SALIM versus STATE OF WEST BENGAL

CHANDRACHUD, J.The petitioner, Skq. Salim, challenges by this petition under Article 32 of the Constitution an order of detention passed by the District M:igistrate, 24-Parganas, under the Maintenance of Internal Security Act, 1971. The order was vassed on June 13, 1972 avowedly with a view to preventing the petitioner from acting in any manner prejudicial to the maintenance of supplies a•.1d services essential to the community. The particulars furnished to the petitioner refer to two incidents of theft dated January 31 and Febnrary 23, 1972. The former relates to a theft of underground copper cables and the latter to a theft of A.C.S.R. Coaductors. The particulars further mention that on February 24, 1972 the petitioner and two of his named associates were found in possession of 30 K. Gs of stolen A.C.S.R. Conductors.

p. 395, margin B

Section 3 (1) of the Act empowers the Centml Government and the State Governments to pass orders of dete<ation for the reason;: therein mentioned. Secti.on 3 (2) confers power on District Magistrates, speci'ally empowered Additional District Magistrates and Commisstoners of Police to pass orders of detention for reasons specified therein. If an order of detention is passed by any of these officers.

p. 395, margin D

"hr. shall forthwith report the fact to the State Gover,1ment to which he is subordinate together with the grounds on which the order has been made, and such other particulars as in his opinion have a bearing on the matter, and no such order shall remain in force for more than twelve days after the making thereof unless in the mea·.1time it has been

p. 395, margin D

. approved by the State Government : " ' ffhat is the clear mandate of section 3 (3).

p. 395, margin D

The District Magistrate, in the instant case, made the detention · order on June 13, 1972 and on me 15th he reported the fact of making the order to the State Government. The question for consitleration, which has been argued with some fervour by the learned counsel appearing amicus curiae for the petitioner, is whether the District Magistrate can be said to have repbrtcd the making of the order "forthwith" as required by section 3 (3).

p. 395, margin F

Laws of preventive detention by which subjects are deprived of their personal liberty without .the safeguards available in a judicial trial ought to be comtrued with the greatest strictness. Courts must therefore be vigilant to ensure that the detenu is not deprl;ed of the modicum of rights a<ad safeguards which the preventive law itself affords to him. The Maintenance of Internal Security Act contains what is evidently thought to be a scheme of checks and counter-checks by which the propriety or necessity of a detention order may at various stages be exami'.ted by various authorities. . If an order of deten~i?n is made by ~. District Magistrate .or. a spec1alry. empow~red _,A~d1t1onal Dis.trict Magistrate or a Comm1ss1oner of Police, he is required by section 3(3) to report "forthwith" to the State Government about ~he making of the order. The order c;lnnot remain in force for more tlrnn : 12 days or in the circumstances mentioned in the Proviso to section 3(3), for more than 22 days unless in the meantime it has been approved by the State Government. If the ordet is made o~ approved by the St•ate Government it must under section 3 ( 4) report the fact to the Central Government within 7 days. By sectio.u 10, save as otherwise expressly provided in the Act, the appropriate Government sh~U witpin 30 days from the date of detention under the order, place before the Advisory Board constituted under section 9 the grounds on which the order has b(:en made, the representation if a,1y m'ade by the detenu and in case where the order has been made by any of the officers specified \111dcr section 3 (2), the report made by the officc~r under section 3 (3). Section J 1 (1) requires the Advisory Board to submit its report. to the appropriate Government within 10 weeks from the date of detention. This time-schedule, evolved order obviously to provide an expeditious opportunity at different levels for testing the justification of the detention order has to be observed scrupulously and its rigour cannot be relaxed on any facile assumption that what is good if done within 7, 12 or 30 days could as well be good if done, say. withi'.1 JO, 15 or 35 days.

pp. 395–396, margin G

The requirement that the District Magistrate or the other officers malking the order of detention shall forthwith report the fact of making the order to the State Government can therefore admit of no relaxa, .. tion, especially because it has a distinct and important purpose to serv(:. The 12 days' period which the Act in normal circumstances allows to the State Government for approving the detentio'.1 order is evidently thought to be reasonably' necessary for enabling the Government to consider the pros and cons of the order. Delay on the part of the District Magistrate or the other officers in reporting to the State Gov.::tll:· ment the fact of maki'.1g the detention order would inevitably aurtail the period available to the State Government for approving the detention order. The period of 12 or 22 days. as the case may be, whic:~ is referred to in section 3 ( 3) runs from the date on which the order of detention is made and not from the date on which the fact of makinii the order is reported to the State Government. Such a delay may conceivably lead to a hunied and cursory consideration of the pro·priety or justification of the order and thereby impair a valuable safeguard available to the detenu. A liberal construction of the requirement that the officer makin~ the order of detention shall forthwith report the fact to the Sta:~ Government is therefore out of place.

p. 396, margin D

' Contending for the acceptance of the literal meaning of the word 'forthwith', counsel for the petitiO'.ler argues that administrative cxigen- .cies cannot ever be 'allowed to explain away the delav between the ~a~:ing of .the detenti~n order and the report of it to the State Govem- --meiltt. . It is an esilabl!shed rule of construction that unless the langu·age of the statute i.~ ambiguoo~, the words used by the Jegi~lature ought

p. 396, margin G

v. (Chandrachud, to be given their plain, literal meao.1ing. But it tilat by ·nq rule of construction ffi'ay the words pretcd~.as to bring about absurd situations hold of stark literalness has therefore to be a rational meaning and content to the la'aguage Thus, though the word 'forthwith' cannot be indolence or laxity on the part of the officer reporting the detention to the State Government, has to be m-ade for unavoidable delays, always detaining authority must explain any long delay stances due to which the report to the State ma'1e with the greatest promptitude.

p. 397

The dictionary meaning of 'forthwith; without delay or interval". A typical instance cited in the dictionary is : "When a defendant with, he must plead within twenty-four hours" English Dictio'.iary, Third Edition, Vol. the mandate that the report shonld be made for its compliance a foYow-up action at order of detention is made. There ought cannot be condoned in face of the command made forthwith. The legislative mandate, ed mathematically in terms of seconds, to find whether the report was mal:Ie forthwith. gencies may on occasions render a post-haste and therefore a reasonable allowance has delays. This approach does not offend in Ki.shori Mohan Bera v. State of West Blutt Nath Mete v. The State of West Ben;:ai( ing a 3ubject of personal liberty must be of strict constructi0',1 is no justification for performed 'forthwith' must be perf.ormed without any intervening intem1! of time or simultaneously with the other act. Citing remae)' tviaxwell says that where something a Court will not require instantaneous comtlliance requirements ("The Interpretation' of Statut.es"

p. 397, margin B

In Keshav Nilkanth /o~kkpr v. The Greater Bombay(4), •a Constitution Bench

p. 397, margin F

with· a similar contention foundt:d on section · Detention Act IV of 1950, which,was in 3(3) of the Act under consideration. passed in that case on January 13, 1956 Government was made on January 21. offered by the detaining authority in his not make the reoort earlier. the Court held under section 3 ( 3) was whether the report ~~~~~~~~~~ble and when there is (n sec the date of the order and the date of the report, whether the delay could have been avoided. The test which the Court applied for determining whether the report was made forthwith was whether the act was done "with aH reasonable despatch •.ind without <l\'<.'idabk cklay."

pp. 397–398, margin F

In Bidya Deb Banna Etc. v. Diwi,:1 ,iJaf;istra:e. Tripura, Agar/a/a, ( the same problem arose for consideration. The District Magistrate had passed the order of dctl'ntion under the Preventive Detention Act, 1950 on February 9, 1968 but made his report to the State Govcrnme'.lt on February 13. While cxpluining the delay, the District Magistrate stated in his affidavit that 10th and 11th Fdiruary were closed days and he was during the particular period "extremely busy" due to "heavy rush of work." This explanation was accepted by the Court as satisfactory. In coming to the conclusion that there was no violation of the requirement that the report should be made 'forthwith', the Constitution Bench relied on Joglekar's case a,1d on the following passage which occurred in Maxwell's 1 lth edition at page 341 :

p. 398, margin A

''When a statute requires that something shall be done "forthwith", or "immediately" or even "instantly'', it should probably be understoo\:! as allowing a reasonable time for doing it."

p. 398, margin C

Thus, 'forthWith' does not conaote a precise time and even if the statute under consideration requires that the report shaU be made forthwith, its terms shall have been complied with if the report is made without avoidable or unreasonable delay.

p. 398, margin D

In Hillingdon London Borough Council v. Cutler( Harman L.J. while holding that the concept of 'forthwith' does not exclude the allowance of a reasonable time for dorag the act, qualified his formulation by adding the rider "provided that no harm is done." Applying that test, no prejudice has been caused to the petitioner by the late making of the report. The Srate Government could approve the d1!tention any time before June 25, the order havin!; b~en passed on June 13. The report was made to the State Government cm .Tune 15 which still left to it a margin of about 10 days to consider the merits of the order. It. cannot be said that the delay in making the report left to the State Government insufficient time to consider whether the order of detention should be approved. The order was in fact approved on June 21, much before the expiry of the statutory period of 12 days.

p. 398, margin E

The District Magistrate, it must be stated, has not explained in his affidavit why he did not report the fact of detention to the State Government promptly. The order js dated June 13 and if not on the 13th itself, he should have in normal circumstances made his report on the 14th. Such remisness on the part of detaining authorities is not to be encouraged but it ought to be stated that counsel for the State Government ha\i asked for an adjournment to enable the District Maf!istrate to file a supplementary affidavit for explaining the delay. We 1 S.C.R. I Q.B. at p. did not grant. the adjournment as we were inclined to the view that the interval between the date of the order and the date of the report is not long as to require an explanation on oath. The date on which the order was passe~:I. may, even according to the petitioner's counsel be left out of the reckoning. That accounts for the 13th. The report was made on the 15th and there' is some authority for the proposition that an act may be taken as done "at the first moment of the day on which it was performed" (See Maxwell, 12th Ed. pp. 311-312). That takes. care of the 15th. All that can therefore be said is that there was one day's delay in making the report. We arc not inclined to dismiss as untrue the oral explanation offered on behalf of the District Magistrate that he could not make the report on the 14th due to administrative difficulties. As it cannot be said that the District Magistra :e had. slept over the order or was "lounging supinely" over it and since the explanation of one day's delay ml!)' be accepted as reasonable, there is no violation of the requirement that the report to the State Government shall be made forthwith.

pp. 398–399, margin G

A few other contentions were raised on behalf of the petiti'oner but. we se,e no substance in any one of them. It is contended that section 3(4) has been violated because the State Government did not make a report to the Central Government within 7 days of the date of the order of detention. The short answer to this contention is that the period of 7 days has to be reckoned from the date on which the State Government approved the order and not from the date on which the District Magistrate passed the order. If the order were made by the State Government, the report would have been required to be made to the Central Government within 7 days of the date of the oltler; but the order in the instant case was approved and not made by the State Government. It was then said that there was no proximity between the iqcidents leading to the detention and the order of detention as. there was a gap of about 4 months in between. The explanation of the interval is that the petitioner was being prosecute(! and an order of discharge had be obtained on June 17, 1972. The order of detention was passed 4 days betbre the order of discharge was passed. ·It is next contended that the State Govemment having rejected the peti· tioner's representation the very next day that it was received, it' must be held that it did not apply its riiind to the representation. We do not suppose that the length of time which a decision takes necessarily reflects the care or openness brought to bear upon it. The answer to yet another contention that the entire material which influenced the subjective satisfaction of the Magistrate in passing the order of detention was not supplied to the petitioner is that according to the countered affidavit of the District Magistrate, nothing apart from what is stated

p. 399, margin A

the grounds and the particulars was taken into account while pass· A in ing the order of detention. The last submission that the petitioner could have bee11 prosecuted for the .acts attributed t-o him has b<~en answered by this Court in numerous cases by saying that the availability of an alternate reme:dy is not by itself an effective answer to the validity of the detention.

p. 400

In the result we dismiss the petition and discharge the rule. P.H.P. Petition dismissed.

p. 400