Holding

The contempt petition was dismissed because the order was limited to the members before the High Court and, in the presence of doubt, the benefit of the doubt was given to the alleged contemnors.

Summary

The Supreme Court entertained a contempt petition filed by members of the Paschim Banga Rajya Bhumijibi Sangh alleging that the Court's earlier order maintaining status quo on land possession was violated by revenue officers who took over land belonging to two petitioners. The crux of the dispute was whether the Court's order applied to all members of the Sangh who presented the petition before the Supreme Court or only to those who were before the Calcutta High Court in the original writ petition. The Court examined the language of the order, the standard of proof required in contempt proceedings, and the burden of proving intentional disobedience. It held that the order was limited to the members who were before the High Court and, given the persisting doubt, the benefit of the doubt must go to the alleged contemnors. Consequently, the contempt petition was dismissed without any order as to costs.

Issues considered

The scope of the Supreme Court's status‑quo order: whether it covered all Sangh members before the Court or only those before the High Court
Whether the actions of the revenue officers amounted to contempt of court
The applicable standard of proof and burden of proof in contempt proceedings

Legislation cited

Contempt of Courts Act, 1971s. 2(b)
West Bengal Land Reforms Acts. 14-T(3), s. 57

Subjects

contempt of courtstatus quoland reformsstandard of proofburden of proofquasi‑criminal jurisdictionSupreme Court order interpretationland possession

Judgment

MRITYUNJOY DAS AND ANR. A
v.
SAYED HASIBUR REHAMAN AND ORS.

MARCH 16, 2001

[U.C. BANERJEE AND S.N. PHUKAN, JJ.] B

Contempt of Coul1s Act, 1971 : Section 2(b).
f
Contempt Petition-SLP filed before Supreme Coul1 by members of
Sangha against the judgment of High Coul1 pe11aining to constitutionality of
cel1ain provisions of West Bengal Land Amendments Act of 1981and1986- c
InterlocutoJy application.filed seeki.ng maintenance o.f status quo in respect of
the land in question till the disposal of the SLP-Supreme Coul1 ordered status
quo regarding possession of land in connection with the 1nembers of Sangha
who wen? before the High Cou11 in the writ petition out of which present
p1vceedings a1vse-Subsequently, Supreme Cou11 dh-ected that any vesting D
order passed in respect of lands ~f the members of Sangha who were before the
High Coul1 should not be implemented unti/fu11her Olde rs-Revenue Officer
ordered handing over of possession o.f land in respect of those petitioners 1vho
we1~ not members of Sangha on the date of filing of writ petition be.fore High
Cou11-Held: Exercise ofpowers under the Contempt o.f Coul1s Act has to be
E
'( rather cautious and used sparingly-There is a doubt lvhether Supreme Court's
order covered only those pe.titioners \Vlzo ivere members of the Sangha on the
date offiling of writ petition be.fore High Coul1 or it covered all the members
p1~senting the petition before Supreme Cou11-Hence, benefit ofdoubt given to
alleged conte1nnors-Contempt petition dismissed.
F
A Special Leave Petition (SLP) was filed before this Court by mem-
hers of a Sangha against the judgment of the High Court pertaining to
constitutionality of certain provisions of the West Bengal Land Reforms
Amendment Act of 1981 and 1986. An interlocutory application was filed
before this Court seeking maintenance of status quo in respect of the land
G
in question till the disposal of the SLP. This Court ordered status quo
regarding possession of land in connection with the members of the Sangha

- "\
who were before High Court in the writ petition out of which the present
proceedings arose. Subsequently, this Court directed that any vesting
order passed in respect of lands of the members of the Sangha who were
before the High Court should not be implemented until further orders. H
471
472 SUPREME COURT REPORTS [2001) 2 S.C.R.

A The Revenue Officer passed an order directing handing over of
possession of land in respect of those petitioners who were not members of
the Sangha on the date of filing of the writ petition before the High Court.
Hence this Contempt Petition.

On behalf of the petitioners it was contended that the order of this
B Court covered all mem hers of the Sangha presenting the petition before
this Court.

On behalf of the respondents it was contended that the order of this
Court covered only the me:nbers of the Sangha who were before the High
c Court.

Dismissing the petition, the Court

HELD : 1. Exercise of powers under the Contempt of Courts Act,
1971 shall have to be rather cautious and use of it rather sparingly after
D addressing itself to the true effect of the contemptuous conduct. The Court
must otherwise come to a conclusion that the conduct complained of
tantamounts to obstruction of justice, which if allowed, would even perme-
ate in our society. [479-B-C]

Murray & Co. v. Ashok Kr. NewaJia, [2000) 2 SCC 367, relied on.
E
2. The common English phrase "he who asserts must prove" has its
due application in the matter of proof of the allegations said to be constitut-
ing the act of contempt. As regards the 'standard of proof', a proceeding
under the extra-ordinary jurisdiction of the Court in terms of the provi-
sions of the Contempt of Courts Act is quasi-criminal, and as such, the 'stand-
F ard of proof' required is that of a criminal proceeding and the breach shall
have to be established beyond reasonable doubt. [479-F-H; 480-A]

The Aligarh Municipal Board v. Ekka Tonaga Mazdoor Union, [1970)
III SCC 98; VG. Nigam v. Kedar Nath Gupta, [1992] 4 SCC 697 and In Re :
G Bramble vale, (1969) 3 All ER 1062, referred to.

Archana Guha v. Ranjit Guha Neogi, (1989) II CHN 252 (Cal.), ap-
proved.

3. Admittedly, this Court directed maintenance of status quo with the
-
H following words - "the members of the petitioners Sangha who were before
._ ,l

MRITYUNJOY DAS v. SYED HASIBUR REHAMAN [BANERJEE, J.] 473
the High Court in the writ petition out of which the present proceedings A
arise'', And it is on this score the applicant contended categorically that the
intent of this Court is to include all the members presenting the Petition
before this Court w~ereas the respondent contended that the same is
restricted to the me;j.bers who filed the writ petition before the High
Court, which culminaled in the initiation of proceeding before this Court.
B
The issue thus arises as to whether the order stands categorical to lend
credence to the answers of the respondent or the same supports the conten-
tion as raised by the applicants. However, probabilities of the situation
may also warrant a finding in favour of the interpretation of the appli<;:mt.
The doubt persists and as such in any event the respondents being the
alleged contemnors are entitled to have the benefit or advantage of such a c
doubt having regard to the nature of proceeding. [480-G-H; 481-A-D]

CIVIL APPELLATE JURISDICTION : Contempt Petition No. 202 of
2000.

Under Article 136 of the Constitution of India. D
IN
Special Leave Petition (C) No. 1416 of 1997.

From the Judgment and Order dated 26.7.96 of the Calcutta High Court
in A. No. 400 of 1992. E
S.B. Sanyal, A.K. Ganguli, Tapas Chandra Ray, N.R. Choudhary, R.K.
Gupta, M.K. Singh, A.N. Bardiyar, S.K. Puri, Rajesh Srivastava, Ujjal
Banerjee, Ms. Anindita Gupta, Somnath Mukherjee, V.P. Sharma, Arvind
Mishra, N.R. Choudhury, J.P. Pandey, Somnath Mukherjee and H.K. Puri for
the appearing parties. F
The Judgment of the Court was delivered by

BANERJEE, J, The introduction of the Contempt of Courts Act, 1971
in the statute book has been for purposes of securing a feeling of confidence
of the people in general for due and proper administration of justice in the G
country. It is a powerful weapon in the hands of tne law courts by reason
wherefor it must thus be exercised with due care and caution and for larger
interest.
Incidentally, a special leave petition (1416/!997) was filed before this
Court by Paschim Banga Rajya Bhumijibi Sangh against the judgment of the H
474 SUPREME COURT REPORTS [:2001] 2 S.C.R.
A Calcutta High Court pertaining to the question of constitutionality of certain
· provisions of West Bengal Land Reforms Amendment Acts 1981 and 1986.
The said Sangha filed an Interlocutory Application being I.A.No.3 of 1999
for issuance of certain directions which inter alia reads as below:

"(a) direct the State of West Bengal and its Revenue Authorities not
B to initiate any proceedings for vesting of !he land against the members
of the Petitioner Sangha and if any vesting proceeding has been
already initiated against the members of t.'ie Petitioner Sangha in that
event not to pass any order and maintain status-quo in respect of the
land in question in all respects till the disposal of the Special Leave
c Petition (Civil) No.1416 of 1997 pending before this Hon'ble Court
or in alternative clarify that the order dated 20.3.1998 as quoted in
paragraphs 19-20 will apply only to the parties thereto and not to the
members of the Petitioner No.I Sangha."

The Interlocutory Application was heard on 29th October, 1999 and
D this Court was pleased to pass an order therein to the following effect:

"At the request of Learned counsel for the Applicants four weeks'
time is granted to enable him to put on record appropriate information
regarding members of the Sangha for whom the application is moved
and the nature of the stay required.
E
In the meantime Learned Counsel for the Respondent will also take
appropriate in.structions in connection with this I.A.

Subsequently on 16th December, 1999, this Court in I.A.No.3 passed
an interim order to the effect as below:
F
"Having heard Learned counsel for tl1e parties, by way of an interim
order, it is directed that status-quo regarding possession on spct shall
be maintained by both the sides in connection with the members of
the Petitioner-Sangha who were before the High Coun in the Writ
G Petition out of which the present proceedings arise.

(Emphasis supplied)

In the meantime, learned senior counsel for the respondent-State of
West Bengal will verify the lisi of these members, (Emphasis supplied)
H which is furnished to him by Learned Counsel for the Petitioner and
MRITYUNJOY DAS v. SYED HASIBUR REHAMAN [BANERJEE, J.] 475
subject to that verification further orders will be. passed after three A
months.
~

To be placed after three months."

In the application (J.A.No.3) a further order was passed on 17th April,
2000 which reads as below: B

"We have heard learned senior counsel for the Petitioners, Mr. Shanti
+ Bhushan and Learned Senior Counsel for respondent-State of West
Bengal, Mr. Ray, Learned Senior Counsel for respondent-State of
West Bengal is right when he says that some more time is required c
as 13,000 persons are listed and tl1ey have to ascertain about their
existence on the spot. We grant time up to the end of July, 2000. I.A.
will be placed in the second week of August, 2000. In the meantime,
at the request of Learned Counsel for the Petjtioners, Mr. Shanti
Bhushan we grant additional interim relief in continuation of our
earlier order dated 16.12.1999 to the effect that if in the meantime,
D
any vesting orders have been passed in respect of the lands of
members of Petitioner - Sangha who were before the High Court in
the matter out of which the present proceedings arise, then those
vesting orders shall not be implemented w1til fil.rther onlers."
E
It is this order which is said to have been violated and thus bringing
the orders of this Court into ridicule. The factwn of violation is said to have
been deliberate since in spite of the order as above and even after the service
of the order dated 17th April, 2000 to the authorities of Land Refonns
Departrn.ent, Government of West Bengal for its compliance, the Petitioner
F
No.I being a resident of village Amriti, District, Maida, West Bengal and a
life member of the Paschim Banga Rajya Bhurnjjibi Sangha was served with
a notice dated 5.4.2000 under Section 57 of the West Bengal Land Refonns
Act together with Section 14-T (3) of the said Act read with Rule 4 of the
Rules framed thereunder by the Revenue Officer Cell, Maida asking to snbmjt
details of land held by him and his family members since 7.8.1969 and G
particulars of land transferred by him after that date. The records depict that
a reply to the said notice was furnished as early as 30th April, 2000 alongwith
the certification of membership of the Sangha and copy of the order dated
"I. 16th December, 1999 passed by this Court. It further appears that a hearing
did take place and the Revenue Officer passed an order of vesting on H
476 SUPREME COURT REPORTS [2001] 2 S.C.R.
A 17th April, 2000. Subsequently, on the factual matrix, it appears that by the
notice dated 26th April, 2000 issued by the Revenue Officer, possession of f
37.471/2 acres of land was directed to be made over to the Land Revenue
Authority on 27.4.2000. It has been the definite case of the petitioners that
in spite of receipt of both the orders dated 16th December, 1999 and 17th
April, 2000, the Block Land & Land Reforms Officer, English Bazar, Maida
B
came on the site and took possession of the said land. Similar is the situation
as regards the land belonging to petitioner No.2 and possession 20.76 acres
of land was also obtained by the Block Land & Land Reforms Officer,
English Bazar, Maida. This act of obtaining possession from the applicants
herein is stated to be a deliberate violation of this Court's order and thus
c cannot but be asc1ibed to be contemptuous in nature.

Mr. Sanyal, the learned Senior Advocate appearing in support of the
petition for Contempt contended that the high handedness of the executive
authorities is apparent in the deliberate action of taking over possession of
land from two of the members of the Samiti even after coming to know of
D the orders of this Court and resultantly committing an act of gross contempt.

Admittedly, this Court passed an order on 17th April, 2000 as a
continuation of the earlier order dated 16th December, 1999 to the effect that
if in the meantime, any vesting order has been passed in respect of the land
E of members of petitioner's Sangha who were before the High Court in the
matter out of which the present proceeding arise, then those vesting orders
shall not be implemented until further orders. The order dated 16th December,
2000 also categorically records the maintenance of status quo
regarding possession on spot by both the State and Private Respondents. As
regards however the Private Respondents, the order was directed to be made
F applicable to the cases of the members of the petitioner's Sangha who were
before the High Court in the Writ Petition out of which the present proceeding
arose.

Needless to state that Land Reforms Legislation in States have been
introduced with a view to proceed with the socialistic approach as enshrined
G
in the Constitution. The amendments have been effected in the main provi-
sions of the act, validity of which stands further scrutiny before this Court.
We are however, not called upon to delve into these issues neither we intend
to do the same. The noting aforesaid is just to introduce the subject for our :-,
consideration though in a separate jurisdiction being of extra- ordinary nature
H but as conferred by and under the statute.
MRITYUNJOY DAS v. SYED HASIBUR REHAMAN [BANERJEE, J.] 477
Let us however, at this juncture consider the counter affidavit as filed A
by the alleged Contemnors and assess the situation as to whether there is any
' deliberate act on the part of the revenue officers of the State or an omission
to note the true effect of the order which has resulted in such an action which
is said to be contemptuous in nature. The alleged Contemnors No.2 and 3
being Sayed Kadar Hossain and Chitaranjan Chakraborti stated that as officers
B
of the Goverrunen~ they have tried to discharge their duties to the hest of
their ability, capacity and understanding. There was never any motive or
intention to violate or disobey the orders of this Court. In paragraphs 4 and
5 alleged contemnors stated as'below.

"4. We respectfully submit that as understood by us that the number c
of the Petitioners Sangha who were before the High Court in the Writ
Petition were understood by us as parties on the date on which the
Writ Petition was filed. The petitioners themselves have admitted that
they became members only in 1992-93, and the order of this Hon'ble
Court would not be applicable then as they were not members of the
Sangha on the date of filing the Writ Petition. If the interpretation
D
given by the Petitioners was sought to be accepted, then there could
be no occasion for this Hon'hle Court making the order for verifica-
tion of members of the Sangha. We never proceeded with the matter
to violate the orders of this Hon'ble Court.
.,., E
5. We also submit that in the proceedings, the Petitioners were given
full opportunity of being heard and in fact the Petitioners appeared
through Advocate and made submission and after conside1ing the
facts and circumstances of the case and also the material on record,
the Revenue Officer being the Competent Authority under the Act
(Contemnor No.2) recorded the following finding: F

"It appears from certificate which was issued by that Sangha that
SI. No. of Life Membership of raiyat Mrityunjoy Das is 2698/93.
It is clear that the raiyat obtained membership in the year 1993
and he was not the member of the said Sangha during the time of G
filing the Writ Application or before the Hon'ble High Court. So
the raiyat is not entitled to get benefit of the order of the Hon'ble
Supreme Court dated 16.12.1999."
"I. A true copy of the order dated 17.4.2000 in this regard is aunexed
herewith and marked as Annexure-R 1/1. H
478 SUPREME COURT REPORTS (2001] 2 S.C.R.

A We further submit that we have not tried to justify the conduct
any way, by making the aforesaid statements and have stated these
1
only to explain the circumstances and if any lack of understanding
as aforesaid has resulted in violation of this order and consequently
•
the Contempt of Court, I repent for the same and tender my
unqualified apology before this Hon'ble Court. I further submit that
B
whatever I have done was in tl1e course of my official work as a
Government servant and I have no personal interest whether the
process of Land Reforms continues or halts. On the face of this order
of this Hon'ble Court, or in that way any Order of any Court, which
I am duty bound to obey. I again submit that if my interpretation of
c the order of this Hon'ble Court was wrong that was because of my
limitations to understand but there is nothing malafide in it and I
cannot think of over-reaching or flouting the order of this Hon'ble
Court in any way or under any circumstances."

On the state of pleadings as above, Mr. Tapas Chandra Ray, the learned
D Senior Advocate appearing for the Respondents with his usual eloquence
submitted that the order of this Court dated 16th December, 1999 pertaining
to the maintenance of status quo regarding possession, has been rather
categorical in its application: This Court has restricted its applicability to the
members of the petitioners Sangha who were before the High Court in the
E Writ Petition and not all and sundry. Mr. Ray drew the attention of the Court )'_':

to a portion of the order (as emphasized in page 3 hereol) and submitted that ~

a contra interpretation to the order would not only be grossly irregular but
be totally unsubstantiated. The user of the words "who we11! befo11! the High
Coun in the writ petition" shall have to be attributed some meaning and the
intention bas been rather clear and categorical as to its applicability. Mr. Ray
F contended that this Court obviously could not indulge in surplusage or record
a specific order without attributing any meaning thereto and it is in this
context Mr. Ray further contended that in any event, if two explanations are
available and out of which one stands adopted by the alleged contemnors
which cannot by any stretch, be termed to be wholly unwarranted, question
G of returning a verdict of guilty in an Application for Contempt does not and
cannot arise.

Contra however, is the submission of Mr. Sanyal and Mr. Ganguli for
the petitioners with reference to the user of the words "present proceeding" ..,
by this Court which cannot as contended but mean that the order bas been
H intended to apply to the applicants before this Court, in addition to the
MRITYUNJOY DAS v. SYED HASIBUR REHAMAN [BANERJEE, J.] 479
members who were members on !lie date of filing of the Writ Petition and A

' this by no stretch be restrictive at all. Since, otherwise the order would only
be partial and a majority of the persons proceeding with this litigation as
parties herein would be deprived of the same - a situation which cannot
possibly be conceived in the matters of an order of this Court since this Court
confers benefit on to those w~o seek relief in a proceeding before this Court
B
indeed an attractive submission.

-+ Before however, proceeding with the matter any further, be it noted that
exercise of powers under the Contempt of Courts Act shall have to be rather
cautious and use of it rather sparingly after addressing itself to the true effect
of the contemptuous conduct. The Court must otherwise come to a conclusion c
that the conduct complained of tantamounts to obstruction of justice which
if allowed, would even permeat in our society (vide Murray & Co. v. Asliok
Kr. Newatia & Anr., [2000] 2 SCC 367, this is a special jurisdiction conferred
i . on to the law courts to punish an offender for his contemptuous conduct or
obstruction to the majesty of law. It is in this context that the observations
of this Court in Murray's case (snpra) in which one of us (Banerjee, J.) was D
party needs to be noticed.

"The purpose of contempt jurisdiction is to uphold the majesty and
dignity of the Courts of law since the image of such a majesty in the
minds of the people cannot be led to be distorted. The respect and
E
authority commanded by Courts of Law are the greatest guarantee to
an ordinary citizen and the entire democratic fabric of the society will
crumble down if the respect for the judiciary is undermined. It is true
that the judiciary will be judged by the people for what the judiciary
does, but in the event of any indulgence which even can remotely be
termed to affect the majesty of law, the society is bound to lose F

• confidence and faith in the judiciary and the law courts thus, would
forfeit the trust and confidence of the people in general."

The other aspect of the matter ought also to be noticed at this juncture
viz., the burden and standard of proof. The common English phrase "he who
G
asserts must prove" has its due application in the matter of proof of the
allegations said to be constituting the act of contempt. As regards the
'standard of proof, be it noted that a proceeding under the extra-ordinary
~ jurisdiction of the Court in te1ms of the provisions of the Contempt of Court
Act is quasi criminal, and as such, the standard of proof required is that of
a criminal proceeding and the breach shall have to be established beyond H
480 SUPREME COURT REPORTS (2001] 2 S.C.R.
A reasonable doubt. The observations of Lord Denning in Re Bramblevale
(1969) 3 All ER 1062 lend support to the aforesaid. Lord Denning in Re ·f
Bramblevale stated:

"A contempt of court is an offence of a criminal character. A man may
be sent to prison for it,. It must be satisfactorily proved. To use the
B time- honoured phrase, it must be proved beyond all reasonable
doubt. It is not proved by showing that, when the man was asked
about it, he told lies. There must be some further evidence to
incriminate him. Once some evidence is given, then his lies can be
thrown into the scale against him. But there mnst be some otl1er
c evidence.... Where there are two equally consistent possibilities open
to fue Court, it is not right to hold that fue offence is proved beyond
reasonable doubt."

In this context, the observations of the Calcutta High Court in Arehano
Guha v. Ranjit Guha Neogi, (1989) II CHN 252, in which one of us was a
D party (Banerjee, J.) seem to be rather apposite and we do lend credence to
the same and thus record our concurrence therewith.

In 'flze Aligarh Municipal Board and Others v. Ekka Tonga Mazdoor
Union and Others, [1970] III SCC 98, this Court in no uncertain term stated
tliat in order to bring home a charge of contempt of court for disobeying
E orders of Courts, those who assert that the alleged conternners had knowledge Y
of the order mnst prove fuis fact beyond reasonable doubt. This Court went
on to observe that in case of doubt, fue benefit ought to go to the person
charged.

In a similar vein in V. G. Nigam and Others v. Kedar Nath Gupta and
F Another, [1992] 4 SCC 697, this Court stated that it would be rather
hazardous to impose sentence for contempt on fue authorities in exercise of
contempt jurisdiction on mere probabilities.

Having discussed fue law on fue subject, let us thus at this juncture
analyse as to whether in fact, the contempt alleged to have been committed
G
by the alleged conternners, can said to have been established finnly without
there being any element of doubt involved ;n the matter and fuat fue Court
would not be acting on mere probabilities having however, due regard to the
nature of jurisdiction being quasi criminal conferred on to the law courts. )I
Admittedly, this Court directed maintenance of status quo with the following
H words · "the members of the petitioner Sangha who were before fue High
MRITYUNJOY DAS v. SYED HASIBUR REHAMAN [BANERJEE, J.] 481
Court in the writ petition out of which the present proceedings arise''. And A
it is on this score the applicant contended categorically that the intent of the
Court to iuclude all the members presenting the Petition before this Court
whereas for the Respondent Mr. Ray contended that the same is restricted to
the members who filed the writ petition before the High Court which
culminated in the initiation of proceeding before this Court. Tue Counter
B
affidavit filed by the Respondents also record the same .. Tue issue thus arises
as to whether the order stands categorical to lend credence to the answers
of the respondent or the same supports the contention as raised by the
applicants herein - Incidentally, since the appeal is pending in this Court for
adjudication, and since the matter under consideration have no bearing on
such adjudication so far as the merits of the dispute are concerned, we are C
not expressing any opinion in the matter neither we are required to express
opinion thereon, excepting however, recording that probabilities of the situ-
ation may also warrant a finding, in favour of the interpretation of the
applicant. Tue doubt persists and as such in any event the respondents being
the alleged contenrners are entitled to have the benefit or advantage of such D
a doubt having regard to the nature of the proceeding as noticed herein before
more fully.

In view of the observations as above, we are not also inclined to go
into the question of apology.
E
On the wake 6f the aforesaid, this Contempt Petition fails and is
dismissed without however, any order as to costs.

V.S.S. Petition dismissed.