and also when the representation is kept
unattended after its receipt-Representation should be received by
B authorized person and non authorised person cannot be held responsible
for any delay on account of inaction--Therefore, detenue seeking expeditious
consideration should approach authorities concerned and not adopt any
dubious devices by creating a situation for delay in consideration of his
representation.

C An. exporter was detained for indulging in objectionable activity
and was later released on bail. Thereafter, on the basis of the materials
collected, detention order was passed against the exporter under section
3(1) of the Conservation of Foreign Exchange and Prevention of Smug-
gling Activities Act, 1974 to prevent him for continuing the illegal
D activities. He was arrested a month later. Detenu made representations
but the same were rejected. Respondent No. 1-wife of detenu filed
Habeas Corpus writ petition challenging the detention order. High
Court quashed the detention order. It held that there was undue delay
in initiating the process of detention, unusual and unexplained delay in
passing detention order and also in executing the same; that there was
E only one incident to justify the detention and none after his release on
bail; that there was unexplained delay in disposing of the representa-
tions; and that the Central Government rejected the representation
without application of mind. Hence the present appeal.

F Appellant- Union oflndia contended that the High Court did not
take note of the various relevant factors and on presumptions drew
adverse inferences and surmises.

Respondents contended that the judgment of the High Court is
G based on appreciation of the factual position by applying correct law;
that even representation to the President is sufficient; and that the
detenu had suffered detention for more than eight months and more
than one year has passed since then, as such it would not be proper to
send him back.

H Disposing of the appeal, the Court
U.O.I. v. SHRIMA TI CHAY A GHOSHAL 871

HELD : 1.1. Preventive detention is an anticipatory measure and A
does not relate to an offence. They are not parallel proceeding~. The
object of the law of preventive detention is not punitive but only preven-
tive, requiring an action to be taken prevent apprehended objectionable
activities. It is resorted to when the Executive is convinced that such
detention is necessary in order to prevent the person detained from B
acting in a manner prejudicial to certain objects which are specified by
the concerned law. The action of Executive in detaining a person being
only precautionary, normally the matter has necessarily to be left to the
discretion of the executive authority. It is not practicable to lay down
objective rules of conduct in an exhaustive manner, the failure to con-·
form to which should lead to detention. The compulsions of the primor- C
dial need to maintain order in society, without which enjoyment of all.
rights, including the right of personal liberty would lose all their mean-
ings, are the true justifications for the laws of preventive detention. Laws
that provide for preventive detention posit that an individual's conduct
prejudicial to the maintenance of public order or to the security of State D
or corroding financial base provides grounds for satisfaction for a
reasonable prognostication of possible future manifestations of similar
propensities on the part of the offender. [878-E-F-G-H; 879-A-B]

1.2. In case of preventive detention no offence is proved, nor any
charge is formulated and the justification of such detention is suspicion E
or reasonability and there is no criminal conviction which can only be
warranted by legal evidence. The actual manner of administration of the
law of preventive detention is of utmost importance. The law has to be
justified by striking the right balance between individual liberty on the
one hand and the needs of an orderly society on the other. Therefore, F
the laws of preventive detention are strictly construed, and a meticulous
compliance with the procedural safeguard, however, technical is
mandatory. [881-G-H; 882-A]

Mr. Kubic Dariusz v. Union of India and Others., AIR (1990) SC 605
and Ayya alias Ayub v. State of U.P., AIR (1989) SC 364, relied on. G,

Smt. Jchhu Devi v. Union of India, AIR (1980) SC 1983; Vijay Narain
Singh v. State of Bihar, AIR (1984) SC 1334; Hem Lall Bhandari v. State
of Sikkim, AIR (1987) SC 762 and Sunil Fulchand Shah v. Union ofJndia
and Ors., (2000) 3 SCC 409, referred to. H
872 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.

A Rex v. Nallidev, (1917) AC 260, referred to.

1.3. Article 21 of the Constitution having declared that no person
shall be deprived of life and liberty except in accordance with the
procedure established by law, a machinery was definitely needed to
B examine the question of illegal detention with utmost promptitude. The
writ of habeas corpus is a device of this nature. The writ has been
described as a writ of right which is grantable ex dobito justitae. Though
a writ of right, it is not a writ of course. The applicant must show a prima
facie case of his unlawful detention. Once, however, he shows such a
cause and the return is not good and sufficient, he is entitled to this writ
c as of right. While dealing with a habeas corpus application undue
importance is not to be attached to technicalities, but a the same time
where the court is satisfied that an attempt has been made to deflect the
course of justice by letting loose red herrings the Court has to take
serious note of unclean approach. (881-E-F; 882-G)
D
1.4. A constitutional protection is given to every detenu which
mandates the grant of liberty to the detenu to make a representation
against detention, as imperated in Article 22(5). It also imperates the
authority to whom the representation is addressed to deal with the same
with utmost expedition. The representation is to be considered in its
E right perspective keeping in view the fact that the detention of the
detenu is based on subjective satisfaction of the authority concerned,
and infringement of the constitutional right conferred under Article
22(5) invalidates the detention. [880-H; 881-A-B]

F Thomas Pacham Dales' case [1881) 6 QBD 376, referred to.

2.1. In the instant case, High Court had not properly appreciated
the factual scenario, in fact it noted that there was some delay in passing
the detention order. Recital of the factual scenario clearly goes to show
that there was really delay much less unusual in passing the order of
G detention. Further, it is not a case where there is unusual gap between the
date of the order of detention and the actual arrest. The various steps
taken by the authorities clearly indicate that all possible efforts were
being taken to arrest the detenu, but he successfully evaded arrest and
was arrested after about three weeks of passing of the detention order.
H Furthermore, it is not number of acts which is material but the impact
U.0.1. v. SHRIMATI CHAYA GHOSHAL 873

and the effect of the act which determines the question as to whether A
detention is warranted. The factual position goes to show that the financial
consequences were enormous and ran to crores of rupees, as alleged by
the Detaining Authority. High Court seems to have been swayed away by
the fact that there was only one incident and none after release on bail.
Also the materials on record clearly show that there was independent B
application of mind by the Central Government. It did not reject the
representation merely on the ground that the Detaining Authority had
rejected it. The order of rejection itself makes this position clear. From
the details which were submitted before the High Court it appears that
there were two representations each addressed to the Detaining Authority
and the Central Government. Both the authorities have dealt with the c
representation with utmost expedition and rejected the same. Therefore,
the order of the High Court is unsustainable and is set aside. The Detaining
Authority is directed to decide with regard to the desirability to continue
detention. [884-B; 885-E-F-G-H; 886-A-B]
D
2.2. Regarding the question whether the representation to the
President of India meets with the requirement of law, the President as
well as the Governor, no doubt are constitutional Heads of the respective
Governments but day to day administration at respective levels are
carried on by the Heads of the Department-Ministries concerned and
designated officers who alone are ultimately responsible and account- E
able for the action taken or to be taken in a given case. A representation
to the President of India or the Governor, would amount to representa-
tion to the Central Government and the State Government respectively.
Whenever a representation is made to the President or the Governor
instead of the indicated authorities, the representation should indicate as F
to why the representation was made to the President or the Governor
and not to the indicated authorities. It should also be clearly indicated as
to whom the representation has been made specifically. If really the
citizen concerned genuinely and honestly felt or is interested in getting an
expeditious consideration or disposal of his grievance, he would and
should honestly approach the really concerned authorities and would not G
adopt any dubious devices with the sole aim of deliberately creating a
situation for delay in consideration and cry for relief on his own
manipulated ground, by directing his representation to an authority
which is not directly/immediately concerned with such consideration.
Where, however, a person alleging infraction of personal liberty tries to H
874 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.

A act in a manner which is more aimed at deflecting the course of justice
than for protection of his personal right, the Court has to make a deliberate
balancing of the fact situation. [882-E, F, G, H; 883-A, B, C, DJ

Raghavendra Singh v. Superintendent, District Jail, Kanpur and Ors.,
B [1986] 1 SCC 650; Rumana Begum v. State of Andhra Pradesh and Anr.,
[1993] Supp. 2 SCC 341; R. Keshava v. M.B. Prakash and Ors., [2001]
2 SCC 145 and Union of India v. Paul Manickam, [2003] 8 SCC 342,
referred to.

2.3. In law, the President or the Governor cannot be impleaded as
C a party. Therefore, there is no question of their explaining as to what
happened after representation was received by their office. The Central
Government or the Detaining Authority are also not authorized and
competent in law to say what happened after representation is received
in the office of the President or the Governor, as the case may be. They
D have to explain the action taken by the said authority after receipt of
the representation by it. [886-D-E]

2.6. With regard to the plea taken before the High Court that there
was no explanation offered for keeping the representation unattended
after its receipt, the Detaining Authority and/or the Central Government
E and/or the State Government, have to explain the action taken on the
representation after it had reached the concerned authority. The
representation should be received by a person authorized to receive it by
the Detaining Authority or the concerned authority of the Central
Government. If the representation is handed over to or served on a person
F who is not authorized to receive it the concerned authority cannot be held
responsible for any delay on account of inaction by such unauthorized
person. If any dispute is raised about the authority or the person to whom
the representation is claimed to have been handed over or served, the
person making the representation on behalf of the detenu or the detenu,
has to establish as to on whom the service was effected and he had
G authority to receive the document in question. [886-G-H; 887-A-B]

CRIMINAL APPELLATE JURISDICTION : Criminal Appeal No.
1474 of 2004 .

.H From the Judgment and Order dated 22.8.2003 of the Calcutta High
U.0.1. v. SHRIMATI CHAYA GHOSHAL [PASAYAT, J.] 875

Court in W.P. No. 4618(W) of 2003. A

T.M. Mohammed Yousef, B. Krishna Prasad and Vineet Malhotra for
the Appellants.

Ms. Neelam Sharma, Tara Chandra Sharma, Farook M. Razack, Ujjawal B
Banerjee, S.K. Puri Shiv Gupta and H.K. Puri for the Respondents.

The Judgment of the Court was delivered by

ARIJIT P ASAY AT, J. : Union of India and the Joint Secretary
(COFEPOSA), Government of India, Ministry of Finance, Department of C
Revenue, (hereinafter referred to as the 'detaining authority') call in ques-
tion legality of the judgment rendered by the Division Bench of the Calcutta
High Court quashing the order of detention passed by the appellant No. 2
under Section 3(1) of Conservation of Foreign Exchange and Prevention of
Smuggling Activities Act, 1974 (hereinafter referred to as the 'COFEPOSA') D
directing detention ofRajen Ghosal (hereinafter referred to as the 'detenu').

A Habeas Corpus Writ Petition under Article 226 of the Constitution
of India, 1950 (in short the 'Constitution') was filed by the respondent No.
1, the wife of the detenu. The order of detention was primarily based on the
ground that on the basis of information received on 8.1.2002 by the Special E
Investigation Branch, Kolkata Customs, seven containers of (7 x 20') and
one container of ( 1 x 40') were offloaded, from the vessel ofVishakapatnam
Port were detained and examined. The allegation was that few Kolkata based
exporters have exported on 5.1.2002 readymade garments, ball pens and
side rubber wheels grossly mis-declaring the quantity, description and value F
with an ulterior motive to avail undue drawback worth crores of rupees.
Detenu who was the proprietor of Mis. Shyam Sunder Enterprises had
exported some of the containers. After opening the consignments, substan-
tial shortage in quantities were detected. It appeared that the goods were
highly over invoiced and even mis-declared in respect of description of
certain items. There was grave difference in the actual quantity and the G
quantity of garments and ball pens and side rubber wheels that were to be
exported with that of those articles which were actually found in the con-
tainer at the port. It was concluded that all these were done with the sole
intention of getting huge amount of foreign currency. Investigations were
done and a licenced clearing agent was interrogated and hi-s statement was H
876 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.
(

A recorded under Section I 08 of the Customs Act, 1962 (in short the 'Customs
Act'). It appears that one Shri Anil Kumar Mahensaria was the brain behind
the acts and the detenu was deeply involved in the concerned acts. Residence
of the detenu was searched and he was arrested. He was interrogated at
length about his accomplicity in the matter. He clearly stated that he was
B a person of limited means and had obtained Importer Exporter Code No.
(in short the 'IEC'). He had allowed the same to be used and was only
. lending his Code for petty sums. The detenu was produced before the Chief
Judicial Magistrate, Kolkata who remanded him to the judicial custody.
During his detention further statements were recorded. Detenu was released
on bail on I Ith September, 2002. On the basis of the materials collected,
C it was felt that with a view to prevent him from continuing the illegal
activities he was to be detained under COFEPOSA. The order of detention
was passed on 20 .11.2002 and he was arrested on 17 .12 .2002. The order
of detention and the grounds of detention were duly served a1-j he was made
aware of his right to make representations to the Central Government and
D the Detaining Authority and also the Advisory Board. The representations
tpade by the detenu were rejected. The order of detention was questioned
by the respondent No. 1 on several grounds; firstly it was submitted that
there was unusual delay in passing the order of detention. The investigation
process had started in January, 2002 but the order of detention was passed
in November, 2002. After his release on bail there was nothing to show that
E he had continued to indulge in prejudicial activities of smuggling. Further
there was unusual delay in executing the order of detention. Only one
incident was referred in the grounds of detention to justify his detention.
There was nothing to demonstrate continuing criminality and culpability to
continue such action in future. There was non-application of mind while
F taking the decision to detain the detenu. Irrelevant materials were taken into
consideration. Materials which were in the possession of the sponsoring
authority were not placed before the Detaining Authority. In any event there
was unusual delay in disposing of the representations and there was no
independent consideration by the Central Govt. as required under Section
11 of the COFEPOSA. The stand was opposed by the Detaining Authority.
G The counter affidavit was filed. A rejoinder was filed by the writ petitioner
purportedly with a view to clarify some of the statements made in the
counter affidavit. The High Court found that there was no unusual delay in
passing the order of detention. But it was held that there was undue delay
in initiating the process i.e. the proposal for detention by the sponsoring
H authority. It was held that there was unexplained delay in passing the order
U.0.1. v. SHRIMA TI c'HA YA GHOSHAL [PASA YAT, J.) 877

of detention. It was also held that there was unusual delay in executing the A
order of detention. While the other pleas of the detenu were rejected, it was
observed that there was unexplained delay in disposing of the representa-
tions and the solitary instance highlighted by the Detaining Authority was
not sufficient to justify the order of detention. The rejection of representa-
tion by Central Government was without application of mind. B
Aggrieved by such judgment of the High Court, as noted above, this
Appeal has been filed. It was submitted by the learned counsel appearing
for the appellants that the High Court did not take note of the various
relevant factors and on presumptions adverse inferences and surmises have
been drawn. Having accepted that the investigation was going on and there
c
was delay in completion of the investigation due to filing of Writ Petitions
by the detenu and interim orders passed, a contrary view should not have
been taken to hold that there was unusual delay in passing the order of
detention. Similarly it was submitted that in spite of best efforts the detenu,
could not be apprehended and after about three weeks of sincere efforts he D
was arrested. That cannot be termed as unusual delay in executing the order
of detention~ The High Court attached undue importance to the fact that after
the release on bail there was no allegation of the detenu indulging in any
objectionable activity. It is the impact of the act and not the number of
infractions which is relevant. Finally there was no unusual delay in dispos- E
ing of the representations and the view of the High Court, that the Central
Government had not in fact applied its independent mind and had merely
rejected the representation on the ground that the Detaining Authority had
rejected it, is not factually correct.

F
In response learned counsel appearing for the detenu and the respond-
ent no. 1 submitted that the High Court had analysed the factual position
in great detail. Allegations regarding unexplained delay were not refuted
specifically and bald denials were not sufficient, particularly when a man's
liberty and freedom were in issue. No material was placed to substantiate
the stand taken about the procedure followed and steps taken. It was sub• G
mitted that the judgment of the High Court is based on appreciation of the
factual position by applying correct law. It was submitted that as observed

. by this courts even representation to President of the country is sufficient,
- In other words, rejection of representation by the detaining authority cannot
be a ground of rejection by Central Government. H
878 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.

A It is submitted that revocation under Section 11 can be done by the
Central Government, independent application of mind by it was necessary.

Section 11 (1) of COFEPOSA reads as follows:

"11. Revocation ofdetention orders - ( 1) Without prejudice to the
B
provisions of Section 21 of the General Clauses Act, 1897, a
detention order may, at any time, be revoked or modified -

(a) notwithstanding that the order has been made by an officer
of a State Government, by that State Government or by the
c Central Government;

(b) notwithstanding that the order has been made by an officer
of the Central Government, or by a State Government by the
Central Government."
D
In any event, it was submitted, the detenu was released on 23.8.2003
and more than one year has passed, the detenu had suffered detention for
more than eight months and after considerable length of time it would not
be proper to send him back.

-E Before dealing with rival submissions, it would be appropriate to deal
with the purpose and intent of preventive detention. Preventive detention
is an anticipatory measure and does not refate to an offence, while the
criminal proceedings are to punish a person for an offence committed by
him. They are not parallel proceedings. The object of the law of preventive
F detention is not punitive but only preventive. It is resorted to when the
Executive is convinced that such detention is necessary in order to prevent
the person detained from acting in a manner prejudicial to certain objects
which are specified by the concerned law. The action of Executive in
detaining a person being only precautionary, normally the matter has nec-
essarily to be left to the discretion of the executive authority. It is not
G practicable to lay down objective rules of conduct in an exhaustive manner,
the failure to conform to which should lead to detention. The satisfaction
of the Detaining Authority, therefore, is considered to be of primary impor-
tance, with great latitude in the exercise of its discretion. The Detaining
Authority may act on any material and on any information that it may have
H before it. Such material and information may merely afford basis for a
U.0.1. v. SHRIMATI CHAY A GHOSHAL [PASAYAT, J.] 879

sufficiently strong suspicion to take action, but may not satisfy the tests of A
legal proof on which alone a conviction for offence will be tenable. The
compulsions of the primordial need to maintain order in society without
which the enjoyment of all rights, including the right to personal liberty of
citizens would loose all their meanings provide the justification for the laws
of prevention detention. Laws that provide for preventive detention posit B
that an individual's conduct prejudicial to the maintenance of public order
or to the security of State or corroding financial base provides grounds for
satisfaction for a reasonable prognostication of possible future manifesta-
tions of similar propensities on the part of the offender. This jurisdiction has
at times been even called a jurisdiction of suspicion. The compulsions of
the very preservation of the values of freedom of democratic society and C
of social order might compel a curtailment for individual liberty. "To, lose
our country by a scrupulous adherence to the written law" said Thomas
Jefferson "would be to lose the law itself, with life, liberty and all those who
are enjoying with us, thus absurdly sacrificing the end to the needs". This,
no doubt, is the theoretical jurisdictional justification for the law enabling D
prevention detention. But the actual manner of administration of the law of
preventive detention is of utmost importance. The law has to be justified
by striking the right balance between individual liberty on the one hand and
the needs of an orderly society on the other.

The constitutional philosophy of personal liberty is an idealistic view, E
the curtailment of liberty for reasons of States' security, public order,
disruption of national economic discipline etc. being envisaged as a neces-
sary evil to be administered under strict constitutional restrictions. In Smt.
lchhu Deviv. Union ofIndia, AIR(l980) SC 1983, this judicial commitment
was highlighted in the following words: F

"The Court has always regarded personal liberty as the most pre-
cious possession of mankind and refused to tolerate illegal deten-
tion, regardless of the social cost involved in the release of a
possible renegade".
G
"This is an area where the Court has been most strict and scrupulous
in ensuring observance with the requirement of the law and
even where a requirement of the law is breached in the slightest
measure, the Court has not hesitated to strike down the order of
detention".
H
880 SUPREME COURT REPORTS [2004) SUPP. 6 S.C.R.

A In Vijay Narain Singh v. State of Bihar, AIR (1984) SC 1334, Justice
Chinnappa Reddy in his concurring majority view said:

" .... .I do not agree with the view that those who are responsible for
the national security or for the maintenance of public order must
B be the sole Judges of what the national security or public requires.
It is too perilous a proposition. Our Constitution does not give as
carte blanche to any organ of the State to be the sole arbiter in such
matter. ..... "
[Page 1336 (of AIR)]

c " ..... There are two sentinels, one at either end. The legislature is
required to mark the law circumscribing the limits within which
persons may be preventively detained and providing for safeguards
prescribed by the Constitution and the Courts are required to ex-
amine, when demanded, whether there has been any excessive
D detention, that is whether the limits set by the Constitution and the
legislature have been transgressed ..... ".

In Hem Lall Bhandari v. State of Sikkim, AIR (1987) SC 762 at page 766,
it was observed:

E "It is not permissible in matters relating to the personal liberty and
freedom of a citizen to take either a liberal or a generous view of
the lapses on the part of the officers ..... ".

In Sunil Fulchand Shah v. Union OfIndia and Ors., [2000) 3 SCC 409
F a Constitution Bench of this Court observed. that a person may try to abscond
and thereafter take a stand that period for which detention was directed is
over and, therefore, order of detention is infructuous. It was clearly held that
the same plea even if raised deserved to be rejected as without substance.
It should all the more be so when the detenu stalled the service of the order
and/or detention in custody by obtaining orders of Court.
G
So far as the pivotal question whether there was delay in disposal of
the representation is concerned, same has to be considered in the back-
ground of Article 22(5) of the Constitution. A constitutional protection is ·
given to every detenu which inandates the grant of liberty to the detenu to
H make a representation against detention, as imperated in Article 22(5) of the
·..

U.0.1. v. SHRIMATI CHAYA GHOSHAL [PASAYAT, J.] 881

· · Constitution. It also imperates the authority to whom the representation i!I A
addressed to deal with the same with utmost expedition. The representation
is to be considered in its right perspeetive keeping in view the fact that the
detention of the detenu is based on subjective satisfaction of the authority
concerned, and infringement of the constitutional right conferred under
Article 22(5) invalidates the detention order. Personal liberty protected
B
under Article 21 is so sacrosanct and so high in the scale of constitutional
values that it is the obligation of the detaining authority to show that the
impugned detention meticulously accords with the procedure established by
law. The stringency and concern of the judicial vigilance that is needed was
aptly described in the following words in Thomas Pacham Dales' case:
[1881] 6 QBD 376: c
"Then comes the question upon the habeas corpus. It is a general
rule, which has always been acted upon by the Courts of England,
that if any person procures the imprisonment of another he must ·
take care to do so by steps, all of which are entirely regular, and D
that if he fails to follow every step in the process with extreme
regularity the Court will not allow the imprisonment to continue."

Article 21 of the Constitution having declared that no person shall be
deprived of life and liberty except in accordance with the procedure estab-
lished by law, a machinery was definitely needed to examine the question E
of illegal detention with utmost promptitude. The writ of habeas corpus is
a device of this nature. Blackstone called it "the great and efficacious writ
in all manner of illegal confinement". The writ has been described as a writ
of right which is grantable ex dobito justitae. Though a writ of right, it is
not a writ of course. The applicant must show a prima facie case of his F
unlawful detention. Once, however, he shows such a cause and the return
is not good and sufficient, he is entitled to this writ as of right.

In case of preventive detention no offence is proved, nor any charge
is formulated and the justification of such detention is suspicion or
reasonability and there is no criminal conviction which can only be war- G
ranted by legal evidence. Preventive justice requires an action to be taken
to prevent apprehended objectionable activities. (See Rex v. Nallidev, (1917]
AC 260; Mr. Kubic Datiusz v. Union of India and Others, AIR (1990) SC

.,
605). But at the same time, a person's greatest of human freedoms, i.e.,
personal liberty is deprived, and, therefore, the laws of preventive detention H
882 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.

A are strictly construed, and a meticulous compliance with the procedural
safeguard, however, technical is mandatory. The compulsions of the primor-
dial need to maintain order in society, without which enjoyment of all rights,
including the right of personal liberty would lose all their meanings, are the
true justifications for the laws of preventive detention. This jurisdiction has
B been described as a "jurisdiction of suspicion'', and the compulsions to
preserve the values of freedom of a democratic society and social order
sometimes merit the curtailment of the individual liberty. (See AY.Ya alias
Ayub v. State ofUP. and Another, AIR (1989) SC 364). To Jose ~ur country
by a scrupulous adherence to the written law, said Thomas Jafferson, would
be to lose the Jaw, absurdly sacrificing the end to the means. No law is an
C end itself and the curtailment of liberty for reasons of State's security and
national economic discipline as a necessary evil has to be administered
under strict constitutional restrictions. No carte blanche is given to any
organ of the State to be the sole arbiter in such matters.

D Coming to the question whether the representation to the President of
India meets with the requirement oflaw it has to be noted that in Raghavendra
Singh v. Superintendent, District Jail, Kanpur and Ors., [1986] 1 SCC 650
and Rumana Begum v. State of Andhra Pradesh and Anr., [1993] Supp 2
SCC 341 it was held that a representation to the President of India or the
Governor, as the case may be, would amount to representation to the Central
E Government and the State Government respectively. But this cannot be
allowed to create a smokescreen by an unscrupulous detenu to take the
authorities by surprise, acting surreptitiously or with ulterior motives. Where
the order (grounds) of detention specifically indicate the authority to whom
the representation is to be made, such indication is also part of the move
F to facilitate an expeditious consideration of the representations actually
made.

While dealing with a habeas corpus application undue importance is
not to be attached to technicalities, but at the same time where the court is
satisfied that an attempt has been made to deflect the course of justice by
G letting loose red herrings the Court has to take serious note of unclean
approach. Whenever a representation is made to the President or the Gov-
ernor instead of the indicated authorities, it is but natural that the represen-
tation should indicate as to why the representation was made to the President
or the Governor and not the indicated authorities. It should also be clearly
H indicated as to whom the representation has been made specifically. The
U.0.1. v. SHRIMATI CHAYA GHOSHAL [PASAYAT, J.] 883

President as well as the Governor, no doubt are constitutional Heads of the A
respective Governments but day to day administration at respective levels
are carried on by the Heads of the Department-Ministries concerned and
designated officers who alone are ultimately responsible and accountable for
the action taken or to be taken in a given case. If really the citizen concerned
genuinely and honestly felt or is interested in getting an expeqitious con-
B
sideration or disposal of his grievance, he would and should honestly
approach the really concerned authorities and would not adopt any dubious
devices with the sole aim of deliberately creating a situation for delay in
consideration and cry for relief on his own manipulated ground, by directing
his representation to an authority which is not directly/immediately con-
cerned with such consideration. c
Where, however, a person alleging infraction of personal liberty tries
to act in a manner which is more aimed at deflecting the course of justice
than for protection of his personal right, the Court has to make a deliberate
balancing of the fact situation to ensure that the mere factum of some delay D
alone is made use of to grant relief. If a fraud has been practiced or
perpetrated that may in a given case nullify the cherished goal of protecting
personal liberty, which obligated this Court to device guidelines to ensure
such protection by balancing individual rights and the interests of the nation,
as well.
E
In R. Keshava v. MB. Prakash and Ors., [2001]-2 SCC 145, it was
observed by this Court as follows:

"We are satisfied that the detenu in this case was apprised of
his right to make representation to the appropriate Government/ F
authorities against his order of detention as mandated in Article 22
(5) of the Constitution. Despite knowledge, the detenu did not avail
of the opportunity. Instead of making a representation to the ap~
propriate Government or the confirming authority, the detenu chose
to address a representation to the Advisory Board alone even without
a request to send its copy to the authorities concerned under the Act. G
In the absence of representation or· the knowledge of the represen-
tation having been made by the detenu, the appropriate Govern-
ment was justified in confirming the order of detention on perusal
of record and documents excluding the representation made by the
1·
detenu to the Advisory Board. For this alleged failure of the ap- H
884 SUPREME COURT REPORTS [2004] SUPP. 6 S.C.R.

A propriate Government, the order of detention of the. appropriate
Government is neither rendered unconstitutional nor illegal".

Aforesaid aspects were highlighted in Union ofIndia v. Paul Manickam,
[20031 8 sec 342.
B
On bare perusal of the High Court's judgment it appears that the High
Court had not properly appreciated the factual scenario. It had in fact noted
that there was some delay in passing the order of detention. It referred to
the Writ Petitions filed before the Calcutta High Court and the orders passed
in those cases. It also noted that the proposal was sent on 4.7.2002 and the
C statement of the detenu was recorded on 16.7.2002. The proposal for de-
tention was considered by the Central Screening Committee on 18.9.2002
and after consideration of all relevant materials, the order of detention was
passed on 20.11.2002. The details of the various steps taken were filed
before the High Com:t. It appears that after the process of investigation
D started in January, 2002 consequent upon seizure of goods was on 24.1.2002.
Writ Petition No. 145 of 2002 was filed in the Calcutta High Court and an
interim order was passed staying further effect on the summons and main-
tenance of status quo of examination of goods. Reply was filed on 12.2.2002.
Another Writ Petition No. 366 of 2002 was filed on behalf of the detenu
on 20.2.2002. The High Court passed a direction for personal appearance
E of detenu on 28.2.2002. The date of personal appearance was adjourned to
5.3.2002. On 8.3.2002 the Writ Petition was dismissed for non-prosecution.
Another application was filed by another concern. Thereafter various state-
ments were recorded. The interim order passed on 29.1.2002 was vacated
and the judgment was delivered on 8.5.2002; summons were issued to the
F detenu and information was sought for in terms of the High Court's order
dated 6.5.2002. In between Writ Petition No. 573 of 2002 was filed. Sum-
mons were issued and the matter was further heard by the Calcutta High
Court. Ultimately the detenu was traced on 16.7.2002 and statements were
thereafter recorded and after he was remanded to judicial custody, his
statements were recorded. Show cause notices were issued to the detenu and
G the proprietor of the concern and Anil Kumar and Clearing House Agent.
On 9.8.2002 the detenu retracted from his earlier statement. Finally the
Central Screening Committee considered the proposal on 18.9.2002. It was
referred to the Detaining Authority and after discussions and supply of
documents in October, 2002 the records, which were voluminous were
H placed before the Detaining Authority who asked for orders passed by the
- U.O.I. v. SHRIMATI CHA YA GHOSHAL (PASAYAT, J.]

Chief Judicial Magistrate dated 2.9.2002 and 11.9.2002. Copies of orders
of the Chief Judicial Magistrate regarding extension of judicial custody and
grant of bail were received on 15.11.2002 and the order of detention was
885

A

passed on 20.11.2002. Above recital of the factual scenario clearly goes to
show that there was really delay much less unusual in passing the order of
detention. On that score, the High Court's findings prove to be contrary and B
indefensible.

The other plea which found favour with the High Court related to
alleged unusual delay in execution of the order of detention. Here again the
High Court had fallen into grave error in holding that there was no material
justifying the delay. It is to be noted that the order of detenton was passed c
on 20.11.2002 and the arrest was done on 17.12.2002. From the materials
on record it appears that after the order of detention was passed efforts were
made to arrest the detenu. In fact the police authorities were requested to
co-operate in the matter and the detention order was sent to the office of
the Commissioner of Police Lal Bazar Police Head Quarters on 20.11.2002. n.
Identification particulars including photographs of the deteou..as required by
the police for execution of the order were sent to the Commissioner of Police
on 26.11.2002. In spite of keeping the house under surveillance by the
concerned officers and the police officers, he could not be traced. Finally
he was arrested on 27.12.2002. It is not a case where there is unusual gap
between the date of the order of detention and the actual arrest. The various E
steps taken by the authorities as noted above clearly indicate that all possible
efforts were being taken to arrest the detenu, but he successfully evaded
arrest. The High Court was not justified in coming to the conclusion that
there was unusual delay in executing the order of detention.
F
So far as the finding of the High Court that there was only one incident
is really a conclusion based on erroneous premises. It is not number of acts
which determine the question as to whether detention is warranted. It is the
impact of the act, the factual position as highlighted goes to show that the
financial consequences were enormous and ran to crores of rupees, as
alleged by the Detaining Authority. The High Court seems to have been G
swayed away that there was only one incident and none after release on bail.
The approach was not certainly correct and the judgment on that score also
is vulnerable. At the cost of repetition it may be said that it is not the number
of acts which is material, it is the impact and effect of the act which is
determinative. The High Court's conclusions in this regard are therefore not H
886 SUPREME COURT REPORTS [2004) SUPP. 6 S.C.R.
.
A sustainable.

Residual question is whether there was unusual delay in disposing of
the representation and whether the Central government had not applied its
mind to the representation inde;:iendently. The High Court has again failed
to notice that materials on record clearly show that there was independent
B
application of mind by the Central Government. It did not reject the rep-
resentation merely on the ground that the Detaining Authority had rejected
it. The order of rejection itself makes this position clear. From the details
which were submitted before the High Court it appears that there were two
representations each addressed to the Detaining Authority and the Central
c Government, which were considered and rejected.

In law the President or the Governor, as the case may be, cannot be
impleaded as a party. Therefore, there is no question of their explaining as
to what happened after representation was received by the office of the
D President or the Governor, as the case may be. The Central Government or
the Detaining Authority are also not authorized and competent in law to say
·what happened after representation is received in the office of the President
or the Governor, as the case may be. The Detaining Authority or the
concerned authority of the Central Government has to explain the action
taken by the said authority after receipt of the representation by it.
E
The factual position also does not justify the conclusion drawn by the
High Court about the unexplained delay in disposal of the representation
and/or non-application of the mind by the Central Government. Looked at
from any angle the order of the High Court is unsustainable and it is
F therefore set aside.

Both the authorities have dealt with the representation with utmost
expedition. A plea appears to have been taken before the High Court that
there was no explanation offered for keeping the representation unattended
after its receipt. It has to be noted that the Detaining Authority and/or the
G Central Government and/or the State Government, as the case may be, have
to explain the action, taken on the representation after it had reached the
concerned authority. The representation should be received by a person
authorized to receive it. The Detaining Authority or the concer:ned authority
of the Central Government may have authorized some members of the staff
H to receive representation or any official document. If the representation is
U.O.I. v. SHRIMATI CHA YA GHOSHAL [PASAYAT, J.] 887

han·ded over to or served on a person who is not authorized to receive it the A
concerned authority cannot be held responsible if any delay is occasioned
on account of inaction by such unauthorized person. If any dispute is raised
about the authority of the person to whom the representation is claimed to
• have been handed over or served, the person making the representation on
behalf of the detenu or the detenu, as the case may be, has to establish as B
to on whom the service was effected and he had authority to receive the
document in question.

The residual plea about the desirability to continue the detention and
whether there is any live link between the alleged act which formed the
foundation for detention continuing is a matter for the Detaining Authority c
to decide. Let a decision in this regard be taken within a month and order
in that regard be served on the detenu. If the Detaining Authority is of the
view that further continuance will be desirable, the detenu shall surrender
to serve the remainder the period of detention as was indicated in the order
of detention. If the Detaining Authority feels that it is not desirable then in D
that event the detenu need not surrender.

The appeal is allowed and disposed of in the aforesaid terms.

N.J. Appeal disposed of.
E