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IN THE HIGH COURT OF MADHYA PRADESH
Mohammad Rafiq, CJ, Rajeev Kumar Dubey and Vijay Kumar Shukla, JJ.
Kamal Khare v. State of M. P. & Others
Writ Petitions No. 22290 of 2019, 717 of 2020 and 28804 of 2019 (Jabalpur); Decided on 22.4.2021
1) Legal Maxim -- generalia specialibus nonderogant -- general law shall not prevail over provisions of special law -- order of preventive detention under National Security Act does not overlap with penal provisions under Food Safety and Standards Act -- preventive detention law can operate side by side with penal law --these two Acts enacted to achieve different object and for different purpose -- FSSA based on act already done -- NSA based on likelihood of acting inmanner similar to past acts and preventing from repeating same -- principle not attracted. AIR 1964 SC 260, (1981) 1 SCC 315 and (2002) 5 SCC 548 followed. W.P. No. 21768 of 2019 decided on 8.11.2019 overruled. Principles of Statutory Interpretation by Jus. G.P. Singh relied on. W.P. No. 22290 of 2019 decided on 4.12.2019 referred to. [Paras 18 & 21]
(2) National Security Act, 1980 -- Ss. 3 and 14 -- General Clauses Act, 1897 -- S. 21 -- right to make representation to District Magistrate and authority to revoke detention order -- till detention is not approved by State Government, District Magistrate/Commissioner of Police, under whose order detenu has been kept under preventive detention, retains authority to revoke order by virtue of S. 21 of General Clauses Act as envisaged by S. 14 of NSA. (1995) 4 SCC 51 and (2020) 16 SCC 127 followed. (1991) 4 SCC 39, (1988) 4 SCC 490, (1994) 2 SCC 355 and (1994) 2 SCC 337 discussed. (2006) 2 Gauhati Law Reports 452 (FB) relied on. (1985) 2 SCC 24, (2000) 7 SCC 463, (1982) 3 SCC 10, (2006) 10 SCC 725, 2015 (3) MPLJ 157, 2012 SCC Online MP 4361, 2016 SCC Online MP 9868, 2016 SCC Online MP 1272, W.P. No. 5866 of 2015 decided on 4.6.2015, W.P. No. 1830 of 2015 decided on 1.4.2015, 2002 SCC Online All. 371, 2001 SCC Online Raj. 1268, (2014) 3 Gauhati Law Reports 760, Akhil Gogoi (2018) 2 GauhatiLaw Reports 453 and W.P. No. 2695 of 2019 decided on 12.4.2019 referred to. [Para 26]
(3) National Security Act, 1980 -- S. 3 -- Constitution of India -- Art. 22 (5)- not informing detenu that he has right of making representation to detaining authority -- effect -- District Magistrate or Commissioner of Police is obliged to communicate about right to make representation to him until detention order is approved by State Government within 12 days -- non-communication would vitiate detention order. (1995) 4 SCC 51 and (2000) 7 SCC 463 followed. [Paras 33 & 34]
(4) National Security Act, 1980 -- S. 3 (2) -- Food Safety and Standards Act, 2006 -- Ss. 26(2)(ii) and 52 -- Constitution of India -- Art. 19, 21 and 22 -- offence under FSSA -- prejudicial to maintenance of public order -- accused can be detained under NSA -- whether act would constitute simple breach of law and order, or breach of public order -- would solely depend on degree and extent of its reach and effect upon society -- effect of act restricted to certain individuals or group of individuals -- merely creates law and order problem -- effect, reach and potentiality of act so deep and pervasive that it affects community at large and disturbs even tempo of community -- it becomes breach of public order -- effect of act is material, not number of acts -- offences of nature which can be dealt with under ordinary law of land -- recourse to preventive detention would be contrary to Constitutional guarantees. AIR 1966 SC 740, (1982) 2 SCC 469, (1970) 1 SCC 98, (1972) 3 SCC 816, (1972) 3 SCC 831, (1979) 4 SCC 14, (1982) 2 SCC 403, (1982) 2 SCC 490, (2004) 8 SCC 591, (1975) 3 SCC 198, (2003) 8 SCC 342 and (2015) 12 SCC 127 followed. AIR 1982 SC 710, (1995) 4 SCC 598, (1987) 4 SCC 302, (1992) 2 SCC 97, (1993) 3 SCC 384, (2010) 9 SCC 618, (2011) 5 SCC 244, (2012) 2 SCC 176, (2012) 2 SCC 386, (2012) 2 SCC 389, 2011 (4) MPLJ 252, 2020 Cr.L.J. 1423, W.P. No. 16954 of 2020 decided on 21.12.2020 2020 (II) MPWN 37 referred to. [Paras 35, 44 & 48]
¼1½ fofèkd lw= & lkèkkj.k ckr fo'ks"k ckr dk vYihdj.k ugha djrh & lkèkkj.k fofèk fo'ks"k fofèk d¢ micaèk¨a ij vfÒÒkoh ugha g¨xh & jk"Vªh; lqj{kk vfèkfu;e d¢ vèkhu fuokjd fuj¨èk dk vkns'k v©j [kk| lqj{kk v©j ekud vfèkfu;e d¢ vèkhu nkafMd micaèk ijLijO;kih ugha & fuokjd fuj¨èk fofèk nkafMd fofèk d¢ lkFk&lkFk çofrZr g¨ ldrh gS & ;g n¨ vfèkfu;e fÒUu&fÒUu mn~ns'; dh iwfrZ d¢ fy, rFkk fÒUu ç;¨tu ls vfèkfufer & [kk| lqj{kk vfèkfu;e igys gh fd, tk pqd¢ dk;Z ij vkèkkfjr & jk"Vªh; lqj{kk vfèkfu;e xr ÑR;¨a d¢ leku jhfr esa dk;Z djus dh laÒkouk v©j mudh iqujko`fÙk djus ls j¨dus ij vkèkkfjr & fl)kar vkÑ"V ughaA , vkb vkj 1964 ,l lh 260] ¼1981½ 1 ,l lh lh 315 rFkk ¼2002½ 5 ,l lh lh 548 vuqlfjrA fjV ;kfpdk Øekad 21768 lu~ 2019 fu.kÊr fnukad 8-11-2019 myVk x;kA U;k;ky; thŒihŒ flag Ñr fçfUliYl vkWQ LVSP;wVjh baVjfçVs'ku voyafcrA fjV ;kfpdk Øekad 22290 lu~ 2019 fu.kÊr fnukad 4-12-2019 fufnZ"VA ¼iSjk 18 ,oa 21½
¼2½ jk"Vªh; lqj{kk vfèkfu;e] 1980 & èkkjk 3 rFkk 14 & lkèkkj.k [kaM vfèkfu;e] 1897 & èkkjk 21 & ftyk eftLVªsV d¨ vH;kosnu djus dk vfèkdkj rFkk fuj¨èk vkns'k okil ysus dk çkfèkdkj & tc rd jkT; ljdkj }kjk fuj¨èk dk vuqe¨nu ugha fd;k tkrk] ftl ftyk eftLVªsV@iqfyl dfe'uj d¢ vkns'k d¢ vèkhu fu#) O;fDr d¨ fuokjd fuj¨èk esa j[kk x;k gS mls jk"Vªh; lqj{kk vfèkfu;e dh èkkjk 14 }kjk ;Fkk ifjdfYir] lkèkkj.k [kaM vfèkfu;e dh èkkjk 21 d¢ dkj.k] vkns'k okil ysus dk çkfèkdkj jgrk gSA ¼1995½ 4 ,l lh lh 51 rFkk ¼2020½ 16 ,l lh lh 127 vuqlfjrA ¼1991½ 4 ,l lh lh 39] ¼1988½ 4 ,l lh lh 490- ¼1994½ 2 ,l lh lh 355 rFkk ¼1994½ 2 ,l lh lh 337 foosfprA ¼2006½ 2 xqokgkVh ykW fji¨V~Zl 452 ¼iw.kZ U;k;ihB½ voyafcrA ¼1985½ 2 ,l lh lh 24] ¼2000½ 7 ,l lh lh 463] ¼1982½ 3 ,l lh lh 10] ¼2006½ 10 ,l lh lh 725] 2015 ¼3½ ,e ih ,y ts 157] 2012 ,l lh lh vkWuykbu ,eih 4361] 2016 ,l lh lh vkWuykbu ,eih 9868] 2016 ,l lh lh vkWuykbu ,eih 1272] fjV ;kfpdk Øekad 5866 lu~ 2015 fu.kÊr fnukad 4-6-2015] fjV ;kfpdk Øekad 1830 lu~ 2015 fu.kÊr fnukad 1-4-2015] 2002 ,l lh lh vkWuykbu bykgkckn 371] 2001 ,l lh lh vkWuykbu jktLFkku 1268] ¼2014½ 3 xqokgkVh ykW fji¨V~Zl 760] ¼2018½ 2 xqokgkVh ykW fji¨V~Zl 453 rFkk fjV ;kfpdk Øekad 2695 lu~ 2019 fu.kÊr fnukad 12-4-2019 fufnZ"VA ¼iSjk 26½
¼3½ jk"Vªh; lqj{kk vfèkfu;e] 1980 & èkkjk 3 & Òkjr dk lafoèkku & vuqPNsn 22¼5½ & fu#) O;fDr d¨ lwfpr ugha djuk fd mls fu#) djus okys çkfèkdkjh d¨ vH;kosnu djus dk vfèkdkj gS & çÒko & ftyk eftLVªsV ;k iqfyl dfe'uj] jkT; ljdkj }kjk 12 fnol d¢ Òhrj fuj¨èk vkns'k vuqekfnr fd, tkus rd mls vH;kosnu djus d¢ vfèkdkj d¢ ckjs esa fu#) O;fDr d¨ lalwfpr djus d¢ fy, ckè; gS & lalwfpr ugha djus ls fuj¨èk vkns'k nwf"kr g¨ tk,xkA ¼2000½ 7 ,l lh lh 463 vuqlfjrA ¼iSjk 33 ,oa 34½
¼4½ jk"Vªh; lqj{kk vfèkfu;e] 1998 & èkkjk 3¼2½ & [kk| lqj{kk v©j ekud vfèkfu;e] 2006 & èkkjk 26¼2½ rFkk 52 & Òkjr dk lafoèkku & vuqPNsn 19] 21 rFkk 22 & [kk| lqj{kk vfèkfu;e d¢ vèkhu vijkèk & y¨d O;oLFkk d¢ laÒj.k d¢ çfrdwy & vfÒ;qDr d¨ jk"Vªh; lqj{kk vfèkfu;e d¢ vèkhu fu#) fd;k tk ldrk gS & ÑR; ls fofèk&OoLFkk dk lknk Òax xfBr g¨xk] ;k y¨d O;oLFkk dk Òax & ;g lekt ij mld¢ çÒko dh lhek v©j foLrkj ij iw.kZr% fuÒZj djsxk & ÑR; dk çÒko] foLrkj v©j {kerk brus xgjs v©j O;kid fd mlls lexz leqnk; çÒkfor rFkk leqnk; dh le xfr fo{kqCèk & mlls y¨d O;oLFkk Òax g¨rh gS & ÑR;¨a dk çÒko rkfRod gS] ÑR;¨a dh la[;k ugha & bl çÑfr d¢ vijkèk ftuls ns'k dh lkekU; fofèk d¢ vèkhu fuiVk tk ldrk gS & fuokjd fuj¨èk dk vkJ; ysuk lkafoèkkfud çfrÒwfr;¨a d¢ çfrdwy g¨xkA , vkb vkj 1966 ,l lh 740] ¼1982½ 2 ,l lh lh 469] ¼1970½ 1 ,l lh lh 98] ¼1972½ 3 ,l lh lh 816] ¼1972½ 3 ,l lh lh 831] ¼1979½ 4 ,l lh lh 14] ¼1982½ 2 ,l lh lh 403] ¼1982½ 2 ,l lh lh 490] ¼2004½ 8 ,l lh lh 591] ¼1975½ 3 ,l lh lh 198] ¼2003½ 8 ,l lh lh 342 rFkk ¼2015½ 12 ,l lh lh 127 vuqlfjrA , vkb vkj 1982 ,l lh 710] ¼1995½ 4 ,l lh lh 598] ¼1987½ 4 ,l lh lh 302] ¼1992½ 2 ,l lh lh 97] ¼1993½ 3 ,l lh lh 384] ¼2010½ 9 ,l lh lh 618] ¼2011½ 5 ,l lh lh 244] ¼2012½ 2 ,l lh lh 176] ¼2012½ 2 ,l lh lh 386] ¼2012½ 2 ,l lh lh 389] 2011 ¼4½ ,e ih ,y ts 252] 2020 lh vkj ,y ts 1423] fjV ;kfpdk Øekad 16954 lu~ 2020 fu.kÊr fnukad 21-12-2020 rFkk 2020 ¼2½ eŒÁŒ ohDyh uksV~l 37 fufnZ"VA ¼iSjk 35] 44 ,oa 48½
ORDER
Rafiq, C.J, -- 1. These three matters have been placed before the Larger Bench upon a reference by two separate orders passed by a Division Bench of this Court at Principal Seat at Jabalpur and another Division Bench of this Court at Indore Bench. The first order was passed by Division Bench at Principal Seat, Jabalpur on 4.12.2019 in W.P. No.22290/2019 (Kamal Khare v. State of M.P. and others) which is a writ petition filed in the nature of Habeas Corpus against an order dated 13.8.2019 passed by District Magistrate, Jabalpur in exercise of his powers under section 3(2) of the National Security Act, 1980 (for short “the NSA”) whereby the petitioner was directed to be detained for a period of three months from the date of his detention. When the matter was listed before the Division Bench on 4.12.2019, there was a difference of opinion between two Hon’ble Judges constituting the Division Bench. They have therefore made a reference to the Larger Bench for answering the following questions of law:-
“Where the offence is committed under Regulatory Act such as Food Safety and Standards Act, 2006 which contains penalty clause, under no circumstances, an action can be taken against a person whose activities are prejudicial to maintenance of public order under the National Security Act, 1980.”
2. Subsequently, a Division Bench of this Court at Indore Bench in W.P. No.28804/2019 (Manish v. State of M.P. and others) and W.P. No.717/2020 (Laduram v. State of M.P. and others) vide order dated 13.2.2020 also made a reference to the Larger Bench for answering the following questions of law :
a) Whether a detainee, who is detained under the National Security Act, 1980 has got a right to make a representation to the District Magistrate who acts on behalf of the State Government as the State Government is the appropriate Government within the meaning of section 2(a) of National Security Act, 1980?
b) Whether the order of detention is a nullity in absence of such a communication informing the detainee about his right of making representation to the District Magistrate, even though the Detainee has been informed by the District Magistrate to make a representation to the State Government/to the Union of India/ Advisory Board?
c) Whether the District Magistrate keeping in view the scheme of the Act i.e. the National Security Act, 1980 has the power to revoke the order of detention once passed by him in view of section 10 and section 14 of the National Security Act, 1980 ?
3. Both these matters i.e. Writ Petition No.22290/2019 of rincipal Seat, Jabalpur and Writ Petition Nos. 28804/2019 and 717/2020 of Indore Bench, were ordered to be combined and listed together by order of the Chief Justice of this Court on administrative side dated 14.2.2020. Arguments in both the sets of cases therefore were heard simultaneously. Referred questions are being answered by this common judgment.
4. We have heard Shri Naman Nagrath, learned Senior Counsel for the petitioner in WP No. 22290/2019, Shri Sankalp Kochar, learned counsel for the petitioner in WP No.717/2020 and WP No. 28804/2019 and Shri Ajay Pratap Singh, learned Deputy Advocate General for the respondents/State.
5. Shri Naman Nagrath, learned Senior Counsel appearing for the petitioner in W.P. No.22290/2019 submitted that the power under section 3(2) of the NSA has been invoked by the respondents for preventive detention of the petitioner for a petty offence inasmuch as the petitioner has been running the business of retail sale of milk and milk products in the name and style as “P.K. Paneerwala”. He has got registration/permission issued by the Food and Safety Administration under the Food Safety and Standards Act, 2006 (hereinafter referred to as “the FSSA”) as well as by the Municipal Corporation, Jabalpur. A sample of cottage cheese (Paneer) was collected from the shop of the petitioner on 10.7.2019 by the designated officer under the FSSA. As per the respondents, the said sample was found
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