ASHADEVI WIFE OF GOPAL GHERMAL MEHTA (DETENU) versus K. SHIVERAJ, ADDL. CHIEF SECRETARY TO THE GOVERNMENT OF GUJARAT & ANR.

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ASHADEVI WIFE OF GOPAL GHERMAL MEHTA (DETENU) A

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v.

K. SHIVERAJ,

ADDL. CHIEF SECRETARY TO THE GOVERNMENT OF GUJARAT & ANR.

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November 3, 1978

[V. D. TuLZAPURKAR AND 0. 0UNNAPPA REDDY, JJ.]

Conservcifion of Foreign Exchange and Prevention of S1nuggling Activities Act, 1974-Section 3(1)-Detenu detained on allegation of smuggling of gold His advocat'~ not permitted at the time of his interrogation-Confes,fional state ments retracted by detenu-No 1naterial placed before detaining authority while .Passing detention order-Order vaUdi'ty of.

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A detention order, under s. 3 ( 1) of the Conservation of Foreign Exchange and Prevention of Smuggling Activities Act, 1974, was passed by the respon ·dent against the detenu (appellant's husband) with a view to prevent him from ·engaging in transporting smuggled gold. When the detenu was in the custody ,of the Customs Officers, .. his advocate addressed a letter and sent a telegram D to them protesting against his detention and illegal custody beyond 24 hours and also ex_pressing an apprehension that he was being detained with a view It was admitted that the advo to obtain confessional statements under duress. cate's request for permission to remain present at the time of interrogation of the detenu \Vas turned down by the Customs Officers. The advocate was also told that the detenu would be produced before a 11agistrate at 5.30 p.m. on ·the day of her request. But that was not done. He was produced on the following day and was remanded to judicial custody permitting further interro ·gation by the Customs Officers. During such interrogation while in judicial ,custody, the detenu refused to sign the further statements and squarely resiled from his earlier confessional statements disowning the facts therein stated. While the detenu's application for bail was pending before the ?\1agistrate, the ·respondent passed the impugned order.

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In her petition under Art. 226 of the Constitution for the issue of a writ of habeas corpus, the appellant contended that the order of the detaining authority was liable to be set aside because full facts of the case were not intimated to it before detention order was passed and, therefore, there was complete non-appli cation of mind of the detaining authority to the attendant vital circumstances. The High Court dismissed the petition.

Allowing the appeal,

HELD : (I) The impugned order was invalid and illegal because there was <Complete non-application of the mind of the detaining authority to the most material and vital facts which would have influenced the mind of the detaining authority one way or the other as these were neither placed before it nor considered by the detaining authority.

[223E] (2) It is well settled that if material or vital facts, which would influence H

the mind of the detaining authority one way or the other on the question whe- ther or not to make the detention order, are not placed before or are not con-

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sidered by the detaining authority it would vitiate its subjective satisfaction ren dering the detention order illegal. The detaining authority must exercise due care and caution and act fairly and justly in exercising the power of detention and if taking into account matters extnmeous to the scope and purpose of the statute vitiates the subjective satisfaction and renders the detention order invalid then failure to take into consideration the most material or vital facts likely to influence the. mind of the authority one way or the other would equally vitiate the subjecHve satisfacion rund invalidate the de:tention order.

[222A B]

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In the instant case three facts were not communicated to or placed before the detaining authority before it passed the impugned order against the detenu viz., (i) during the interrogation, in spite of the request, neither the presence nor consultation of the. advocate was permitted, (ii) in spite of intimation to the advocate by the Customs Officers the detenu was not produced before the Magistrate at the appointed time and (iii) the confessional statements were squarely retracted by the detenu at the fitst availiable opportunity while he was in judicial custody. The first two had ~ bearing on the question v1:hether the confessional statements had been extorted under duress from the detenu or not. while the third was in relation to the confessional statements which formed the foundation of the impugned order and as such were vital facts having a bearing on the main issue before the detaining authority.

Sk. Nizamuddin v. State of West Bengal, AIR 1974 SC 2353; Suresh Mahtr•~ v. The District Magistrate, Burdwan & Ors:, AIR 1975 SC 728; Nandini Satpathy v. The State of Orissa, [1978] 2 SCC 424; applied.

(3) The fact that the request to have the presence or consultation of the lawyer was made and refused ought to have been intimated to the detaining authority. Further in passing the detention order the detaining authority based its decision on the detenu's confessional statements and, therefore, it was obli~ gatory upon the Customs Officers to report to the detaining authority the re traction of those statements by the detenu. The fact of retraction would have its own impact one way or the other on the detaining authority before making up its mind whether or not impugned order of detention. [223A Bl

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CRIMINAL APPELLATE JURISDICTION : Criminal Appeal No. 350

of 1978.

(From the Jndgment and Order dt. 29-5-78 of the Gujarat High

Court in Sp!. Criminal Appln. No. 20 of 1978)

Ram Jethma/ani and Mrs. K. Hingomni for the appellant.

S. K. Mehta and M. N. Shroff for the respondent.

The Jndgment of the Court was delivered by

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TULZAPURKAR, J. On September 29, 1978 the detenu herein was directed to be released forthwith on his detention order being set aside and we had stated that we would give our reasons for our order later which we do presently.

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ASHADEVI v. ADDL. CHIEF SECY. (Tulzapurkar, !.)

217

By a detention order passed on January 4, 1978 under s. 3(1) of A

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The grounds of detention were served upon him on B

the Conservation of Foreign Exchange and Prevention of Smuggling Activities Act, 1974 (hereinafter referred to as "COFEPOSA") the detenu Gopal Ghermal Mehta was detained by the Additional Chief Secretary to the Govermnent of Gujarat (Respondent No. 1) with a in transporting smuggled view goods. the same day i.e. on January 4, 1978. Briefly stated the grounds dis closed the following material against the detenu : On receipt of certain information dll December 12, 1977 by the Customs Officers of Ahmedabad, the said officers had kept a watch for a Fiat Car No. GTI-6020 and the said car with five occupants was intercepted in the early hours of December 13, 1977 near Naroda Railway Crossing and the occupants (the detenu and four others) were taken to the Customs Divisional Office, Paldi, Ahmedabad for examination. . The detenu and the other four occupants of the car denied that they were carrying any smuggled gold or prohibited articles, but on search of one of the occupants Sheveram Atmaram Chandwani two cloth bags were recovered from him, in one of which there were 27 gold bars of foreign marking weighing 19 tolas valued at Rs. 2,16,00 and in the other there were 18 pieces of gold bearing 'Trishul' mark valued at Rs. 1,94,400/-. Chandwani in his statement before the Customs Officers stated that the two bags which he was carrying on his person belonged to the detenu who was dealing in Silver and Gold in Udaipur and that he was merely E a carrier who used to receive remuneration of Rs. 100/- per trip from the detenu. Two statements of the detenu were the Customs Officers on December 13 and 14, 1978, in which he corro borated the version of Chandwani but added that the entire quantity of foreign marked gold and the 'Trishul' marked gold belonged to one Prem of Chandni Chowk, Delhi, for and on whose behalf he was carry- F ing the gold from Delhi to Udaipur and from Udaipur to Ahmedabad for disposing it of to two persons, namely, Poonamchand Laxmanji and Bhagubhai in Ahmedabad. The detenu also stated that this had been going o'n for about six to eight months and that he had made five to six trip he used to carry 2t to 3 kgs. of gold. He further admitted that the Fiat Car in question G had been purchased for this purpose for Rs. 15,000/- which money had been provided by Prem. He further stated that after disposal of the gold belonging to Prem at Ahmedabad he used to carry the sale proceeds to Prem and account for the same at the time of the next transaction between him and Prem.

trips in a month and on each such

recorded by

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Counsel for the petitioner (being the wife of the detenn) did not the aforesaid material disclosed in the grounds was

dispute that 15-817SCil78

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the detenu's involvement in the racket prima facie sufficient to show df. smuggling gold, namely, transporting smuggled gold from Delhi to Udaipur and from Udaipur to Ahmedabad but he challenged the deten tion order on the ground that procedural safeguards had not been followed vitiating the requisite satisfaction on the part of the detaining authority under s. 4 (1). It appears that when the interrogation of the detenu was going on while he was in custody of the Customs Officials, Smt. Devyantiben Shah, an Advocate of the detenu addressed a letter as also a telegram, both dated December 14, 1977, making a grievance about the wrongful restraint and illegal custody of the detenu by (he Customs Officers beyond 24 hours and expressing apprehension that the detenu had been so detained with a view to obtain confessional statements against his will. The receipt of the letter was disputed but the Assistant Collector of Customs admitted the receipt of the telegram from the Advocate on December 15, 1977. By his reply dated Decem ber 15, 1977 sent to the Advocate, the Assistant Collector denied the allegations made in the telegram. Admittedly an December 14, 1977, the Advocate had gone to the Customs Office and had sought per mission to remain present at the time of the interrogation of the detenu but her request was not acceded to as the Customs Officers were of the view that there was no provision in law permitting an Advocate to remain present at the time of interrogation. Further on this occa~ion the Advocate was told that the detenu will be produced before the E Magistrate at 5.30 p.m. on that very day and, therefore, she waited in the Magistrate's Court upto 5.30 p.m. to obtain bail for the detenu but as the detenu was not produced the Magistrate declined to pass any order on the bail application. On December 15, 1977 the detenu was produced before the Magistrate who temaruled him to Customs custody for five days in spite of opposition by the Advocate. On December 20, 1977 the detenu was again produced before the Magistrate and even on this occasion bail was refused but the detenu was remanded to judicial custody permitting further interrogation by Customs Officers. On De cember 22, 1977 while he was in judicial custody the detenu was mterro gated by Customs Officers and his statement was recorded 0;1 that day but the detenu refused to sign the same and instead made an endorse ment that his earlier statements date,d December 13 and 14, 1977 and the facts stated therein were not correct. In other words, in his state ment dated December 22, 1977 the detenu had resiled from his earlier confessional statements and had squarely repudiated the facts stated therein. On January 3, 1978 the Advocate of the detenu made another application for getting him released on bail as the period of remand was to expire ou January 1978 and that application was lxed for hearing on January 6, 1978 but on January 4, 1978 itself whAe the

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ASHADEVI v. ADDL. CHIEF SECY. (Tulzapurkar, J.)

219

detenu was in judicial custody the Additional Chief Secretary to the A Gujarat Government (Respondent No.1) passed the impugned order under s.3(1) of the "COFEPOSA" and the detenu was detained thereunder.

The aforesaid detention was challenged by the appellant (wife of B

the Gujarat High Court uuder Article 226 of the the detenu) before Constitution by filing Special Criminal Application No. 20 of 1978 seeking a writ of habeas corpus for the release of the detenu princi pally on the ground that there was complete non-application of mind on the part of the detaining authority (respondent No. 1) to the atten dant circumstances in which the confessional statement of the detenu on which the detention order was mainly based-were recorded, parti cularly the vital facts that transpired during the interrogation as also those that followed the recording of those statements. It was con- . tended that apart from the apprehension expressed in the Advocate's telegram that the detenu was being detained with a view to obtain his confessional statements under duress, the said co'nfessional statements had actually been retracted by the detenu at the first available oppor tunity. when he was in judical custody on the ground that these had been involuntarily extorted from him and that such retraction of the confession2.l statements was not intimated to the detaining authority and was not considered by it before passing the impugned detention order and as such for want of considering such vital fact the subjective satisfaction of the detaining authority got vitiated and the impugned order was liable to be set aside. The High Court, however, rejected the said contention as also the other contentions urged on behalf of the appellant (the wife of the detenu) and dismissed the said applica tion on Ma.y 29, 1978. Against this dismissal the present appeal has been preferred.

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Counsel for the petitioner contended before us that the High Court had clearly erred in taking the view that since the contents of the tele gram dated December 14, 1977 expressing the apprehension had been made known to the detaining authority it could not be said that material aspect of the case had been kept back from the detaining authority. It was pointed out that the mere expression of an apprehen- sion that confessional statements might be extorted was different from the actual obtaining of the statements under pressure of which a com plaint had been made by the detenu in his statement recorded on De cember 22, 1977 wherein the earlier statements had been com- H pletely retracted and it was urged that the fact that there was such retraction of the confessional statements by the detenu at the first

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e tention case.

available opportunity was not communicated or placed before the de taining authority when it considered the question of passing the impug ned order. Counsel further contended that instead of considering whether these facts were vital enough to require the application of mind by the detaining authority, the High Court went on to record findings of fact to the effect ( i) that it could not be said that the detenu was in illegal custody: (ii) that the confessional statements could not have been extracted under compulsion and (iii) that the said statements were not obtained under duress and in doing so the High Court clearly jurisdiction and contrary to the well-established acted in excess of principles applicable to the issue of habeas corpus in preventive de- In any case it was for the detaining authority to apply its mind to these aspects before deciding to issue the impugned order. Counsel further contended that it was undisputed that the Advocate was not allowed to be present nor allowed to be consulted during the interrogation in spite of request having been made in that behalf which clearly showed that the detenu was under duress and not a free person. In any event, counsel contended, the satisfaction of the detaining authority must be regarded as vitiated inasmuch as these vital facts, namely, (i) that during interrogation in spite of request neither the pre sence nor the consultation of the Advocate was permitted; (ii) that in spite of intimation to the Advocate in that behalf the detenu was not produced before the Magistrate at 5.30 p.m. on December 14, 1977 and (iii) that the confessional statements had been squarely retracted by the detenu on December 22, 1977 at the first available opportunity while he was in judicial custody-all of which had a material bearing and would have influenced the mind of the detaining authority one way or the other-were neither placed before nor considered by the detain ing authority before passing the detention order on January 4, 1978 F aud, therefore, the impugned order was liable to be set aside. We find considerable force in these contentions urged by counsel for the appellant before ns.

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the subjective satisfaction requisite on

the part of the detaining authority, the formation of which is a condition G precedent to the passing of the detention order will get vitiated if material or vital facts which would have a bearing on the issue and would influence the mind of the detaining authority one way or the other are ignored or not considered by the detaining authority before In Sk. Nizamuddin v. State of West issuing Bengal(') the order cr detention was made on September 10, 1973 H under s.3 (2) (a) of MISA based on the subjective satisfaction of the District Magistrate that it was necessary to detain the petitioner with

the detention order.

(I) A.I.R. 1974 S.C. 2353.

ASHADEVI v. ADDL. CHIEF SECY. (Tulzapurkar, /.)

221

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:a view to preventing him from acting in a manner prejudicial the maintenance of supplies and services essential to the community and his subjective satisfaction, according to the ground of detention fur nished to the petitioner, was founded on a solitary incident of theft of :aluminium wire alleged to have been committed by the petitioner on In respect of this incident of theft a criminal case April 14, 1973. was filed inter alia against the petitioner in the Court of the Sub Di visional Magistrate Asansol, but the criminal case was ultimately drop ped as witnesses were not willing to come forward to give evidence for fear of danger ta their life and the petitioner was discharged. It appeared dear on record that the history-sheet of the petitioner which was before the District Magistrate when he made the order of detention .did not make any reference to the criminal case launched against thO petitioner, much less to the fact that the prosecution had been dropped or the date when the petitioner was discharged from that ease. In ·connection with this aspect this Court observed as follows :

"We should have thought that the fact that a criminal case is pending against the person who is sought to be procee ded against by way of preventive detention is a very material circumstance which ought to be placed before the District Magistrate. That circumstance might quite possibly have an ,impact on his decision whether or not to make an order of It is not altogether unlikely that detention. the District Magistrate may in a given case take the view that since a criminal case is pending against the person sought to be de tained, no order of detention should be made for the present, but the criminal case should be allowed to run its full course and only if it fails to result in conviction, then preventive de It would be most unfair to tention should be resorted to. the person sought to be detained not to disclose the pendency of a criminal case against him to the District Magistrate."

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It is true that the detention order in that case was ultimately set aside •on other grounds but the observations are quite significant. These obser vations were approved by this Court in Suresh Mahato v. The District The principle that could be Magistrate, Burdwan and others('). clearly deduced from the above observations is that if material or vital facts which would influence the mind of the detaining authority Olll! way or the other on the question whether or not to make the detention -Order, are not placed before or are not considered by the detaining :authority it would vitiate its subjective satisfaction rendering the deten tion order illegal. After all the detaining authority must exercise

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due care and caution and act fairly and justly in exercising the power of detention and if extraneous to the taking into account matters scope and purpose of the statute vitiates the subjective satisfaction and renders the detention order invalid then failure to take into consi deration the most material or vital facts likely to influence the mind of the autl10rity one way or the other would equally vitiate the sub jective satisfaction and invalidate the detention order.

In the instant case admittedly three facts were not communicated to or pla~'t:d before the detaining authority before it passed the impugned order against the detenu, namely, (i) that during interrogation of the detenu, in spite of request neither the presence nor the consultation of the Advocate was permitted; (ii) that in spite of intimation to the Advo cate in that behalf the detenu was not produced before the Magistrate on December 14, 1977 and (iii) that the confessional statements were squarely retracted by the detenu on December 22, 1977 at the first available opportunity while he was in judicial custody; the first two had a bearing on the question whether the confessional statements had been extort~d under duress from the detenn or not, while the third obviously was in relation to the confessional statements which formed the main foundation of the impugned order and such were vital facts having a bearing on the main issue before the detaining authority. As regards the first this Court in Nandini Satpathy's(') case has observed in para 63 of the judgment thus :

"Lawyer's presence is a constitutional claim in some cir cumstances in our country also, and, in the context of Article 20(3), is an assurance of awaPoness and observance of the The Miranda decision has insisted that if right to silence. an accused person asks for lawyer's assistance, at the stage of interrogation, it shall be granted before commencing or con tinuing with the questioning. We think that Article 20(3) and Article 22 ( 1) may, in a way, be te}escoped by making it prudent for the police to p~rmit the advocate of the accused, if there be one, to be present at the time he is examined. Overreaching Article 20(3) and Section 16(2) will be obviat ed by this requirement. We do not lay down that the police must secure the services of a lawyer. That will lead to 'police- station-lawyer' system, an abuse whic)l breeds other vices. But all that we mean is that if an accused person expresses the wish to have his lawyer by his side when his examination goes on, this facility shall not be denied, without being exposed to the serious reproof that involuntary self-crimination secured in secrecy and by coercing the will, was the project."

(I) [1978] 2 S.C.C. 424.

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ASHADEVI v. ADDL. CHIEF SECY. (Tulzapurkar, J.)

223

In this case the request to have the presence/consultation of a lawyer A was turned down owing to some misconception of the legal position but that apart, the fact that such a request was made and refused ought to have been intimated to the detaining authority. Further, in passing the detention order the detaining authority obviously based its decision on the detenu's confessional statement of December 13 and 14, 1977 and, therefore, it was obligatory upon the Customs Officers to report B the retraction of those statements by the detenu on December 22, 1977 to the detaining authority, for, it cannot be disputed that the fact of retraction would have its own impact one way or the other on th~ detaining authority before making up its mind whether or not to issue the impugned order of detention. Questions whether the confessional C statements recorded on December 13 and 14, 1977 were voluntary statements or were statements which were obtained from the detenu under duress or whether the subsequent retraction of those statements by the detenu on December 22, 1977 was in the nature of an after thought, were primarily for the detaining authority to consider before deciding to issue the impugned detention order but since admittedly D the aforesaid vital facts which would have influenced the mind of the detaining authority one way or the other were neither placed before nor considered by the detaining authority it must be held that there was non-application of mind to the most material and vital facts vitiating the requisite satisfaction of the detaining authority thereby rendering the impugned detention order invalid and illegal. For these reasons we set E aside the impugned detention order.

P.B.R.

Appeal allowed .

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