Holding

The detention order is invalid because the detaining authority failed to apply mind and lacked subjective satisfaction based on relevant, proximate material, and therefore the order is quashed.

Summary

The petition challenged a detention order dated 23 May 1988 issued by the Commissioner of Police, Ahmedabad under Section 3(2) of the Gujarat Prevention of Anti‑Social Activities Act, 1985 against Abdul Latif Abdul Wahab Sheikh, who was already in jail. The petitioner argued that the detaining authority had not applied its mind, relied on stale or irrelevant past conduct, and falsely claimed a possibility of the detainee being released on bail. The Court examined the requirement of subjective satisfaction, relevance and proximity of material, and the need for fresh facts justifying detention. It found that the authority was unaware that no bail application had been filed, that the grounds were vague and not proximate, and that no prejudicial act was alleged during the only period the detainee was free. Consequently, the order was held invalid and quashed, directing the detainee’s immediate release.

Issues considered

Whether the detaining authority exercised the requisite subjective satisfaction and applied mind while passing the detention order under Section 3(2) of the Gujarat Prevention of Anti‑Social Activities Act, 1985.
Whether the past conduct and antecedent history cited are proximate and relevant to justify preventive detention.
Whether the grounds of detention, including the alleged possibility of release on bail, are sufficient and based on material facts.
Whether the order of detention violates the principles laid down in preventive detention jurisprudence regarding fresh material and relevance.
Whether the detention order should be quashed.

Legislation cited

Gujarat Prevention of Anti-Social Activities Act, 1985s. 15(2), s. 3(2)
National Security Act, 1980s. 3
Preventive Detention Act, 1950s. 3(1)(a)
Terrorist and Disruptive Activities (Prevention) Act, 1985s. 16

Subjects

preventive detentionsubjective satisfactionapplication of mindGujarat PASAbailpublic orderdetaining authorityquashing order

Judgment

A ABDUL RAZAK ABDUL WAHAB SHEIKH
v.
S.N. SINHA, COMMISSIONER OF POLICE, AHMEDABAD
AND ANOTHER

B MARCH 3, 1989

[B.C. RAY AND S, RATNAVEL PANDIAN, JJ.]
·1"'j

Gujarat Prevention of Anti-Social Activities Act, 1985-Section
3(2)-Detention order-Whether legal and in accordance with law- \a.......:...
Necessity for the detaining authority to consider all relevant material. ~---
.;~
c
National Security Act 1980--Section 3-Detention order-Sub-
jective satisfaction of detaining authority based on application of -;(_
mind-Necessity for making an order of detention-Past history and
antecedents of detenu-When relevant.
D
The Commissioner of Police, Ahmedabad, Respondent No. J
therein passed an order of detention dated 23.5.1988 against Abdul Latif
Abdul Wahab, petitioner's brother under section 3(2) of the Gujarat
Prevention of Anti-Social Activities Act; 1985 and served the same on the
detenu, while he was in jail, in pursuance of an order of remand made
~
E by the Designated Court, Ahmedabad in CR No. 40 00987. The peti-
tioner, detenu's brother challenged the validity of this order on the
ground, amongst others, that there bas been absolute non-application
of mind on the part of the detaining nuthority in making the order of
detention. 111
F The grounds of detention furnished to the detenu, makes mention
of three criminal cases viz. Case no. 372/85, Case no. 456/87 and Case
no: 2/88 pending against the detenu at P .S. Kalupur, out of which case
~
no. 372/85 is stated to be pending in Court and the other two pending
for examination. The detaining authority acting on the basis of the said
complaints apprehended that detenu's criminal activities will adversely
affect the public order because the activities, the weapons kept by the
G
detenu and his associates cannot except create terror in the State of
Gujarat. The detaining authority further felt that the detenu though in
jail, there are full possibilities that he may be released on bail in that --;.
offence. It may he pointed out that in case no. 2/88, the name of the
detenu does not find place in the FIR. Likewise in case no. 372/85
H aforesaid, detenu's name is not there.

890
J !
I ,

ABDUL RAZAK v. S.N. SINHA 891

In case no. 456/87, registered on 16.10.87 the detenn was arrested
A
the same day. The case related to the seizure of a revolver from the
person of detenn. The detaining authority while issuing the order of
detention against the detenn, did not ljt all consider the factthat the
Designated Court ·declined to grant bail to the detenn by its order .dt.
May 13, 1988. The detaining authority also was not aware that no
application for bail by detenn was filed between May 13 to May 23, 1988 B
i.e. when the detention order was made.

The Court in order to decide the various contentions advanced by
the parties felt it necessary to consider the background as well as the
various detention orders passed against the detenu. The first in the
series is an order dt. 11th September, 1984 when the Respondent No. 1 C
-I issued to the detenn a notice to show cause why he should not be ex-
.lr· terned from the boundaries of Ahmedabad and the surroundings rural
areas. In 1985 the detenn was arrested n/s 307, 143, 147, 148 & 324,
I.P .C. CR case no. 37 /85 wherein he was granted bail by the Sessions
Judge on February 14, 1985. On 24th March 1985, Commr. of Police
passed an order of detenn's detention. On 6th Jnly 1985 charge-sheet in D
CR Case No. 37 of 1985 was submitted. On 27th September, 1985
inqniry into the externment proceedings was completed. On Dec. 12,
1985 the detenu surrendered and was taken into custody. On May 26,
1986, the detenn was acquitted in that case. The detenu was released
from the jail on June 2;i, 1986 and as soon as he came out of the jail, an
order of detention under Prevention of Anti Social Activities Act was E
served on the detenn there and then and he was once again taken into
cnsto.dy. It may be mentioned in this connection that on Jan. 18, 1986,
the order of externment of the detenu from Ahmedabad city and rural
,

f
r areas of Gandhi Nagar etc. was made when the detenu was in jail. The
State Govt. on appeal by the detenn confirmed the order of externment.
However on August 7, 1986, the Govt. revoked the order of detention, F
as Advisory Board could not .be constituted. On the same day the State
Govt. passed the second order of detention under PASA and the same
was served on the detenn the same day. The detenn challenged the
validity of both the externment order as also the detention order in the
High Court. The High Court rejected the petition challenging the order
of detention and he filed petition for special leave in this Court. This G
Court released the detenu on parole on 23.1.87 as he was to participate
.t· in municipal elections which were to take place 11n 25th Jan. 1987. The
detenu was released on parole on 24th Jan. 1987. He won the election
from all the wards wherefrom he had contested.

This Court on February 9, 1987 quashed the detention order and H.

Id
892 SUPREME COURT REPORTS [1989] l S.C.R.

directed the respondents to set the detenu at liberty.
A

On February 14, i987 when the deteuu went to the police station
with his advocate to mark his presence as required by the earlier bail
order, he was again taken into custody for breach of order of extern-
ment of 18.1.1986. He was granted bail.
B
On February 15, 1987 an order of detention under section 8(a) of
the National Security Act was passed against the detenu. The detenu
challenged the same but in the meantime Advisory Board released him.

On October 16, 1987, the detenu was again arrested for an inci-
dent of Feb. 14, 1986. He applied for bail before the Designated Court
c which was refused. Against that order he preferred an appeal to this
Court under section 16 of the Terrorists and Disruptive Activities
(Prevention) Act 1985. This Court set aside the order of the Designated
Court and remitted the matter back to the said Court with a direction to
decide ,the matter afresh and enlarge the detenu on bail pending the
D disposal of the application for bail.

Another order of detention was passed against the detenu on Jan.
25, 1988 which was later withdrawn as the Advisory Board declined to
confirm the same. The detenn was released on March 14, 1988. ~,

E At the hearing of the appeal by this Court on 7.4.88 an application
was made that the detenu has absconded whereupon this Court ordered
that the detenu should surrender within a week's time. He accordingly
surrendered on April 13, 1988. On May 23, 1988 the order of detention
in question was made which is hereby challenged.

F The contention raised on behalf of the petitioner is that in the
grounds of detention furnished in support of the order of detention, no
prejudicial act on the part of the detenu is alleged between March 14,
1988 and April 13, 1988 during which small period he was a free man;
as he was in jail for nearly three years prior to March 14, 1988 except
for short periods when he was on parole, and after April 13, 1988 again
G he was under custody. It is urged that no prejudicial activity has been
shown, when the detenu was on parole. As such the action of the respon-
dent is wholly vindictive and in total defiance of law. According to him
there has been no application of mind at all to the most glaring fact that
the Designated Court in defiance of this Court's order did not grant
interim bail to the detenu by its order dt. 13.5.88. There was no possi-
H bility therefore of the detenu being released on bail. It was thus impossi-
ABDUL RAZAK v. S.N. SINHA 893

hie to prove the statement made in the grounds of detention that there A
were full possibilities that the detenu may be released on bail in this
case.

Allowing the petition, this Court,

HELD: The detention of a person without a trial is a very serious B
encroachment on his personal freedom and so at every stage, all ques-
tions in relation to the detention must be careflllly and solemnly
considered. l901G I

The past conduct or antecedent history of a person can be taken
into account in making a detention order but the past conduct or C
antecedent history of the person, on which the authority purports to
act, should ordinarily be proximate in point of time and would have a
rational connection with the conclusion drawn by the authority that the
detention of the person after his release is necessary. 190 lF-G I

There must be awareness in the mind of the detaining authority D
that the detenu is in custody at the time of service of the order
of detention on him, and cogent relevant materials and fresh facts
have been disclosed which necessitate the making of an order of
detention. l90SD-E]

In the instant case, the detenu was in jail custody in connection E

- with a criminal case and the order of detention was served on him in
jail. It is also evident that the application for bail filed by the detenu was
rejected by the Designated Court on May 13, 1988. The statement in the
grounds of detention that at present you are in jail yet "there are full
possibilities that yon may be released on bail in this offence also"
clearly shows that the detaining authority was completely unaware of F
the fact that no application for bail was made on behalf of the detenu for
his release before the Designated Court and as such the possibility of his
coming out on bail is non-existent. This fact of non-awareness of the
detaining authority clearly establishes that the subjective satisfaction
was not arrived at by the detaining authority on consideration of rele-
vant materials. The only period during which he was free person was . G
from March 14, 1988 to April 13 1988. During this period no act pre-
judicial to the maintenance of public order has been alleged to have
been committed by the detenu. l90SE-G; 906E-F]

A mere bald statement that the detenu is in jail custody is likely to
be released on bail and there are full possibilities that he may continue H
894 SUPREME COURT REPORTS I 1989] 1 S.C.R.
A the offensive activities without reference to any particular case or acts l·
does not show on the face of the order of detention that there has been
subjective satisfaction by the detaining authority in making the order of
detention in question. l907C-D I

The order of detention was accordingly quashed and the detenu
B directed to be set at liberty forthwith. l907D I _,.
Rameshwar Shaw Burdwan & Anr. v. Distt. Magistrate Burdwan
& Anr., 11964] 4, SCR 921 referred to; Alijan Mian v. Distt. Magistrate
Dhanbad & Ors. etc., 11983] 4 SCC 301 referred to; Ramesh Yadav v. 'r->-
Distt. Magistrate, Etah & Ors., 11985] 4 SCC 232 referred to; Suraj Pal
C Sahu v. State of Maharashtra & Ors., 11986] 4 SCC 378 referred to;
Vijay Narain Singh v. State of Bihar & Ors., 11984] 3 SCR 459 referred
to; Raj Kumar Singh v. State of Bihar & Ors., 11986] 4 SCC 407 refer- '°'
red to; Binod Singh v. Distt. Magistrate Dhanbad & Ors., [198614 SCC
416 at 420-21; Poonam Lata v. M.L. Wadhawan and Anr., [1987] 4
SCC 48 referred to and Smt. Shashi Aggarwal v. State of U.P. & Ors.,
D 11988] l SCC 436 at 440, referred to.

ORIGINAL JURISDICTION: Writ Petition (Criminal) No. 307
of 1988.

(Under Article 32 of the Constitution of India)
E
Ram Jethmalani, U .R. Lalit, Ms. Kamini Jaiswal and Arvind
Nigam for the Petitioner. .-

T.U. Mehta, Dushiant Dave, M.N. Shroff and Mrs. S. Dikshit ,j
for the Respondents. (
F t
The Judgment of the Court was delivered by

RAY, J. The petitioner who is the brother of detenu, Adbul
Latif Abdul Wahab Sheikh of Ahmedabad has challenged in this writ
petition the order of detentioJl dated May 23, 1988 passed by the
G respondent No. 1, the Commissioner of Police, Ahmedabad City,
Gujarat issued under Section 3(2) of the Gujarat Prevention of Anti-
social Activities Act, 1985 and served on the detenu while the detenu
was in custody at Sabarmati Central Prison under a judicial order of
remand made' by the Designated Court, Ahmedabad in respect of
C.R. No. 40 of 1987, on the grounds inter alia that there has been
H absolute non-application of mind on the part, of the detaining authority
,·.·/
ABDUL RAZAK v. S.N. SINHA [RAY, J.] 895

in clamping the order of detention and also on other grounds. A
\:
In order to decide the various contentions raised in this writ
petition, it is necessary to consider the background as well as the.
various orders of detention passed against the detenu by the detaining
authority, the respondent No. 1. On September 11, 1984, the .detenu
was served with a show-cause notice under Section 59 of the Bombay B
f. Police Act, 1951 calling upon him to show cause as to why he should
not be extemed from the limits of Ahmedabad City Police Commis-
sioner's jurisdiction and its surrounding areas as also from the rural
-:·~ areas of Gandhinagar, .Kheda and Mehsana District limits for the
activities of February, 1983. In 1985 the detenu was arrested for
alleged offences under Sections 307, 143, 147, 148, 149 and 324 of
Indian Penal Code in C.R. No. 37 of 1985. On February 14, 1985 the
c
detenu was granted bail in the said case by the Sessions Court,
).
Ahmedabad. On March 18, . 1985 communal riots broke out in
Ahmedabad city and on March 24, 1985 an order of detention under
the National Security Act was passed against the detenu by the respon-
dent No. 1. During the communal riots one Police Sub-Inspector, Mr. D
Rana was killed in Kalupur P.S. F.l.R. was lodged against the detenu
and six other accused on May 9, 1985. In the FIR the detenu was
named as accused No. 2. On July 6, 1985 charge-sheet was submitted
in C.R. No. 37 of 1985. On September27, 1985 enquiry was completed
1' in extemment proceedings and arguments were heard. On November
12, 1985, the detenu surrendered to police and he was arrested and E
taken into custody. In the said case accused Nos. 6 and 7 were dis-
~ charged, the detenu along with accused No. 4 was tried in the said
;~
charge by the Principal Judge, Sessions Court who by his Judgment
dated May, 26, 1986 acquitted the detenu and the co-accused after
~ recording of the evidence of witnesses and considering the same. The
detenu was, however, enlarged on bail by the Magistrate in the said F
1' case vide his order dated June 23, 1986 as no case was made out against
J
the detenu under Section 307 l.P.C. and the offence, if any, was only
under Section 324 l.P.C. The detenu was released from jail on June
23, 1986 and immediately as he came out, an order of° detention under
the Prevention of Anti-Social Activities Act (PASA) was served on the
detenu there and then and he was once again taken into custody. It is G
relevant to mention in this connection that on January 18, 1986 the
~· order of extemment of the detenu from Ahmedabad City and rural
areas of Gandhinagar etc. was made while he was in custody. The
detenu preferred an appeal against the· extemment order which was
heard by the Deputy Secretary (Home). The State Government con-
firmed the order of ei<ternment on June 23, 1986. On Aug_11st 7, 1986, H.
896 SUPREME COURT REPORTS [1989] 1 S.C.R.

the State Government revoked the order of detenti0n dated June 23,
A ~
1986 on the ground that no Advisory Board was constituted. On the
same day, however, the State Government passed the second order of
detention under PASA and the same was served on the detenu on the
same day. The detenu filed a Special Criminal Application No. 862 of
1986 challenging the extemment order dated January 18, 1986 and its
B confirmation order dated June 23, 1986 before the High Court of
Gujarat. The detenu also filed another Special Criminal Application ~
No. 889 of 1986 before the High Court challenging the second order of
detention dated August 7, 1986. The Special Criminal Application No.
889 of 1986 was dismissed by the High Court on October 21, 1986. 'f~·>-
Against this judgment the detenu filed a Special Leave Petition (Cri.)
No. 3762 of 1986 before this Court and the said Petition was finally
c heard in part on January 23, 1987 and it was adjourned to February 3,
1987. This Court released the detenu on parole only on January 23,
1987 fpr the reason that the detenu was required to be in Ahmedabad J
because the Corporation elections were to take place on January 25,
1987. Unfortunately, the mother of the detenu expired on January 23,
D 1987, but in spite of the order of parole made by this Court, the State
Government permitted the detenu to attend his mother's funeral by
granting him parole for only four hours and after the funeral, the
detenu was again taken into custody. Thereafter, the detenu was
released on parole on January 24, 1987. The elections for the Corpora-
lion were held on January 25, 1987 and the detenu was declared -!
E elected from all the wards from which he had contested.

On February 3, 1987, the appeal of the detenu was heard finally
~
by this Court and this Court extended the parole granted to him till the •
judgment was delivered in the case. However, on February 3, 1987

F
in spite of the orders of parole, the detenu was kept in custody and was
released only on the next day i.e. February 4, 1987. This Court by its
judgment dated February 9, 1987 quashed the detention order and
'1t
directed the respondents to set the detenu at liberty forthwith. '

The detenu in terms of bis earlier bail orders was required to be
present before Kalupur P.S. every morning at 11 a.m. and he con-
G tinued to do so from February 9 to February 14, 1987. On February 14,
1987 when the detenu reported at Kalupur P.S. along with his Advo-
cate to record his presence, he was asked to wait there. At about 12.30 _,
p.m., he was informed that he was taken into custody for breach of
orders of extemment dated January 18, 1986. The FIR against this
case was registered and the detenu was produced before the Metro-
H politan Magistrate at about 1.30 p.m. The Metropolitan Magistrate
ABDUL RAZAK v. S.N. SINHA [RAY, J.] 897

granted bail to the detenu. At that time the detenu received the news
A
that disturbances had broken out in the city of Ahmedabad and, there-
fore, he declined to avail of the bail order and requested the Magis-
trate to take him into custody. On February 15, 1987, the order of
detention under Section 8(a) of the National Security Act was passed
against the detenu by the Commissioner of Police, Ahmedabad City.
The detenu was served with the order which was confirmed by the B
-+-·· State Government on February 18, 1987. This-order of detention was
challenged by the detenu by a writ petition under Section 32 of the
Constitution of India before this Court being Writ Petition (Cr!.)
No. 246 of 1987. This Court issued rule returnable on April 4, 1987.
Pending disposal of the writ petition, the detenu was released on April
3, 1987 by the Advi,sory Board constituted under the National Security C
Act. Furthermore, to harass the detenu two FIRs being C.R. Nos. 34
and 40 of 1987 were lodged against the detenu in Kalupur P.S. On
June 22, 1987 the detenu on receiving notices of two meetings, one of
the General Body and the other of Suez Refugee Committee of the
Ahmedabad Municipal Corporation to be held on June 26 and June
23, 1987 respectively, made an application to the Home Secretary, D
Government of Gujarat seeking permission to visit Ahmedabad for
one month. As no reply was received by the detenu, the detenu moved
Cr!. Misc. Petition No. 1345 of 1987 before the High Court for permis-
sion to visit Ahmedabad. The. aforesaid Miscellaneous applications
were rejected by the High Court. Thereafter, the detenu filed Special
Leave Petition (Cr!.) No. 1952 of 1987 before this Court against the E
impugned order of externment of the detenu for a period of two years
.. with effect from January 18, 1986: Notice was issued on the said peti-
tion but as the period of externment expired, the said petition was
finally disposed of by this Court.

On October 16, 1987, the detenu was arrested by the police for F
an alleged offence committed by the detenu in respect of the incident
of February 14, 1987 i.e. breach of externment order dated January 18,
1986. The detenu applied for bail to the Designated Court,
Ahmedabad but the bail application )Vas rejected vide order dated
November 24, 1987. The detenu filed an appeal before. this Court
under Section 16 of the Terrorist and Disruptive Activities (Preven- G
tion) Act, 1985. This appeal being Criminal Appeal No. 316 of 1988
~ was disposed of by this Court on April 27, 1988 setting aside the
impugned order of the Designated Court rejecting application for bail
and remitting the case to the Designated Court for a decision afresh.
The Designated Court was also directed to enlarge the applicant on
bail on such terms as it deems fit pending disposal of the application H
898 SUPREME COURT REPORTS [1989] 1 S.C.R.

A for bail on merits. The respondents being afraid that this Court may
allow the said Criminal Appeal No. 316 of 1987 made another order of
detention on January 25, 1988 and served the order on the detenu on
the same day. This detention order was made under Section 3 of the
Gujarat Prevention of Anti-Social Activities Act, 1985. This order of
detention was challenged by Criminal Writ Petition No. 114 of 1988
, B before this Court. Rule was issued and the petition was heard on
merits. The detentiolf order was withdrawn as the Advisory Board
refused to confirm the order of detention. The detenu was released on
March 14, 1988. The detenu accordingly went home. However, when
Criminal Appeal No. 316 of 1988 came up for hearing before this
Court on April 7, 1988 an allegation was made that detenu had abs-
C conded. This Court however, ordered on April 7, 1988 that the detenu
should surrender within a week. In compliance of the said order the
detenu surrendered on April 13, 1988 and on May 23, 1988 the order
of detention was made as stated hereinbefore.

It has been stated in the writ petition that in the grounds of
D detention in support of the present order of detention dated May 23,
1988, no act on the part of the detenu is alleged between March 14,
1988 and April 13, 1988. It has also been stated that it was the only
period of less than a month during which the detenu was a free man.
After April 13, 1988 the detenu has been continuously in custody and
prior to March 14, 1988 also the detenu was continuously in custody
E for nearly three years save for short periods during which he was
released on parole by this Court. No prejudicial act has been alleged
against the detenu during the days when the detenu was out on parole.

It has been further stated that no prejudicial activity of any kind
is alleged against the detenu after March 14, 1988 being the date on --J
F which the earlier order ·of detention stood revoked by virtue of the \
Advisory Board's decision. The action of respondents is plainly vindic- \
tive in total defiance of law and disgraceful blot on any civilised
administration of justice. It has also been stated that there has been no
application of mind at all to the most glaring fact that the Designated
Court in defiance of this Court's order did not grant interim bail to the
G detenu by its order dated May 13, 1988. There was no possibility
therefore, of the detenu being released on bail. It is impossible to
justify the statement made in the grounds of detention that there are ~
full possibilities that the detenu may be released on bail in this case.
This statement, it has been stated is recklessly false. It has also been
·stated that the entire material which forms the basis of the present
H order of detention and the grounds of detention was available at the
ABDUL RAZAK v. S.N. SINHA [RAY, J.] 899

time of the detention order of January 25, 1988.
A
The detaining authority, the respondent No. I has filed an
affidavit in reply. In para 16 of the said affidavit it has been stated that
it is true that the detenu was released by the Advisory Board on April
3, 1987; but it is not true to say that two FIRs were lodged against the
detenu with a view to harass him. These two FIRs i.e. C.R. Nos. 34 B
and 40 of 1987 were registered against the detenu on February 14, 1987
at P .S. Kalupur i.e. prior to the order dated April 3, 1987 passed by
the State Government. C.R. No. 34/87 was r_egistered at P.S. Kalupur
against the detenu for breach of extemment order while C.R.
No. 40/87 was registered against the detenu at P.S. Kalupur for an
offence of provocative speech made by the detenu. ·
c
In para 32, the respondent No. 1 merely denied the averments
made in para 3(III) of the petition wherein it was specifically averred
that there was no specific material for passing the detention order
against the detenu. In para 34, the respondent No. 1 has denied the
statement that there is no application of mind to the facts of the case D
stated in the petition. It has also been stated that the statement that
there is no material to justify the action taken by the competent
authority is not true.

It appears from the gtounds of detention which was served under
section 9 of the said Act that three criminal cases have been E
mentioned. These are:

1. P.S. Kalupur U/s 25(a)(c) of Arms Pending in Court
Case No. 372/85 Act, Sections 4, 5 of
Explosive Act.
F
2. P .S. Kalupur U/s 120(b) ofl.P.C. Pending for
Case No. 456/87 U/s 25(1)(e)(c) of examination
Arms Act and U/s (1)
of the Terrorists ·
Act, 1985
G
3. P.S. Kalupur U/s 307, 120(b) ofIPC Pending for
~ Case No. 2/88 U/s 3(1) of Terrorists examination.
Act, U/s 4, 5 of Explo-
sives Act, U/s 25(1)(c)
(lfof Arms Act and U/s
135(1) of Bombay Police
Act:
900 ·soPREME COURT REPORTS [1989) 1 S.C.R.

A It has also been stated therein that after careful consideration of
the facts of the complaint of the aforesaid offences it is apprehended
that detenu's criminal activities will adversely affect the public order
because the activities, the weapons kept by the detenu and his
associates cannot except create terror in the State of Gujarat.

B It has been further stated that:

"You are arrested for committing the said offences, even
though you are released on bail from the Court. At present you are in
\
jail in the case registered in Kalupur Police Station offence register ·1
No. 40/87 and there are full possibilities that you may be released on
bail in this offence also."
c
Out of these cases in respect of Case No. 2/88 which was
registered on January 2, 1988 the name of the detenu is not mentioned
in the F.I.R. In Case No. 372/85 also which was registered on June 26,
1985, the name of the detenu is not in the FIR. The detenu, however,
D was arrested on October 17, 1987 i.e. after a lapse of more than two
years and three months. In Case No. 456/87 which was registered on
October 16, 1987, the detenu was arrested on October 16, 1987. This
case related to the seizure of a revolver from the person of the detenu
who kept the same without any licence in violation of the provisions of
Arms Act. The detaining authority while issuing the order of detention
E against the detenu, the brother of the petitioner who is already in
custody, did not at all consider the fact that the Designated <:;ourt
declined to grant bail to the detenu by its order dated May 13, 1988 in
Cr!. Misc. No. 511of1988. The detaining authority also was not aware
that no application for bail on behalf of the detenu was filed between
May 13 to May 23, 1988 i.e. the date when the detention order was -..,
made. Had this fact been known to the detaining authority, the detain- I
ing authority could have considered whether in such circumstances he
would have been subjectively satisfied on the basis of cogent materials,
fresh facts and evidences that it was necessary to detain him in order to
prevent him from acting in a manner prejudicial to the maintenance of
public order.
G
In Rameshwar Shaw v. District Magistrate, Burdwan & Anr.,
[ !964] 4 SCR 921 the petitioner_ was detained by the order of the --J
District Magistrate under the provisions of Preventive Detention Act,
1950. The order recited that the District Magistrate was satisfied that it
was necessary to detain the petitioner with a view to prevent him from
H acting in a manner prejudicial to the maintenance of public order. This
ABDUL RAZAK v. S.N. SINHA [RAY, J.J 901

order was served on the petitioner while he was in jail custody as an A
under-trial prisoner in connection with a criminal case pending against
him. It was urged on behalf of the petitioner that the detention was not
justified under the provisions of Section 3(1)(a) of the Act and as such
it was invalid. It was held that the satisfaction of the detaining autho-
rity under section 3(1)(a) is his subjective satisfaction and as such it is B
not justiciable. It is not open to the detenu to ask the Court to consider
the question as to whether the said satisfaction of the detaining autho-
rity can be justified by the application of objective tests. The reason·
ableness of the satisfaction of the detaining authority cannot be
questioned in a court of law; the adequacy of the material on which the
said satisfaction purports to rest also cannot be examined by a court of
law. It has also been observed that if any of the grounds furnished to C
the detenu is found to be irrelevant while considering the application
of clauses (i) to (iii) of Section 3(1)(a) and in that sense of the Act, the
) .. satisfaction of the detaining authority on which the order of detention
is based is open to challenge and the detention order is liable to be
quashed. Similarly, if some of the grounds supplied to the detenu are D
so vague that they would virtually deprive the detenu of his right of
making an effective representation that again may introduce a serious
infirmity in the order of his detention. It has been further observed
that an an abstract proposition of law, there may not be any doubt that
Section 3(1)(a) of the Act does not preclude the authority from passing
+ an order of detention against a person whilst he is in detention in jail
but in deciding the question as to whether it is necessary to detain a
E
person, the detaining authority has to be satisfied that if the said
person is not detained he may act in a prejudicial manner and this
conclusion can be reasonably reached by the authority generally in the
light of the evidence about the past prejudicial activities of the said
person: The past conduct or antecedent history of a person can be F
taken into account in making a detention order, but the past conduct
or antecedent history of the person, .on which the authority purports to
act, should ordinarily be proximate in point of time and would have a
rational connection with the coqclusion drawn by the authority that
the detention ofthe person after his release is necessary. The deten-
tion of a person without a trial' is a very serious encroachment on his G
personal freedom and so at every stage, all questions in relation to the
said detention must be carefully and solemnly considered. The detain-
ing authority considered the antecedent history and past conduct
which was not proximate in point of time.to the order of detention and
as such the detention order was held to be not justified and so the same
was set aside. · H
902 SUPREME COURT REPORTS [1989] 1 S.C.R.

A In A/ijan Mian v. District Magistrate, Dhanbad and Ors. etc.,
[ 1983 I 4 sec 301 detention orders were served on the petitioners in
jail. The detaining authority was alive to the fact that the petitioners
were in jail custody on the date of the passing of the detention orders
as evident from the grounds of detention. It was stated therein that the
B position would have been entirely different if the petitioners were in
jail and had to remain in jail for a pretty long time. In such a situation
there could be no apprehension of breach of public order from the
petitioners. But the detaining authority was satisfied that if the
petitioners were enlarged on bail, of which there was every likelihood,
it was necessary to prevent them from acting in a manner prejudicial to
public order.
c
It was held that the pendency of a criminal prosecution is no bar
to an order of preventive detention, nor is an order of preventive
detention a bar to prosecution. It is for the detaining authority to have
the subjective satisfaction whether in such a case there is sufficient
material to place a person under preventive detention in order to
D
prevent him from acting in a manner prejudicial to public order or the
like in future.

In Ramesh Yadav v. District Magistrate, Etah and Ors., [1985) 4
SCC 232 the order of detention under section 3(2) of National Security
E
Act, 1980 was made at a time when the petitioner had already been in +
Mainpuri jail as an under-trial prisoner in connection with certain
pending criminal cases. The grounds of detention were served on the
petitioner along with the order of detention. The petitioner asked for
certain papers with a view to makin_g an effective representation but

··~
when the request was rejected, the petitioner made a representation.
The Board did not accept the petitioner's plea. The petitioner's deten-
F
tion was confirmed by the State Government. This was challenged in
the writ petition. Apart from specifying five grounds in the grounds of
detention, a reference was made to the fact that the detenu creates
public terror on account of his crimihal activities which are absolutely
prejudicial· t<Y the maintenance of public order. It was further men-
tioned in the detention order that though the petitioner was detained
0 in district jail yet he filed an application for bail in the court of law and
the same has been fixed for hearing on September 17, 1984, and there
is a positive apprehension that after having bail he will be out of jail
and the detaining authority is convinced that after being released on
bail he .will indulge in activities prejudicial to the maintenance of
P ublic order. It was observed that:
'H
ABDUL RAZAK v. S.N. SINHA [RAY, J.] 903

"On a reading of the grounds, particularly the paragraph A
which we have extracted above, it is clear that the order of
detention was passed as the detaining authority was appre-
hensive that in case the detenu was released on bail he
would again carry on his criminal activities in the area. If
the apprehension of the detaining authority was true, the B
bail application had to be opposed and in case bail was
granted, challenge against that order in the higher forum
had to be raised. Merely on the ground that an accused in
detention as an under-trial prisoner was likely to get bail an
order of detention under the National Security Act should
not ordinarily be passed."
c
In Suraj Pal Sahu v. State of Maharashtra and Ors., J1986] 4 SCC
378 Sabyasachi Mukharji, J while agreeing with the views·expressed in
Ramesh Yadav v. District Magistrate, Etah & Ors., (supra} observed
that the principle enunciated in the said case would have to be judged
and applied in the facts and circumstances of each case. Where a 0
person accused of certain offences whereunder he is undergoing trial
or has been acquitted, the appeal is pending and in respect of which he
may be granted bail may not in an circumstances entitle an authority to
direct preventive detention and the principle enunciated by the
aforesaid decision must apply but where -the offences in respect of
+ which the detenu is accused are so interlinked and continuous in E
character and are of such nature that these affect continuous mainte-
.nance of essential supplies and thereby jeopardize the security of the
State, then subject to other conditions being fulfilled, a man being in
detention would not detract from the order being passed for preven-
tive detention.
F
In Vijay Narain Singh v. State of Bihar & Ors., 11984] 3 SCR 435
at 459 wherein an order of detention under Section 12(2) of Bihar
Control of Crimes Act, 1981 was served on the petitioner whlle he was
in jail as an under-trial prisoner in a criminal case under Section 302
I.P.C. and was allowed to be enlarged on bail by the High Court but
not yet enlarged, it was held that: G

"It is well settled that the law of preventive detention is a
hard law and therefore it should be strictly construed .....
·'"' The law of preventive detention should not be used merely
to clip the wings of an accused who is involved in a criminal
prosecution." H
904 SUPREME COURT REPORTS 11989) 1 S C.R.

A In the case of Raj Kumar Singh v. State of Bihar and Ors., 11986)
4 SCC 407 Mukharji, J. observed that while adequacy or sufficiency is
no ground for a challenge, relevancy or proximity is relevant in order
to determine whether an order of detention was arrived at irrationally
or un~easonably. It has been further observed that:

B "Preventive detention as reiterated is hard law and must be
applied with circumspection rationally, reasonably and on
relevant materials. Hard and.ugly facts make application of
harsh laws imperative. The detenu's rights and privileges as /-
a free man should not be unnecessarily curbed."

In Binod Singh v. District Magistrate, Dhanbad, Bihar and Ors.,
c 11986) 4 SCC 416 at 420-21 the petitioner was arrested in connection
with the criminal case and he was already in custody. The order of
detention dated January 2, 1986 under Section 3(2) of National Secu-
rity Act was served on the petitioner in jail. It was observed by the
Court that;
D
" ..... There must be awareness of the facts necessitating
preventive custody df a person for sociaJ defence. If a man
is in custody and there is no imminent possibility of his
being released, the power of preventive detention should ·.\-
not be exercised.

1
E
. . . . . A bald statement is merely an ipse dixit of the
officer. If there were cogent materials for thinking that the
detenu might be released then these should have been
made apparent. Eternal vigilance on the part of the autho-
rity charged with both law and order and public order is the
F price which the democracy in this country extracts from the
public officials in order to protect the fundamental free- ·
doms of our citizens."

In Poonam Lata v. M.L. Wadhawan & Anr., [1987) 4 SCC 48 the
court observed that:
G
"The fact that the detenu is already in detention does not :..0:
take away the jurisdiction of the detaining authority in
making an order of preventive detention. What is neces-
sary in such a case is to satisfy the court when detention is
challenged on that ground that the detaining authority was
H aware of the fact that the detenu was already in custody and
ABDUL RAZAK v. S.N. SINHA [RAY, J.] 905

yet he was subjectively satisfied that his order of detention
A
became necessary."

In Smt. Shashi Aggarwal v. State of U.P. and Ors., [1988) 1 SCC
436 at 440 the detenu was detained by the District Judge, Meerut by an
order dated August 3, 1987 made under Section 3(2) of National
Security Act, 1980. The detention order was approved by the State B
Government on receipt of the opinion of the Advisory Board. It was
challenged by a writ petition before this Court. The Court observed
that:

"In the instant case, there was no material made apparent
on record that the detenu, if released on bail, is likely to C
commit activities prejudicial to the maintenance of public
order. The detention order appears to have been made
merely on the ground that the detenu is trying to come out
on bail and there is enough possibility of his being bailed
out. We do not think that the order of detention could be
jtlstified on that basis." D

On a consideration of the aforesaid decisions the principle. that
emerges is that there must be awareness in the mind of the detaining
authority that the detenu is in custody at the time of service of the
order of detention on him and cogent relevant materials and fresh facts
have been disclosed which necessitate the making of an order of deten- E
lion. In this case, the detenu was in jail custody in connection with a
criminal case and the order of detention was served on him in jail. It is
also evident that the application for bail filed by the detenu was re-
jected by the Designated Court on 13th May, 1988. It is also not
disputed that thereafter no application for bail was made for release of
the detenu before the order of detention was served on him on 23rd F
May, 1988. It appears that in the grounds of detention there is a
statement that at present you are in jail yet "there are full possibilities
that you may be released on bail in this offence also." This statement
clearly shows that the detaining authority was completely unaware of
the fact that no application for bail was made on behalf of the detenu
for his release before the Designated Court and as such the possibility G
of his coming out on bail is non-existent. This fact of non-awareness of
the detaining authority, in our opinion, clearly establishes that the
subjective satisfaction was not arrived.at by the detaining authority on
consideration of relevant materials. There is also nothing to show from
the grounds of detention nor any fresh facts have been disclosed after
the detention order dated January 25, 1988 was set aside by the Advis- H
906 SUPREME COURT REPORTS [1989] 1 S.C.R.

A ory Board on March 13, 1988, on the basis of which the detaining
authority could come to his subjective satisfaction that the detenu, if
released on bail will indulge in acts prejudicial to the maintenance of
public order and as such an order of detention is imperative. In the
grounds of detention three criminal cases have been mentioned. Out
of those three criminal cases, criminal case No. 372/85 was lodged on
B June 26, 1985 i.e. much before the present detention order and several
orders of detention were made in the meantime. This criminal case is,
therefore, not proximate in time to the.making of the order of deten-
tion. So it is a stale ground. Another criminal case No. 456/87 is dated
October 16, 1987 on the basis of which the previous order of detention
was made. This case has nothing to do with the maintenance of public
order as it pertains to the recovery of a revolver from the detenu on a
c search of the person of the detenu, without any valid licence under the
Arms Act. The third case No. 2/88 is dated January 2, 1988. This case
was in existence at the time of making of the detention order dated
January 25, 1988. Moreover, the name of the detenu is not in the
F.l.R. The statements of some of the associates of the detenu have
D been annexed to the grounds of detention. These statements do not
disclose any activity after 14th March, 1988 or any activity of the time
when the detenu was a free person. Considering all these facts and
circumstances we are constrained to hold that there has been no sub-
jective satisfaction by the detaining authority on a consideration of the
relevant materials on the basis of which the impugned order of deten-
E tion has been clamped on the detenu. It also appears that the detenu
was in detention as well as in jail custody for about three years except
released on parole for short periods. The only period during which he
was a free person was from 14th March, 1988 to 13th April, 1988.
During this period no act prejudicial to the maintenance of public
order has been alleged to have been committed by the detenu. It is ---..
I
F convenient to mention here that Section 15(2) of PASA Act says that a
detention order may be revoked by State Government; but such revo-
cation on expiry of detention order will not bar making of a fresh
detention order provided where no fresh facts have arisen after expiry
or revocation of the earlier detention order made against such person.
The maximum period of detention in pursuance of subsequent deten-
G tion order cannot extend beyond twelve months from the date of
detention of earlier order. This Court in considering similar provision
in Section 13(2) {)f Preventive Detention Act in Kshetra Gogoi v. The
State of Assam, [1970] 1 SCC 40 at 43 held the order of detention.as
illegal stating that:

H " ..... Under Section 13(2) what is required is that fresh
ABDUL RAZAK v. S.N. SINHA [RAY, J.} 907

facts should have arisen after the expiry of the previous A
detention. Facts arising during the period of detention are,
therefore, not relevant when applyin&" the provisions of Sec-
tion 13(2)."

It is highlighted in this connection that in the affidavit-in-reply
B
filed by the respondent No. 1, the detaining authority, he merely
denied the specific avennents made in para 3(111) that no act prejudi-
cial to the maintenance of law and order on the part of the detenu is
alleged to have been committed by the detenu between 14th March to
-~- 13th April, 1988 etc. without specifically denying those statements. In
this background, a mere bald statement that the detenu who is in jail
custody is likely to be released on bail and there are full possibilities C
that he may continue the above offensive activities without reference
to any particular case or acts does not show on the face of the order of
detention that there has been subjective satisfaction by th.e detaining
authority in making the order of detention in question-.

We, therefore, quash the order of detention and direct the D
respondents to set the detenu at liberty forthwith.

Y.L. Petition allowed.