Supreme Court of India

PEOPLE'S UNION FOR CIVIL LIBERTIES AND ANR.versusUNION OF INDIA

Citation: 2003 INSC 721
Decided: 16 December 2003
Disposal: Dismissed
Bench: S RAJENDRA BABU

Holding

The Prevention of Terrorist Act, 2002 and its challenged provisions are constitutionally valid, and Parliament has the requisite legislative competence to enact them.

Summary

The Supreme Court examined a batch of writ petitions challenging the constitutional validity of the Prevention of Terrorist Act, 2002 (POTA). The petitioners argued that Parliament lacked legislative competence and that several provisions violated fundamental rights, including the right to privacy, freedom of speech, and the right against self‑incrimination. The Court held that terrorism is a matter of national security falling within Union legislative competence under List I and the residuary power, and that the challenged provisions are reasonable restrictions under Article 19(4). It upheld the validity of sections relating to abetment, possession of arms, seizure and forfeiture of property, power to obtain information, declaration of terrorist organisations, support to terrorism, sample collection, witness protection, confession recording, and bail, finding that safeguards and procedural safeguards satisfy constitutional requirements. The petitions were dismissed, with one criminal petition (W.P. (Crl.) No. 48/2003) ordered to be heard separately.

Issues considered

The Parliament's legislative competence to enact POTA under the Union List versus the State List's 'Public Order' entry.
Whether Section 3(3) (abetment) lacks the mens rea element.
Validity of Section 4 (unauthorised possession of arms) without explicit knowledge requirement.
Constitutionality of Section 14 granting investigators power to compel information.
Whether Sections 18 and 19 (designation of terrorist organisations) violate Article 19(1)(c) and audi alteram partem.
Validity of Sections 20‑22 (support to terrorist activities) without mens rea.
Constitutionality of Section 27 (court‑ordered sample collection) vis‑à‑vis Article 20(3).
Validity of Section 30 (witness identity protection) against the right to a fair trial.
Constitutionality of Section 32 (recording of confessions by police).
Reasonableness of Section 49 (bail provisions) and its proviso.

Legislation cited

Code of Criminal Procedure, 1973s. Section 39, s. Section 91
Constitution of Indias. Article 14, s. Article 19, s. Article 19(4), s. Article 20(3), s. Article 21, s. Article 245, s. Article 248, s. Article 97
Indian Penal Code, 1860s. Section 107 (definition of 'abet')
Unlawful Activities (Prevention) Act, 1967

Subjects

terrorismconstitutional validityPOTAlegislative competencefundamental rightsfreedom of speechright to privacyabatementseizure and forfeitureinvestigative powersterrorist organization designationsupport to terrorismsample collectionwitness protectionconfession recordingbail provisions

Judgment

A PEOPLE'S UNION FOR CIVIL LIBERTIES AND ANR.
v.
UNION OF INDIA

DECEMBER 16, 2003

B [S. RAJENDRA BABU AND G.P. MATHUR, JJ.]

Prevention of Terrorist Act, 2002; Sections 4, 18, 19, 20, 21, 27, 30,
32 & 49/Constitution of India 1950; Article 19 and List I & List II to
Seventh Schedule/Code of Criminal Procedure, 1974; Section 91:
C Constitutional validity ofprovision of POTA-Challenge to-Held: POTA
has been enacted after taking into consideration well-established legal
principles-Mere Possibility of abuse cannot be construed as ground for
declaring the Statute unconstitutional.

D State List-Subjects-Public Order-Terrorism-Held: Terrorism
cannot be brought under the Entry 'Public Order' by any stretch of
•
imagination since subjects dealt with in POTA could not be covered under
any Entry/Entries in List II.

Provisions of seizure/forfeiture/attachment of properties-Necessity
E of-Held: Necessary since funding and financing play a vital role on
fostering/promoting terrorism-Necessary safeguard to accused have been
provided for as forfeiture could be effected by the order of the Court-
Principles of natural justice duly observed-Right to appeal available to
accused.
F Power of the Investigating Officer to elicit information-Right to
privacy-Effect on-Held: Since power is necessary in detection ofterror- .,._
ist activities/terrorists-Even Journalist/Lawyers could not withhold such ..
information under the guise of professional ethics-However, in case of
violation of any right, recourse to legal remedies available.
G
Declaring an organization as a terrorist organization-Restriction on
fundamental right of freedom to speech and expression-Held, Central ,'

Government empowered to take such action based on material facts-
Remedial measures provided under POTA whjch satisfies requirements of
H audi alteram partem-Hence, restriction not unreasonable.
860 I
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. 861

Special Penal Provisions-Constitutional validity of-Special pro- A
visions contemplated in the Act to combat the new threat of terrorism-
Hence valid.

Production ofdocuments-Discretionary power of the Court-Valicl-
ity of-Held valid, since it does not fix a blanket responsibility upon the B
Court to grant permission-Moreover, it resembles with the analogous
provision under Section 91 Cr. P.C.

Discretion of the Court in keeping the identity of witness secret-
Validity of-Held: Identity of witness to be witlifield only in exceptional
circt~mstances only when the life of the witness is in danger-However, it C
would be necessary for the Special Court to evolve a mechanism to, ~atisfy
itselfabout truthfulness and reliability ofthe witness to safeguard th~ right
of an accused to a fair trial.

Special provisions of recording of confession-Held: Adequate safo- D
guards in tune with the guidelines/legal principles to be taken into
consideration before recording confession.

Accused booked under POTA-Bail-Additional conditions-Valid-
ity of-Held : Extended period of detention is reasonably required to
complete investigation of overt and covert act of terrorism-After expiry E
of one year of detention, the accused could be released on bail after
hearing the Public Prosecutor under ordinary law-Additional conditions
includedfor prevention ofterrorism and also taking into account complexities
of terrorist relaled offences-Hence reasonable.
F
Words and Phrases:

'mens rea'-Meaning of in the context of criminal jurisprudence;
'terrorism;, 'terrorist acts '-Meaning of in the context of Prevention of
Terrorist Act.
G
In the batch of writ petitions, petitioners challenged the consti-
tutional validity of various provisions of the Prevention of Terrorist
Act, 2002.

It was contended for the petitioners that since some provisions of H'
862 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A POTA, in pith and substance, fall under Entry I (Public Order) of List
II, Parliament lacks legislative competence to enact the law.

On behalf of Union· of India, it was submitted that acts of
terrorists are aimed at weakening the sovereignty and integrity of the
B country and could not be equated with mere breaches of law and order
and disturbances of public order or public safety; that the Legislative
competence of a State to enact laws for its security cannot denude
Parliament of its competence under List I to enact laws to safeguard
national security and sovereignty of India by preventing and punishing
acts of terrorism.
c
Dismissing the writ petitions except W.P. (Crt.) No. 48 of 2003,
to be heard separately, the Court

HELD 1.1. Terrorism has become the most worrying feature of
D the contemporary life. Though violent behavior is.not new, the present
day 'terrorism' in its full incarnation has obtained a different cha~
acter and poses extraordinary challenges to the civilized world. The
basic edifices of a modern State are under the attack of terrorism.
Though the phenomenon of terrorism is complex, a 'terrorist act' is
easily identifiable when it does occur. The core meaning of the term
E is clear even if its exact frontiers are not. That is why the anti-terrorist
statutes- the earlier Terrorism and Disruptive Activities (Prevention)
Act, 1987 (TADA) and now POTA do not define 'terrorism' but only
'terrorist acts'. [872-A-B-C)

F Hitendra Vishnu Thakur v. State of Maharashtra, 11994) 4 sec 602
and Mohd. Iqbal M Shaikh v. State of Maharshtra, [1998) 4 SCC 494,
referred to.

Terrorism related works by Paul Wilkinson, referred to.

G 1.2. The attempts by the State to prevent terrorism should be based
on welt established legal principles. The anti-terrorism laws should be
capable of dissuading individuals or groups from resorting to terrorism,
denying the opportunities for the commission of act of terrorism by
creating inhospitable environments for terrorism and also leading the
H struggle agaipst terrorism. Anti-terrorism law is not only a penat statue
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. 863

but also focuses on pre-emptive rather than defensive State action. At A
the same time in the light of global terrorist threats, collective global
action is necessary. Pa-rliament has passed POTA by taking the relevant
aspects into account. [875-G; 876-B-C; 876-E)

A, X· and Y, and Another v. Secretary of the State for the Home B
Department, (Neutral Citation Number : (2002) EWCA Civ. 1502),
referred to.

1.3. The protection and promotion of human rights under the rule
of law is essential in the prevention of terrorism. If human rights are
violated in the process of combating terrorism, it will be self-defeating. C
Terrorism often thrives where human rights are violated, which adds
to the need to strengthen action to combat violations of human rights. ·
The lack of hope for justice provides breeding grounds for terrorism.
Terrorism itself should also be understood as an assault on basic rights.
The Constitution of India laid down clear limitations on the State D
actions within the context of the fight against terrorism. To maintain ·
this delicate balance by protecting 'core' Human Rights is the respon-
sibility of Court in such a matter. Constitutional soundness of POTA
has to be judged by keeping these aspects in mind. [877-C-D-E)

1.4. The entry 'Public Order' in the State List only empowers the E
States to enact a legislation relating to public order or security in so
far as it affects or relates to a particular State. Howsoever wide a
meaning is assigned to the Entry 'Public Order', the present day
problem of terrorism cannot be brought under the same by any stretch
of imagination. Since the Entry Public Order or any other Entries in F
List II do not cover the situation dealt with in POTA, the legislative
competence of Parliament cannot be challenged. [878-G-H; 879-A] ·

Kartar Singh v. State of Punjab, [1994] 3 SCC 569 = [1994] 2 SCR
375, followed.
G
Prem Nath Kaul v. The State ofJammu & Kashmir, [1959] Supp. 2
SCR 270; Rehman Shagoo & Ors. v. State of Jammu & Kashmir, (1960]
l SCR 680; Romesh Thaper v. State ofMadras, [1950] SCR 594; Dr. Ram
Manohar Lohia v. State of Bihar, [19661 1 SCR 709 and Madhu Limaye
v. SDM, Monghyr, [1970) .3 SCC 746, distinguished. H
864 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A 1.5. The Court can riot go into and examine. the 'need' of POTA.
It is a matter of policy. Once legislation is passed the Government has
an obligation to exercise all available options to prevent terrorism
within the bounds of the Constitution. Mere possibility of abuse cannot
be counted as a ground for denying the vesting of powers or for
B · declaring a statute unconstitutional. [880-D-E]
State of Rajasthan v. Union of India. 11978) 1 SCR 1; Collector of
Customs v. Nc:thella Sampathu Chetty, AIR (1962) SC 316; Keshavananda
Bharati v. State of Kerala, [1973] 4 SCC 225 and Mafatlal Industries v.
[J_nion of India, [1997] 5 SCC 536, relied on.
c 1.6. The provisions in Section 4 of POTA presupposes ·knowledge
of terrorist act for possession. There is no .question of innocent persons
getting [lUnished. Hence, there is no infirmity in Section 4 of POTA.
[882-D]

D Sanjay Dutt v. State (II), (1994) 5 sec 410, relied on.

1.7. Funding and financing play a vital role .in fostering and
promoting terrorism and it is only with such funds terrorists are able
to recruit persons for their activities and make payments to them and
their family to obtain arms and ammunition for furthering terrorist
E activities and to sustain the campaign ofterrorism. Therefor, seizure,
forfeiture and attachment of prope~ties are essential in order to
contain terrorism and is not unrelated to the same. The scheme of the
provisions under POTA indicate that the principles of natural justice
are duly observed and they do not confer any arbitrary power and
F forfeiture can only be made by an order of the court again.~t which an
appeal is also provided to the High Court and the rights ·of bona fide
transferee are not .affected. [884-E-F, G; 885-A]

United Nations Security Council:Resolution No.I 1373 dated 28.9.2001,
referred to.
G· 1.8. Cl."iminal justice system cannot function without the coopera-
tion of people. Rather.-it is the duty of every ·body to assist the State
in detection of the cr_ime and bringing criminal .to justice. Withholding
such information cannot be traced to right to .privacy, which itself is
not an absolute right~ Section l4 of POTA .cenfers power to the
H investigating officer to ask for furnishing information that will be
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. 865

useful for or relevant to the purpose of the Act. Furthermore such A
information could be asked only after obtaining a written approval
from an officer not below the rank of a Superintendent of Police. Such
power to the investigating officers is quite necessary in the detection
of terrorist activities or terrorist. It is settled position of law that a
journalist or lawyer does not have a sacrosanct right to withhold B
information regarding crime under the guise of professional ethics. Of
course the investigating officers will be cirC;umspect and cautious in
requiring them to disclose information. In the process of obtaining
information, if any right of citizen is violated, nothing prevents him
from resorting to other legal remedies. In as much as the main purpose
of Section 14 of POTA is only to allow the investigating officers to C
procure certain information that is necessary to proceed with the
further investigation. [886-F-G; 887-A, B-C-D-E)

Sharda v. Dharmpal, [2003} 4 SCC 493; State of Gujarat v ..
Anirudhsing, [1997) 6 SCC 514; Pandit MS.M Sharma v. Shri Krishan D
Sinha, [1959] Supp. I SCR 806 and Sewakaram Sobhani v. R.K Karanjia,
[1981] 3 sec 208, relied on.

1.9. POTA is enacted to protect sovereignty and integrity of India
from the menace of terrorism. Imposing restriction under Article 19(4)
of the Constitution also includes declaring an organization as a . E
( terrorist organization as provided under POTA. Hence Section 18 of
POT A deals with notification/de-notification of terrorist organs is not
unconstitutional. The post-decisional remedy provided under POTA
satisfies the audi u/term partem requirement in the matter of declaring
an organization as a terrorist organization. Therefore, the absence of F
pre-decisional hearing cannot be treated as a ground for declaring
Section 18 of POTA as invalid. As regards the reasonableness of the
restriction provided under Section 18 of POTA, it has to be noted that
the factum of declaration of an organization as a terrorist organization
depends upon the 'belier of Central Government. The reasonableness
-· of the Central Government's action has to be justified based on G
material facts upon which it formed the opinion. Moreover the Central
Government is bound by the order of the Review Committee.
.Considering the nature of legislation and magnitude or presence of
terrorism, it cannot be said that Section 18 of POTA imposes
unreasonable restrictions of fundamental right guaranteed under H
866 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.
A Article 19(t)(c) of the Constitution. [888-G; 889-C-D; F-GI
Mohinder Singh Gill v. Chief Election Commissioner, [19781 1 SCC
405; Swadeshi Cotton Mills v. Union of India, [1981) 1 SCC 664; Olga
Tellis v. Bombay Municipal Corporation, [19851 3 SCC 545 and Union
B of.IJ?dia v. Tulsiram Patel, [1985]? sec 398, relied on.

1.1 0. The mere presence of non-judicial members in the review
Committee by itself cannot be treated as a ground to invalidate Section
19 of POTA. [889-EI

C Kartar Singh v. State of Punjab, (1994] 3 SCC 589 = [1994] 2 SCR
375, relied on.

1.11. Sections 20, 21 and 22 of POTA is similar to that of Sections
11, 12 and 15 of the Terrorism .Act, 2000 of United Kingdom. Such
D Provisions are found to be quite necessary all over the world in anti-
terrorism effects. Sections 20, 21 and 22 are penal in nature that
demand strict construction. These provisions are a departure from the
ordinary law since the said law was found to be inadequate and not
sufficiently effective to deal with the threat of terrorism. Moreover, the
crime referred to herein under POTA is aggravated in nature. Hence
E special provisions are contemplated to combat the new threat of
terrorism. Support, either verbal or monetary, with a view to nurture
terrorism and terrorist activities is causing new challenges. Therefore
Parliament finds that such support to terrorist organizations o.r
terrorist.activities need to be made punishable. Viewing the legislation
F in its totality it cannot be said that these provisions are obnoxious. The
provisions under Sections 20, 21 and 22 of POTA are limited only to
those ac-tivities that have the intent of encouraging or furthering or
promoting or facilitating the commission of terrorist activities. If these
Sections are understood .in this way, there cannot be any misuse. With
this clarification the constitutional validity of Sections 20, 21 and 22
G is upheld. [890-D-E-F; 891-F]

1.12. It is the cardinal· principle of criminal jurisprudence that
mens rea element is necessary to constitute a crime. It is the general
rule that a penal statute presupposes mens rea element. It will· be
H excluded only if the legislature expressly postulate otherwise. [890•GI

-
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.l. 867

Kartar Singh v. State of Punjab, [1994) 3 SCC 589 = [1994) 2 SCR A
375; State ofMaharashtra v. MH George, AIR (1965) SC 722; Nathulal
v. State of MP, AIR (1966) SC 43 and Inder Sain v. State of Punjab,
[1973) 2 sec 372, referred to.

1.13. Section 27 of POTA does not fix a blanket responsibility B
upon the Court to grant permission immediately •-tlO·• the receipt of ·
a request. Upon a 'request' by an investigating police officer is shall
only 'be lawful' for the Court to grant permission. It is very well within
the ambit of Court's discretion. If the request is based on wrong
premises_, the Court is free to refuse the request. This discretionary
power granted to the Court presupposes that the Court will have to C
record its reasoning for allowing or refusing a request. The argument
of the Petitioners pertaining to the violation of Article 20(3) of the
Constitution is not sustainable. It is meaningful to look into Section 91
· Cr.P.C. that empowers a criminal court as also a police officer to order
any person to produce a document or other thing in his possession for D
the purpose of any inquiry or trial. Moreover,. Section 27 of POTA is
only a step in aid for further investigation and the samples so obtained
can never be considered as conclusive proof for conviction."Jience, the
constitutional validity of Section 27 is upheld. [892-D-E; 893-C-D-E)

Shyamlal Mohanlal v. State ofGujarat, AIR (1961) SC 1808 and E
State of Bombay v. Kathi Kalu Oghad, [1962) 3 SCR 10, relied on.

1.14. Section 30 of POTA only confers discretion to the concerned
Court to ke~p th~ identity of witness secret if the life of such witness is
in danger; that often witnesses do not come forward to depose before F
Court even in serious cases. This precarious situation creates challenges
to criminal justice administration in general and terrorism related cases
in particular. Witnesses do not volunteer to give evidence mainly due to
fear oftheir life. Ultimately, the non-conviction affects the larger interest
of community, which lies in ensuring that the executors of heinous
offences like terrorist acts are effectively prosecuted and punished. G
Legislature drafted Section 30 by taking all these factors into account.
Hence, a fair balance between the rights and interest of witness, rights
ofaccused and larger public interest has been maintained under Section
30. It is also aimed to assist the State in justice administration and
encourage others to do the same under the given circumstances. H

,.
868 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.
A Anonymity of witness is not general rule under Section 30. Identity will
b_e withheld only in exceptional circumstances when the Special Court
is satisfied that the life of witness is in jeopardy. In order to safeguard
the rig-ht of ~n accused to a fair tri-al and basic requirements of the due
process a mechanism can be evolved whereby the special court is obligated
to satisfy itself about the truthfulness and reliability of the statement or
B dis.pos.ition of the witness whose identity is sought to be protected. It is
not appropriate to suggest the procedure that has to be adopted by the
Special Courts for keeping the identity of witness secret. It shall be
appropriate for the concerned Courts to take in to account all the factual
circumstances of individual cases and to forge appropriate methods to
C ensure the safety of individual witness. Hence, the validity of Section 30
is upheld. [894-E-F-G-H; 895-A, H; 896-A, H; 897-A}

Kartar Singh v. State of Punjab, [1994) 3 SCC 589 = [19941 2 SCR
375; Gurbachan Singh v. State of Bombay, (19521 SCR 737; Hira Nath
D Mishra v. Principal, Rajendra Medical College, [1973) I SCC 805; A.K.
Roy v. Union of India, (1982) 1 SCC 271 and Jamaat-e-Islami v. Union
of India, (19951 1 SCC 428, relied on.

1.15. :While enacting Section 32 of POTA Parliament has taken
into account all the guidelines, which were suggested by this Court in
E Kartar Singh's case. If the recording of confession by police is found
to be necessary by Parliament and if it is in tune with the scheme of
law, then an ad~itional safeguard under Section 32(4) and (5) is a
fortiori legal. The provision that requires producing such a person
before the Magistrate is an additional safeguard. It gives that person
F an opportunity to rethink over his confession.. Moreover, the Magis-
trate's responsibility to record the statement and the enquiry about the
torture and provision for subsequent medical treatment makes the
provision safer. It will deter the police officers from obtaining a
confession from an accused by subjecting him to torture. It is also
worthwhile to note that an officer who is · below tlte rank of a
G Superintendent of Police cannot record the confession statement. It is
a settled position that if a confession was forcibly extracted, it is a
nuility in law. Non-inclusion of this obvious and settled principle does
not make the Section invalid. Judicial wisdom will surely prevail over
irregularity, if any in the process of recording confessional statement.
H Hence, the safeguards provided by the Act and under the law is
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. 869

adequate in the given circumstances. Consequently the validity of A
Section 32 is upheld. (898-A; C-D-E-F]

Kartar Singh v. State of Punjab, [1994]3 SCC 589 = {1994) 2 SCR
375, relied on.

1.16. By virtue of Section 49(8) of POTA, the powers under ·B
Section 49(6) and (7) pertaining to bail is in addition to and not in
derogation to the powers under the provisions of Cr.P.C. or any other
law for the time being in force on granting of bail. The offences under
POTA are more complex than that of ordinary offences. Usually the
overt and covet ·acts of terrorism are executed in a chillingly efficient C
manner as a result of high conspiracy, which is invariably linked with
anti-national elements both inside and outside the country. So an
expanded period of detention is required to complete the investigation.
Such a .comparatively long period for solving the case is quite justifi-
able. Therefore, the investigating agencies may need the custody of D
accused for a longer period. Consequently, Section 49(6) and (7) are
not unreasonable. However, bail could be obtained for an accused
booked under POTA if the 'court is satisfied .that there are grounds
for believing that he is not guilty of committing such offence' after
hearing the Public Prosecutor. It is the general law that before E
granting the bail the conduct of accused seeking bail has to be taken
into account and evaluated in the background of nature of crime said
to ha\'e been committed by him. That evaluation shall be based on the
possibility of his likelihood of either tampering with the evidence or
committing the offence again or creating threat to the society. Since F
the satisfaction of the Court under Section 49(7) has to be arrived
based on the particular facts and after considering the above mentioned
aspects, provision under Section 49(7) is not unreasonable. Sections
49(6) and 49(7) of POTA have to be read together and the effect of
combined reading is that Public Prosecutor has been given an oppor-
.
' tunity of being heard before releasing the accused on baH and if he G
opposes the application, the court will have to be satisfied that there
are grounds for believing that he is not guilty of having committed such
offence. It is by way of exception to Section 49(7) that proviso is added
, . which means that after the expiry of one year after the detention of
the accused for offences under POTA, the accused can be released on H
870 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A bail after hearing· the Public Prosecutor under ordinary law without
applying the rigour of Section 49(7) of POTA. Proviso to Section 49(7)
provides that the condition enumerated in sub-section (6) will apply
after the expiry of one year. There appears to be an accidenta_lomission
or the mistake 9f not including the word 'not' after the word 'shall'
B and bef?re the word 'apply'. Unless such a word is included, the
provision will lead to an absurdity or become meaningless. Even
. .
othenvise, read appropriately, the meaning of the proviso to Section
49(7) is that an accused can resort to ordinary bail procedure under
the Cr.P.C. after the period of one year. At the same time, the proviso
C does not. prevent StiCh· an accused to approach the Court for bail in
accoi"danc~ with the provisions of POTA under Section 49(6) and (7)
thereof. Taking into account of the complexities of the terrorism
related offences and intention of Parliament in enacting a special law
..for its prevention, the additional conditions regarding bail under
D POTA are not unreasonable. Hence, the validity of Section 49 is also
upheld. (899-G-H; 900-A-B-C-D, G-H; 901-B-C-D-EJ

.
Kartar Singh v. State of Punjab, (1994) 3 SCC 589 = (1994] 2 .SCR
.

375, relied on.

£ CIVIL ORIGINAL JURISDICTION : Writ petition (C) No. 389 of
2002.

Under Article 32 of the Constitution of India.

WITH
F
W.P. (Crl.) Nos. 89, 129/2002, 28 and 48 of 2003.

Soli J. Sorabjee, Attorney General, Rajinder Sachhar, Anil a. Divan,
B.S. Mallik, P.P. Rao, Sanjay Parikh, A.K. Mishra, A.N. Singh, V.Sudan,
G T. Harish Kumar, P.R. Kovllan, V. Krishna Murthy, Dr. R.G. Prakash, Dr.
N.A. Siddiqui, G. Devadoss, V.Ramasubramanian,. Trideep Pals, K.J. John,
Parineswaran, Dhruv Mehta, Prateek Jalan, Preetesh Kapur, A.D.N. Rao,
Mahish Singhvi, Aman Sinha, Anand Misra, Ashim Sood, Sunil Mathews
and P.N. Ramalingam for the appearing parties.

H The Judgment of the Court was delivered by
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 871

RAJENDRA BABU, J.: WP. (C) No. 38912002 & WP.(Crl) No. A
89/2002 :

In this batch of Writ Petitions before us the Constitutional validity of
various provisions of the Prevention of Terrorism Act, 2002 (hereinafter
POTA) is in challenge. B
. The Petitioners' contended before us that since the provisions of
POTA, in pith and substance, fall under the Entry 1 (Public Order) of List
II Parliament lacks legislative competence. To authenticate this contention,
the decision in Rehman Shagoo & Others v. State of Jammu Kashmir,
(1960] I SCR 680, is relied upon. According to them, the menace of C
terrorism is covered by the Entry "Public Order" and to explain the
meaning thereof, our attention is invited to decisions in Romesh Thaper
v. State of Madras, [1950] SCR 594, Dr. Ram lvfanohar Lohia v. State of
Bihar, (1966] 1 SCR 709 and Madhu Limaye v. SDM, Monghyr, [1970]
3 sec 746. The Petitioners thus submitted that terrorist activity is confined D
only te State(s) and therefore State(s) only have the competence to enact
a legislation.

The learned Attorney General refuting this contention submitted that
acts of terrorism, which are aimed at weakening the sovereignty and E
integrity of the country cannot be equated with mere breaches of law and
order and disturbances of public order or public safety. He argued that the
concept of "sovereignty and integrity of India" is distinct and ·separate
from the concepts of"pubiic order" or "security of State" which fall under
List II enabling States to enact legislation relating to public order or safety
affecting or relating to a particular State. Therefore, the legislative F
competence of a State to enact laws for its security cannot denude
Parliame.nt of its competence under List I to enact laws to safeguard
national security and sovereignty oflndia by preventing and punishing acts
of terrorism. Learned Attorney General distinguished the decision in
Rehman Shagoo and submitted 6at the legislation dealt with therein is G
fundamentally and qualitatively different from POTA. He also argued
before us that Rehman Shagoo cannot mitigate the binding ratio and
unanimous conclusion reached by this Court on the point of legislative
competence in Kartar Singh v. State ofPunjab, [1994] 3 SCC 569 = [1994]
2 SCR 375, that Parliament can enact such law. H
872 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.
A In deciding the point of legislative competence, it is necessary to
understand the contextual backdrop that led to the enactment of POT A,
which aims to combat terr.orism. Terrorism has become. the most worrying
feature of the contemporary life. Though violent behavior is not new, the
present day 'terrorism' in its full incarnation has obtained a different
·B character and poses extraordinary challenges to the civitized world. The
basic edifices of a modern State, like - democracy, state security, rule of
law, sovereignty and integrity, basic human rights etc. are under the attack
of terrorism. Though the phenomenon of terrorism is complex, a 'terrorist
act' is easily identifiable when it does occur. The core meaning ofthe term
is clear even if its exact frontiers are not. That is why the anti-"terrorist
C statutes- the earlier Terrorism and Disruptive Activities (Prevention) Act,
1987 (TADA) and now POTA do not define 'terrorism' but only 'terrorist
acts.' (See : Hitendra Vishnu Thakur v. State of Maharashtra, [1994] 4
sec 602).
:D Paul Wilkinson, an authority on terrorism related works, culled out
five major characteristics of terrorism. They are:

1. It is premeditated and aims to create a climate of extreme
fear or terror.

E 2. It is directed at a wider audience or target than the immediate
victims of violence.

3. It inherently involves attacks on random and symbolic
targets, including civilians.
F
4. The acts of violence committed are seen by the society in
which they occur as extra-normal, in literal sense that th~y
breach the social norms, thus causing a sense of o~trage; and

5. Terrorism is used to influence political behavior in some
G way - for example to force opponents into conceding some
or all of the perpetrators demands, to provoke an over-
reaction, to serve as a catalysis for more general conflict, or
to publicize a political cause.

H In all acts of terrorism, it is mainly the psychological element that
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 873

distinguishes it from other political offences, which are invariably accom- A
panied with violence and disorder. Fear is induced not merely by making
civilians the direct target of violence but also by exposing them to a sense
of insecurity. It is in this context that this Court held in Mohd. Iqbal M
Shaikh v. State of Maharashtra, [1998] 4 SCC 494, that:
B
" .. .it is not possible to give a precise definition of terrorism or to
lay down what constitutes terrorism. But...· it may be possible to
describe it as a use of violence when its most important result is
not merely the physical and mental damage of the victim but the
prolonged psychological effect it produces or has the potential of
producing on the society as a whole .... if the object of the activity C
is to disturb harmony of the society or to terrorize people and the
society, with a view to disturb even tempo, tranquility of the
society, and a sense of fear and insecurity is created in the minds
of a section of society at large, then it will, undoubtedly be held
to be terrorist act..." D
Our country has been the victim of an undeclared war by the
epicenters of terrorism with the aid of well-knit and resourceful terrorist
organizations engaged in terrorist activities in different States such as
Jammu & Kashmir, North-East States, Delhi, West Bengal, Maharashtra, E.
Gujarat, Tamilnadu, Andhra Pradesh. The learned Attorney General placed
material to point out that the year 2002 witnessed 4038 terrorist related
violent incidents in J&K in which 1008 civilians and 453 security
personnel were killed. The number of terrorist killed in 2002 was 1707 out
of which 508 were foreigners. In the year 2001 there were as many as 28
suicide attacks while there were over I 0 suicide attacks in 2002 in which F
innocent persons and a large number of women and children were killed.
The major terrorist incidents in the recent past includes attack on Indian
Par1iament on 13th December 200 I, attack on Jammu & Kashmir Assem-
. bly on 1st October, 2001, attack on Akshardham temple on 24th September
2002, attack on US Information Center at Kolkatta on 22nd January 2002, G
Srinagar CRPF Camp attack on 22nd November 2002, lED blast near
Jawahar Tunnel on 23rd November 2002, attack on Raghunath Mandir on
24th November 2002, bus bomb blast at Ghatkopar in Mumbai on 2nd
December 2002, attack on villagers in Nadimarg in Pulwama District in
Jammu Kashmir on the night of 23rd-24th March 2003 etc. There were H
874 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A attacks in Red Fort and on several Government Installations, security
forces' camps and in public places. Gujarat witnessed gruesome carnage
of innocent people by unleashing unprecedented orgy of terror. People in
Bihar, Andhra Pradesh, and. Maharashtra etc. have also experienced the
terror trauma. The latest addition to this long list of terror is the recent twin
B blast at Mumbai that claimed about 50 lives. It is not necessary to swell
this opinion by narrating all the sad episodes of terrorist activities that the
country has witnessed.

All these terrorist strikes have certain common features. It could be
very broadly grouped into three.
c
1. Attack on the institution of democracy, which is the very
basis of our country. (By attacking Parliament, Legislative
Assembly etc). And ·the attack on economic system by
targeting economic nerve centers.
D
2. Attack on symbols of national pride and on security I
strategic installations. (eg. Red Fort, Military installations
and camps, Radio stations etc.)

3. Attack on civilians to generate terror and fear psychosis
E among the general populace. The attack at worshipping
•
places to injure sentiments and to whip communal passions.
These are designed to position the peo!)le against the gov-
ernment by creating a feeling of insecurity.
. .
F Terrorist acts are meant to destabilize the nation by challenging its
sovereignty and integrity,' to raze the constihitional principles that we hold
dear, to create a psyche of f~ar and anarchism among common people, to
tear apart the secular fabric, to overthrow democratically elected govern-
ment, to promote prejudice and bigotry, to demoralize the security forces,
to thwart the economic progress and development and so on. This cannot
G be equated with a usual law and order problem within a State. On the other
hand, it is inter-state, inter-national or ~ross-border in character. Fight
against the 9vert and covert acts of terrorism is not a regular criminal justice
endeavor. Rather it is defence of our nation and its citizens. It is a challenge
to the whole nation and invisible force of Indianness that binds this great
H nation togt:{ther; Therefore, terrorism is a new challenge for law enforce-
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 875
.
(
ment. By indulging in terrorist activities organized groups or individuals, A
trained, inspired and supported by fundamentalists and anti-Indian ele-
ments were trying to destabilize the country. This new breed of menace
was hitherto unheard of. Terrorism is definitely a criminal act, but it is
much more than mere criminality. Today, the government is charged with
the duty of protecting the unity, integrity, secularism and sovereignty of B
India from terrorists, both from outside and within bor-ders. To face
terrorism we need new approaches, techniques, weapons, expertise and of
course new laws. In the above said circumstances Parliament felt that a
new anti-terrorism law is necessary for a better futu_re. This parliamentary
resolve is epitomized in POT A.
c
The terrorist threat that we are facing is now on an unprecedented
global scale. Terrorism has become a global threat with global effects. It
has become a challenge to the whole community of civilized nations.
Terrorist activities in one country may take on a transnational character,
carrying out attacks across one border, receiving funding from private D
parties or a government across another, and procuring arms from multiple
sources. Terror~sm in a single country can readily become a threat to
regional peace and security owing to its spillover effects. It is therefore
difficult in the present context to draw 'sharp distinctions between domestic
and international terrorism. Many happenings in the recent past caused the E
international community to focus on the issue of terrorism with renewed
intensity. The Security Council unanimously passed resolutions 1368
(2001) and 1373 (2001); the General Assembly adopted resolution 56/1 by
consensus, and convened a special session. All these resolutions and
declarations inter alia call upon Member States to take necessary steps to
'prevent and suppress terrorist acts' and 3Jso to 'prevent and suppress the F
financing of terrorist acts.' India is a party to all these resolves. Anti-
terrorism activities in the global level are mainly carried out through
bilateral and multilateral cooperation among nations. It has thus become
our international obligation also to pass necessary laws to fight terrorism.

The attempts by the State to prevent terrorism should be based on G
well-established legal principles. The 'Report of the Policy Working Group
of the United Nations and Terrorism' urged the global community to
concentrate on a triple strategy to fight against terrorism. They are:

(a). Dissuade disaffected groups from embracing terrorism; H
876 SUPREME COURT REPORTS ·[2003] SUPP. 6- S.C.R.

A (b). Deny groups or individuals the means to carry out acts of
terrorism; and

(c). Sustain broad-based international cooperation in the struggle
against terrorism.

B Therefore, the anti-terrorism laws should be capable of dissuading
individuals or groups from resorting to terrorism, denying the opportunities
for the commission of acts of terrorism by creating inhospitable environ-
ments for terrorism and also leading the struggle against terrorism. Anti- .
terrorism law is not only a penal statue but also focuses on pre-emptive
C rather than defensive State action. At the same time in the light of global
terrorist threats, collective global action is necessary. Lord Woolf CJ in A,
X and Y, and Another v. Secreta~y of the State for· the Home Department
(Neutral Citation Number, [2002] EWCA Civ. 1502) has pointed out that
"... Where international terrorists are operating globally and committing
D acts designed to terrorize the population in one country, that can have
implications which threaten the life of another. This is why a collective
approach to terrorism is important. "

Parliament has passed POTA by taking all these aspects into account.
The terrorism is not confined to the borders of the country. Cross-border
E terrorism is also threatening the country. To meet such a situation, a law
can be enacted only by Parliament and not by a State Legislature. Piloting
the Prevention of Terrorism Bill in the joint session of Parliament on March
' .
26, 2002 Hon'ble ·Home Minister said:

" ... The Government of India has been convinced for the last
F
four years that we have been here and I am sure even the earlier
Governments held that terrorism and more particularly, State-
sponsored cross border terrorism is a kind of war. It is not just
a law and order problem. This is the first factor, which has been
responsible for Government thinking in terms of an extraordinary
G law like POTO.

...So, first of all, the question that I would like to pose to all of
you and which we have posed to the nation is: 'Is it just in Jammu
and Kashmir an aggravated law and order situation that we are
H facing .or is it really when we say it a proxy war, do we really ,·
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 877

believe that it is a proxy war?' ...But when you have terrorist A
organizations being trained, financed by a State and it becomes
State-sponsored terrorism and all ofthem are enabled to infiltrate
into our country, it becomes a challenge of a qualitatively
different nature... "
(Emphasis supplied) B

From this it could be gathered that Parliament has explored the
possibility of employing the existing laws to tackle terrorism and arrived
at the conclusion that the existing laws are not capable. It is also clear to
Parliament that terrorism is not a usual law and order problem.
c
The protection and promotion of human rights under the rule of law
is essential in the prevention of terrorism. Here comes the role of law and
Court's responsibility. If human rights are violated in the process of
combating terrorism, it will be self-defeating. Terrorism often thrives
where human rights are violated, which adds to the need to strengthen D
action to combat violations of human rights. The lack of hope. for justice
provides breeding grounds for terrorism. Terrorism itself should also be
understood as an assault on basic rights. In all cases, the fight against
terrorism must be respectful to the human rights. Our Constitution laid
down clear limitations on the State actions within the context of the fight E
against terrorism. To maintain this delicate balance by protecting ' core'
Human Rights is the responsibility of Court in a matter like this. Consti-
tutional soundness of POTA needs to be judged by keeping these aspects
in mind.

Now, we will revert to the issue of legislative competence. Relying
F
on Rehman Shagoo Petitioners argued that Parliament lacks competence
since the 'terrorism' in pith ar.d substance covered under the Entry l
(Public Order) of List II. Conclusion of this contention depends upon the
true meaning of the Entry - 'Public Order'.
G
A constitution Bench of this Court in Rehman Shagoo examined the
constitutionality of the Enemy Agents (Ordinance), No. VIII of S. 2005
promulgated by His Highness the Maharaja under Section 5 of Jammu
Kashmir Constitution Act, S. 1996. For a proper understanding of the ratio
in Rehman Shagoo, it is necessary to understand the background in which H

.
I
878 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A the impugned Ordinance was promulgated. (See: Prem Nath Kaul v. The
State of Jammu & Kashmir, [ 1959] Supp. 2 SCR 270, to understand the
background that prevailed in the then Kashmir). Because any interpretation
divorced from the context and purpose will lead to bad conclusions. It is
a well-established canon of interpretation that the meaning of a word
B should be understood and applied in accordanc~ with the context of time,
social and conditional needs. Rehman Shagoo was concerned with the
interpretation of Instrument of Accession and the power of Maharaja to
issue the impugned Ordinance therein. The same was promulgated to
protect the state of Kashmir from externai raiders and to punish them and
C those who assist them. The situation that prevailed during the latter half
of 1940s is fundamentally different form today. The circumstances of
independence, partition, state re-organization, and the peculiar situation
prevailing in the then Kashmir etc. need to be taken into account. It is only
in that context this Court said in Rehman Shagoo that the impugned
Ordinance:
D
" .. .In pith and substance deals with public order and criminal law
procedure; the mere fact that there is an indirect impact on armed
forces in s. 3 of the Ordinance will not make it in pith and
substance a law covered by item (1) under the head 'Defence' in
E the Schedule."

Th~refore, Rehman Shagoo is distinguishable and cannot be used as
an authority to challenge the competence of Parliament to pass POT A. The
problems that prevailed in India immediately after independence cannot be
F compared with the menace of terrorism that we are facing in the twenty
first century. As we have already discussed above, the present day problem
of terrorism is affecting the security and sovereignty ofthe nation. It is not
State specific but trans-nationaL Only Parliament can make a legislation
to meet its challenge. Moreover, the entry 'Public Order' in the State List
only empowers the States to enact a legislation relating to public order or
G security in so far as it affects or relates to a particular State. Howsoever
wide a meaning is assigned to the Entry 'Public Order', the present day
prob Iem of terrorism cannot be brought under the same by any stretch of
imagination. Thus, Romesh Thaper, Dr. Ram Manohar Lohia and Madhu
Limaye (all cited earlier) cannot be resorted to read 'terrorism' into 'Public
H Order~. Since the Entry Public Order or any other Entries in List II do not
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 879

cover the situation dealt with in POTA, the legislative competence of A
Parliament cannot be challenged. Earlier a Constitution Bench of this
Court, while dealing with the very same argument, held in Kartar Singh'$
case (supra) as follows:

"Having regard to the limitation placed by Article 245 (1) on the B
legislative power of the Legislature of the State in the matter of
enactment of laws having application within the territorial limits
of the State only, the ambit of the field of legislation with respect
to 'public order' under Entry 1 in the State List has to be confined
to disorders of lesser gravity having an impact within the bounda-
ries of the State. Activities of a more serious nature which threaten C
the security and integrity of the country as a whole would not be
within the legislative field assigned to the States under Entry 1
of the State List but would fall within the ambit of Entry 1 of the
Union List relating to defence of India and in any event under the
residuary power conferred on Parliament under Article 248 read D
with Entry 97 of the Union List.

The terrorism, the Act (TADA) contemplates, cannot be classified
as mere disturbances of 'public ord~' disturbing the 'even tempo E
of the life of community of any specified locality' - in the words
of Hidayathulla, C J in Arun Ghosh v. State of West Bengal,
[1970] 1 src 98 but it is much more, rather a grave emergent
situation created either by external forces particularly at the
frontiers of this country or by anti-nationals throwing a challenge F
to the very existence and sovereignty of the country in its
democratic polity.

In our view, the impugned legislation does not fall under Entry G
1 of List II, namely, Public Order. No other Entry in List II has
been invoked. The impugned Act, therefore, falls within the
legislative competence of Parliament in view of Article 248 read
with Entry 97 of List I and it is ttot necessary to consider whether
it falls under any of the entries in List I or List IlL We are, H
880 · SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A however, of the opinion that the .impugned Act could fall within
the ambit of Entry I of List I, namely, 'Defence of India'." [pp.
633, 634, 635]

While this is the view of the majority of Judges in Kartar Singh's
B case (supra), K. Ramaswamy, J. held that Parliament does possess power
under Article 248 and Entry 97 of List I of the Seventh Schedule and could
also come within the ambit of Entry l of List III. Sahai, J. held that the
legislation could be upheld under Entry 1 of List III. Thus, all the Judges
are of the unanimous opinion that Parliament had legislative competence
· though for different reasons.
c
Considering all the above said aspects, the challenge advanced by
Petitioners of want of legislative competence of Parliament to enact POTA
is not tenable.

D Another issue that the Petitioner has raised at the threshold is the
alleged misuse ofTADA and the large number of acquittals of the accused
charged under TADA. Here we would like to point out that this Court
cannot go into and examine the 'need' of POTA. It is a matter of policy.
Once legislation is passed the Government has an obligation to exercise
all available options to prevent terrorism within the ·bounds of the
E Constitution. Moreover, we would like to point out that this Court has
repeatedly held that mere possibility of abuse cannof be counted as a
ground for denying the vesting of powers or for declaring a statute
unconstitutional. (See: S~ate ofRajasthan v. Union of India, [ 1978) I SCR
1; Collector of Customs v. Nathe/la Sampathu Chetty, AIR (1962) SC 316;
F Keshavananda Bharati v. State of Kerala, [l973] 4 sec 225 and Mafatlal
Industries v. Union of India, [ 1997] 5 SCC 536 etc.).

1-..feaning of the word 'abets' in the context of POTA:

Pertaining to the validity of individual sections, petitioners primarily
G contended that Section 3(3) of POTA provides that whoever 'abets' a
terrorist act or any preparatory act to a terrorist act shall be punishable and
this provision, fails to address the requirement of' mens rea' element. They
added that this provision has been incorporated in POTA in spite of the
contrary observation of this Court in Kartar Singh, wherein it was held that
H the word 'abets' need to have the requisites of intention or knowledge.
PEOPLE'S UNIOl'J FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 881

Consequently, they want us to strike down Section 3(3) as the same is prone A
to misuse.

In Kartar Singh, this Court was concerned with the expression "abet"
as defined under Section 2(l)(a) ofTADA and hence considered the effect
of different provisions ofthe TADA to ascertain true meaning.thereof. As B
the meaning of the word "abet" as defined therein is vague and in precise,
actual knowledge or reason to believe on the part of the person to be
brought within the definition should be brought into that provision instead
of reading down that provision. That kind of exercise is not necessary in
POTA.
c
Under POTA the word "abets" is not defined at all. Section 2(l)(i)
of POTA says "words and expressions used but not defined in this Act and
defined in the Code shall have the meaning respectively assigned to them
in the Code." According to Section 2(1)(a) ofPOTA "Code" means 'Code
. ·,I

ofCriminal.Procedure, 1973 (2 of 1974).' Whereas, Section 2(y) Cr.P.C. D
refers to Indian Penal Code for meaning of the word 'abets'. Therefore,
the definition of 'abets' as appears in the JPC will apply in a case under
POTA. In order to bring a person abetting the commissio~ of an offence,
under the provisions of IPC it is necessary to prove that such person. has
been connected with those steps of the transactions that are criminal. 'Mens
rea' element is sine qua non for offences under IPC. Learned Attorney E
General does not dispute this position. Therefore, the argument advanced
pertaining to the validity of Section 3(3) citing the reas::m of the absence
of mens rea element stands rejected.

Section 4: F
Section 4 provides for punishing a person who is in 'unauthorised
possession' of arms or other weapons. The petitioners argued that ~ince
the knowledge element is absent the provision is bad in law. A similar issue
was raised before a .constitution Bench of this Court in Sanjay Dutt v. State
. (II), [1994] 5 sec 410. Here this Court in Para 19 observed that: G
" ... Even though the word 'possession' is not preceded by any
adjective like 'knowingly', yet it is common ground that in the
context the word 'possession' must mean possession with the
requisite mental element, that is, conscious possession and not H
882 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A mere custody without the awareness of the nature of such
posse~sion. There is a mental element in the concept of posses-
sion. Accordingly, the ingredient of 'possession' in Section 5 of
the TADA Act means conscious possession. This is how the
ingredient of possession in similar context of statutory offence
importing strict liability on account of mere possession of an
B
unauthorised substance has been understood."

The finding of this Court squarely to the effect that there exists a
mental element in the word possession itself answers the Petitioners
argument. The learned Attorney General also maintains the stand that
C Section 4 presupposes conscious possession. Another aspect pointed out
by the petitioners is about the 'unauthorized' possession of arms and
argued that unauthorized possession could even happen; for example, by
non-renewal of license etc. In the light of Sanjay Dutt's case (supra) this
Section presupposes knowledge of terrorist act for possession. There is no
D question of innocent persons getting punished. Therefore, we hold that
there is no infirmity in Section 4.

Sections 6, 7, 8, 10, 11, 15, 16 and 17:

Contentions have been raised in regard to provisions relating to
E seizure, attachment and forfeiture of proceeds of terrorism.

Provisions relating to seizure, attachment and forfeiture have to be
read together. Section 2(c) of POTA sets out the meaning of 'proceeds
of terrorism' and reads · as follows:
F
'"proceeds of terrorism' shall mean all kinds of properties which
have been derived or obtained from commission of any terrorist
act or have been acquired through funds traceable to a terrorist
act, and shall include cash irrespective of person in whose name
such proceeds are standing or in whose possession they are
G found."
..,,
Explanation to Section 3 gives the meaning of 'a terrorist act' in the
context of sub-section ( 1) of Section 3 so as to include the act of raising
funds intended for the purpose of terrorism. Section 6 debars a person from
H holding or possessing any proceeds of terrorism and also makes it clear
PEOPLE'S UNION FOR CIVIL LIDERTIES v. U.O.I. (RAJENDRA BABU, J.) 8~B

that it is liable to be forfeited. Section 7 authorises an investigating officer, A
not below the rank of Superintendent of Police with the prior approval in
writing of the Director General ofPolice of the State, to seize such property
o_r attach the same and serve a copy of such an order on the person
concerned, if he has reason to believe that any property in relation to which
an inves~igation is being conducted represents proceeds of terrorism. B
Section 8 provides for forfeiture of the proceedc: 'Jf t~rrorism by a court
irrespective of the fact whether or not the person from whose possession
it is seized or attached is prosecuted in a Special Court for an offence under
POTA. Section 9 provides for issue of show cause notice before forfeitm:e
of proceeds of terrorism and an order for forfeiture cannot be made if such C
person establishes that he is a bona fide transferee of such proceeds for
value without knowing that they represent proceeds of terrorism. Under
Section 10, an appeal lies against an order made under Section 8 of POT A.
Sub-section (2) thereof states that where an order made under Section 8
is modified or annulled by the High Court, the person against whom an
order of forfeiture has been made under Section 8 is acquitted, such D
property shall be returned to him and in either case if it is not possible for
any reason to return the forfeited property, adequate compensation should
be paid to him, which will be equivalent to the price and interest from the
date of seizure of the property. Although the petitioners have challenged
the vario.us provisions of POTA relating to seizure, forfeiture and attach:- E
ment of the property, ultimately they did not pursue with that argument
and submitted that the various facets of challenge to the aforesaid
provisions can only be examined in the context of an actual fact situation
and for'.the present they wanted an interpretation of the expressions used
in Section 10(2) to apply even to a case of forfeiture of the proce.eds of F
terrorism against a person who is prosecuted under POT A. Even that
aspect can only be considered when an actual situation arises and not in
the abstract. · Therefore, we need not examine in detail these provisions
except to notice the background in which these provisions have been
enacted.
G
The order of forfeiture, by reason of Section 11, has been made
independent of imposition of other punishments to which a person may be
liable. Under Section 12, Designated Authority has been permitted to
investigate the claims made by a third party. These provisions have to be
seen as against Section 16, which provides for forfeiture of property of any H
884 SUPREME COURT REPORTS [2003-] SUPP. 6 S.C.R.
A person prosecuted and ultimately convicted. Here only on conviction
forfeiture of property can take place. In this connection, it is relevant to
take note of the provisions of Sections 15, 16 and 17. Section 15 renders
certain transfers to be null and void in cases where after the issue of an
order under Section 7 or notice under Section 9 any property is transferred
B by any mode whatsoever, such transfer shall for the purpose of the Act be
ignored and if such property is subsequently forfeited, the transfer of such
property shall be deemed to be null and void. Section 16 enables a special
eourt trying a person for an offence under the Act to pass an order that
all or any of the properties, movable or immovable or both belonging to
C him, during the period of such trial, be attached, if not already attached
under the Act. On conviction of such person, the special court may, by
an order, declare that any property, movable or immovable or both
belonging to the accused and specified in the order, shall stand forfeited
to the Central Government or the State Government, as the case may be.
Section 17 provides that in cases where any share of a company shall stand
.D forfeited, then, the company shall, on receipt of the order of the special
court, notwithstanding anything contained in the Companies Act, 1956 or
the articles of association of the company, forthwith register the Central
Government or the State Government, as the case may be, as the transferee
!.·
of such shares.
E
Funding and financing play a vital role in fostering and promoting
terrorism and it is only with such funds terrorists are able to recruit persons
for their activities and make payments to them and their family to obtain
arms and ammunition for furthering terrorist activities and to sustain the
campaign of terrorism. Therefore, seizure, forfeiture and attachment of
F properties are essential in order to coRtain terrorism and is not unrelated
to the same. Indeed, it is relevant to notice a resolution passed by the
United Nations Security Council [Resolution No. 1373 dated 28.9.2001]
which emphasized the need to curb terrorist activities by freezing and
forfeiture of funds and financial assets employed to further terrorist
G activities. It will also be interesting to notice the United Nations International
Convention for the Suppression of the Financing of Terrorism but at the
same time it is not necessary to go into those details in the present context.
The scheme of the provisions indicate that the principles of natural justice
are duly observed and they do not confer any arbitrary power and forfeiture .
H can only be made by an order of tht. court against which an appeal is also
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 885

provided to the High Court and the rights of bona fide transferee are not A
affected. Therefore, for the present, it is not necessary to pronounce the
constitutional validity of these provisions and we proceed on the basis that
they are valid.

Number of changes have been made in the provisions which existed B
m TADA and which exist in POTA. The relevant discussion in the
challenge to Section 8 ofTADA by majority in Kartar Singh is contained
in paras 149-157 and para 452 by Justice Sahai who has concurred with
the majority. The validity of Section 8 of TADA was upheld, only if it
was applied in the manner indicated in Para 156 of the judgment which
is as under :- c
"The discretionary power given to the Designated Court under
Section 8( I) and (2) is to be exercised under strict contingencies,
namely, that ( 1) there must be an order of forfeiture and that order
must be in writing; (2) the property either movable or immovable D
or both must belong to the accused convicted of any offence of ·
. TADA Act or rule thereunder; (3) the property should be
specified in the order; (4) even though attachment can be made
under Section 8(2) during the trial of the case, the forfeiture can
be ordered only in case of conviction and not otherwise."
E
However, ultimately, they do not pres~ these contentions to be
considered in these proceedings by stating that the various facets as set
above can really ~e seen in actual fact situation and for the present, they
call upon the Court to clarify that the expression "modified" or ~'annulled"
used in Section 10(2) shall apply even in a case of forfeiture of the proceeds F
of terrorism against a person who is not prosecuted under POTA.

It is not necessary to interpret these expressions and as and when an
appropriate case arises, appropriate interpretation can be given on the said
expressions. There is a scheme for forfeiture of the proceeds of terrorism
followed by a show cause notice to be issued and thereafter on a decision G
being made, an appeal lies thereto and the order of forfeiture, by itself, will
not prevent the court from inflicting any other punishment for which the
person may be liable under the Act The effect of modification and
annulment of an order made by court under Section 8 of the Act is set out
in sub·section (2) of Section 10. Therefore, as rightly submitted on behalf H
886 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.
A of the petitioners, these aspects can appropriately be dealt with depending
upon the fact situation arising in a given case. Therefore, it is not
necessary to express any opinion on these aspects of the matter.

Section 14:

B The constitutional validity of Section 14 is challenged by advancing
the argument that it gives unbridled powers to the investigating officer to
compel any person to furnish information if the investigating officer has
reason to believe that such information will be useful or relevant to the
purpose of the Act. It is pointed out that the provision is without any checks
C and is amenable to misuse by the investigating officers. It is also argued
that it does not exclude lawyers or journalists who are bound by their
professional ethics to keep the information rendered by their clients as
privileged communication. Therefore, the Petitioners submitted that Sec-
~
•
l.
A
tion 14 is violative of Articles 14, 19, 20(3) and 21 of the Constitution.
_,...
D Learned Attorney General maintained that the Act does not confer any
arbitrary or unguided powers; that such power is restricted to furnish
information in one's possession in relation to terrorist offence 'on points
or matters where the investigating office~ has reason to believe (not
suspect) that such information would be useful for or relevant to the
purposes of the Act'; that this provision is essential for the detection and
E prosecution of terrorist offences; and that the underlying rationale of the
obligation to furnish information is the salutary ·duty of every citizen.

Section 39 of the Code of Criminal Procedure, 1973 casts a duty
upon every person to furnish information regarding offences. Criminal
.F justice system cannot function without the cooperation of people. Rather
it is the duty of every body to assist the State in detection of the crime and
bringing criminal to justice. Withholding such information cannot be traced
to right to privacy, which itself is not an absolute right (See : Sharda v.
Dharmpal, [2003] 4 SCC 493). Right to privacy is subservient to that of
G security of State. Highlighting the necessity of people's assistance in
detection of crime this Court observed in State of Gujarat v. Anirudhsing,
(1997] 6 sec 514, that:

" .. .It is the salutary duty of every witness who has the knowledge
of the commission of the crime, to assist the State in giving
H evidence..."
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 887

Section 14 confers power to the investigating officer to ask for furnishing A
information that will be useful for or relevant to the purpose of the Act.
Further more such information could be asked only after obtaining a
written approval from an officer not below the rank of a Superintendent
of Police. Such power to the investigating officers is quiet necessary in the
detection of terrorist activities or terrorist.
B
. It is settled position of law that a journalist or lawyer does not have
a sacrosanct right to withhold information regarding crime under the guise
of professional ethics. A lawyer cannot claim a right over professional
communication beyond what is permitted under Section 126 of the
Evidence Act. There is also no law that permits a newspaper or journalist C
to .withhold relevant information from Courts though they have been given
such power by virtue of Section 15(2) of the Press Council Act, 1978 as
against Press Council. (See also : Pandit MS.M Sharma v. Shri Sri Krishan
Sinha, [1959] Supp. 1 SCR 806, and Sewakram Sobhani v. R.K Karanjia,
[1981] 3 sec 208, which quoted Arnold v. King Emperor, (1913-14) 41 D
lA 149, with approval and also B.S.C v. Granada Television, (1981) 1 All
E.R 417 (HL) and Branzburg v. Hayes, (1972) 408 US 665). Of course
the investigating officers will be circumspect and cautious in requiring·
them to disclose information. In the process of obtaining information, if
any right of citizen is violated, nothing prevents him from resorting to other E
legal remedies.

In as much as the main purpose of Section 14 of POTA is only to allow
the investigating officers to procure certain information that is necessary
to proceed with the further investigation we find there is no merit in the
argument of the petitioners and we uphold the validity of Section 14. F
Sections 18 & 19:

Sections 18 and 19 deals with the notification and de-notification of
terrorist organizations. Petitioners submitted that under Section 18( 1) of
POTA a schedule has been provided giving the names of terrorist G
organization without any legislative declaration; that there is nothing
provided in the Act for declaring organizations as terrorist organization;
that this provision is therefore, unconstitutional as it takes away the
fundamental rights of an organization under Articles 14, 19(l)(a) and
19(1)(c) of the Constitution; that under Section 18(2) of the Act, the Central H.
888 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A Government has been given unchecked and arbitrary powers to 'add' or
'remove' or 'amend' the Schedule pertaining to terrorist organizations; that
under the Unlawful Activities (Prevention) Act, 1967 an organization could
have been declared unlawful only after the Central Government has
sufficient material to form an opinion and such declaration has to be made
B by a Notification wherein grounds have to be specified for making such
declaration: that therefore such arbitrary power is violative of Articles 14,
19 and 21 of the Constitution. Pertaining to Section 19 the main allegation
is that it excessively delegates power to Central Government in the
appointment of members to the Review Committee and they also pointed
out that the inadequate representation of judicial members will affect the
C decision-making and consequently it may affect the fair judicial scrutiny;
that therefore Section 19 is not constitutionally ':'alid.

The Learned ·Attorney General contended that there .is no require-
ment of natural justice which mandates that before a statutory declaration
D is made in respect of an organization which is listed in the schedule a prior
opportunity of hearing or representation should be given to the affected
organization or its members: that the rule of 'audi alteram partem is not .
absolute and is subject to modification; that in light of post-decisional
hearing remedy provided under Section 19 and since the aggrieved pe:rsons
could approach the Review Committee there is nothing illegal in the
E Section; that furthermore the constitutional remedy under Articles 226 and
227 is also available; that therefore, having regard to the nature of the
legislation and the magnitude and prevalence of the evil of terrorism cannot
be said to impose unreasonable restrictions on the Fundamental Rights
under Article 19( I)(c) of the Constitution.
F
The right of citizens to form association or union that is guaranteed
by Article 19(1 )(c) of the Constitution is subject to the restriction provided
under Article 19(4) of the Constitution. Under Article 19(4) of the
Constitution the State can impose reasonable restrictions, inter alia, in the
G interest of sovereignty and integrity of the country. POTA is enacted to
protect sovereignty and integrity of India from the menace of terrorism.
Imposing restriction under Article 19(4) of the Constitution also includes
declaring an organization as a terrorist organization as provided under
POTA. Hence Section 18 is not unconstitutional.

H It is· contended that before making the notification whereby an
..
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 889

organization is declared as a terrorist organization there is no provision for A
pre-decisional hearing. But this cannot be considered as a violation of audi
alteram partem principle, which itself is not absolute. Because in the
peculiar background of terrorism it may be necessary for the Central
Government to declare an organization as terrorist organization even
without hearing that organization. At the same time under Section 19 of B
POT A the aggrieved persons can approach the Ce~tral Government itself
for reviewing its decision. If they are not satisfied by the decision of the
Central Government they can subsequently approach Review Committee
and they are also free to exercise their Constitutional remedies. The post·
decisional remedy provided under POT A satisfies the audi alteram partem
requirement in the matter of declaring an organization as a terrorist C
organization. (See: Mohinder Singh Gill v. Chief Election Commissioner,
[I 978] 1 SCC 405; Swadeshi Cotton Mills v. Union ofIndia, [198 I] 1 SCC
664; Olga Tellis v. Bombay Municipal Corporation, (1985] 3 SCC 545;
Union of India v. Tulsiram Patel, [l985] 3 SCC 398.) Therefore, the
absence of pre-decisional hearing cannot be treated as a ground for D
declaring Section 18 as invalid.

It is urged that Section 18 or 19 is invalid based on the inadequacy
of judicial members, in the Review Committee. As per Section 60,
Chairperson of the Review Committee will be a person who is or has been .
a Judge of High Court. The mere presence of non-judicial members by E
itself cannot be treated as a ground to invalidate Section 19. (See: Kartar
Singh' case (supra) at page 683, para 265 of SCC).

As regards the reasonableness of the restriction provided under
Section 18, it has to be noted that the factum of declaration of an
organization as a terrorist organization depends upon the 'belief of Central F
Government. The reasonableness of the Central Government's action has ·
to be justified based on material facts upon whtch it formed the opinion.
Moreover the Central Government is bound by the order of the Review
Committee. Considering the nature of legislation and magnitude or
presence of terrorism, it cannot be said that Section I 8 of POTA imposes G
unreasonable restrictions on fundamental right guaranteed under Article
19(1)(c) ofthe Constitut!on. We uphold the validity ofSections 18 and 19.

Sections 20, 21 & 22:

Petitioners assailed Sections 20, 21 and 22 mainly on the ground H
890 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A that no requirement of mens rea for offences is provided in these Sections
and the same is liable to misuse therefore it has to be declared unconsti-
tutional. The Learned Attorney General argued that Section 21 and its
various sub-sections are penal provisions and should be strictly construed
both in their interpretation and application; that on a true interpretation of
B the Act having regard to the well settled principles of interpretation Section
21 would not cover any expression or activity which does not have the
element or consequence offurthering or encouraging terrorist activity or
facilitating its .commission; ·that support per se or mere expression of
sympathy or arrangement of a meeting which is not intended or designed
and which does not have the effect to further the activities of any terrorist
C organization or the commission of terrorist acts are not within the mischief
of Section 21 and hence is valid.

Here the only point to be considered is whether these Sections-
exclude mens rea element for constituting offences or not. At the outset
D it has to be noted that Sections 20, 21 and 22 of POTA is similar to that
of Sections 11, 12 and I 5 of the Terrorism Act, 2000 of United Kingdom.
Such provisions are found to be quite necessary all over the world in anti-
terrorism efforts. Sections 20, 21 and 22 are penal in nature that demand
strict construction. These provisions are a departure from the ordinary law
since the said law was found to be inadequate and not sufficiently effective
E to deal with the threat of terrorism. Moreover, the crime referred to herein
under POT A is aggravated in nature. Hence special provisions are contem-
plated to combat the new threat of terrorism. Support either verbal or
monetary, with a view to nurture terrorism and terrorist activities is causing
new challenges. Therefore Parliament finds that such support to terrorist
F organizations or terrorist activities need to be made punishable. Viewing
the legislation in its totality it cannot be said that these provisions are
obnoxious.

But the Petitioners apprehension regarding the absence of mens rea
in these Sections and the possibility of consequent misuse needs our .
G elucidation. It is the cardinal principle of criminal jurisprudence that mens
rea element is necessary_ to constitute a crime. It is the general rule that
a penal statute presupposes mens rea element. It will be excluded only if
the legislature expressly postulate otherwise. It is in this context that this
Court said in Kartar Singh's case (supra) (at page 645 para 115 of SCC)
H that:
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.J. [RAJENDRA BABU, J.] 891
"'
"Unless a statue either expressly or by necessary implication rules A
out 'mens rea' in case of this kind, the element of mens rea must
be read into the provision of the statute."

Mens rea by necessary implication could be excluded from a statue
only where it is absolutely clear that the implementation of the object of B
the Statue would otherwise be defeated. Here we need to find out whether
there are sufficient grounds for inferring that Parliament intended to .
exclude the general rule regarding mens rea element. (See: State of
Maharashtra v. M H George, AIR ( 1965) SC 722; Nathulal v. State ofMP,
AIR (1966) SC 43; Inder Sain v. State of Punjab, (1973]2 SCC 372, for C
the general principles concerning the exclusion or inclusion of mens rea
·element vis-a-vis a given statute). The prominent method of understanding
the legislative intention, in a matter of this nature, is to see whether the
substantive provisions of the Act requires mens rea element as a constituent
ingredient for an offence. Offence under Section 3(1) of POTA will be
constituted only if it is done with an -'intent'. If Parliament stipulates that D
the 'terrorist act' itself has to be committed with the criminal intention, can
it be said that a person who 'profess' (as under Section 20) or 'invites

• support' or 'arranges, manages, or assist in arranging or managing a
meeting' or 'addresses a meeting' (as under Section 21) has committed
the offence if he does not have an intention or design to further the E
activities of any terrorist organization or the commission of terrorist acts?
We are clear that it is not. Therefore, it is obvious that the offence under
Section 20 or 21 or 22 needs positive inference that a person has acted with
intent of furthering or encouraging terrorist activity or facilitating its
<
A
commission. In other words, these Sections are limited only to those
activities that have the intent of encouraging or furthering or promoting F
or facilitating the commission of terrorist activities. If these Sections are
understood in this way, there cannot be any misuse. With this clarification
we uphold the constitutional validity of Sections 20, 21 and 22.

Section 27: G

Under Section 27, a police officer investigating a case can seek a
direction through the Court of Chief Judicial Magistrate or the Court of
a Chief Metropolitan Magistrate for obtaining samples of handwriting,
finger prints, foot-prints, photographs, blood, saliva, semen, hair, voice of H
892 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A any accused person reasonably suspected to be involved in the commission
of an offence under the Act. The Court can also .draw adverse inference
if an accused refuses to do so.

Petitioners argued that this Section falls foul of Articles 14, 20(3) and
B 21 of the Constitution for the reason: that no power has been left with the
Court to decide whether the request for samples from a suspect person
sought for by investigating office is reasonable or not; that no power has
been given to the Court to refuse the request of the investigating officer;
that it is not obligatory for the Court to record any reason while allowing
the request; and that the Section is a gross violation of Article 20(3)
c because it amounts to compel a person to give evidence against himself.
Relying mainly on State of Bombay v. Kathi Kalu Oghad, [1962] 3 SCR
I 0, learned Attorney General submitted that the argument pertaining to the
violation of Article 20(3) is not sustainable.

D We do not think, as feared by the Petitioner, that this Section fixes
a blanket responsibility upon the Court to grant permission immediately
upon the receipt of a request. Upon a close reading of the Section it will.
become clear that upon a 'request' by an investigating police officer it shall
only 'be lawful' for the Court to grant permission. Nowhere it is stated that
E the Court will have to positively grant permission upon a request. It is very
~--
well within the ambit of Court's discretion. If the request is based on wrong
premise, the Court is free to refuse the request. This discretionary power
granted to the Court presupposes that the Court will have to record its
reasoning for allowing or refusing a request. Pertaining to the argument
i:hat the Section per se violates Article 20(3), it has to be noted that a bench
F consisting of 11 judges in Kathi Kalu Oghad's case (supra) have looked
into a similar situation and it is ruled therein (at pages 30 ~32) that:

" ... The giving of finger impression or of specimen signature or of
handwriting, strictly speaking, is not 'to be a witness' ... when an
G accused person is called upon by the Court or any other authority
holding an investigation to give his finger impression or signature
or any specimen of his handwriting, he is not giving any testimony
to the nature of a personal testimony. The giving of a personal
testimony must depend upon his volition. He can make any kind
of statement or may refuse to make any statement. But his finger
H
PEOPLE'S UNION FOR CIVIL LIBERTIES v_ UOJ. [RAJENDRA BABU, J.] 893

impressions or his handwriting, in spite of efforts at concealing A
the true nature of it by dissimulation cannot change their intrinsic
character. Thus the giving of finger impression or of specimen
writing or of signatures by an accused person, though it may
amount to furnishing evidence in the larger sense, is not included
l-Vithin the expression 'to be a witness'...
B
...They are only materials for comparison in order to lend
assurance to the Court that its inference based on other pieces of
evidence is reliable... "
(Emphasis Supplied) C

This being the pos1t1on in law, the argument of the Petitioners
pertaining to the violation of Article 20(3) is not sustainable. It is
meaningful to look into Section 91 of Cr. PC that empowers a criminal
court as also a police officer to order any person to produce a document
or other thing in his possession for the purpose of any inquiry or trial. (See: D
Shyamlal Mohan!a! v. State of Gujarat, AIR (196 I) SC I 808, in this
regard). Moreover, this Section is only a step in aid for further investigation
and the samples so obtained can never be considered as conclusive proof
for conviction. Consequently we uphold the constitutional validity of
Section 27.
E
Section 30:

Section 30 contains provision for the protection of witness. It gives
powers to the Special Court to hold proceedings in camera and to taking F
measures for keeping the identity of witness secret.

Petitioners challenged the constitutional validity of this Section by
. leveling the argument; that the right to cross·examine is an important part
of fair trial and principles of natural justice which is guaranteed under
• Article 21 ; that even during emergency fundamental rights under Article G
20 and 21 cannot be taken away; that Section 30 is in violation of the
dictum in Kartar Singh's case (supra) because it does not contain the
provision of disclosure of names and identities of the witness before
commencement of trial; that fair trial includes the right for the defence to
ascertain the true identity of an accuser; that therefore the same has to be H
894 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

l\. declared unconstitutional. Learned Attorney General submitted that such
provisions or exercise of such powers are enacted to protect the life and
liberty of a person who is able and willing to give evidence in prosecution
of grave criminal offences; that the Section is not only in the interest of
witness whose life is in danger but also in the interest of community which
B lies in ensuring that heinous offences like terrorist acts are effectively
prosecuted and punished; that if the witnesses are not given immunity they
would not come forward to give evidence and there would be no effective
prosecution of terrorist offences and the entire object of the Act would be
frustrated; that cross-examination is not a universal · or indispensable
C requirement of natural justice and fair trial; that under compelling circum-
stances it can be dispensed with natural justice and fair trial can be evolved;
that the Section requires the Court to be satisfied that the life of witness
is in danger and the reasons for keeping the identity of the witness secret
are required to be recorded in writing; that, therefore, it is reasonable to
hold that the Section is necessary for the operation of the Act.
D
Section 30 of POTA is similar to Section t 6 of TADA, the consti-
tutional validity of which was upheld by this Court in Kartar Singh's case
(supra) (see pages 683 - 689 of SCC). In order to decide the constituti_onal
validity of Section 30 we don't think it is necessary to go into the larger
E debate, which learned Counsel for both. sides have argued, that whether
right to cross-examine is central to fair trial or not. Because right to cross-
examination per se is not taken away by Section 30. This Section only
confers discretion to the concerned Court to keep the identity of witness
secret if the life of such witness is in danger. We cannot shy away from
the unpleasant reality that often witnesses do not come forward to depose
F before Court even in serious cases. This precarious situation creates
challenges to our criminal justice administration in general and terrorism
related cases in particular. Witnesses do not volunteer to give evidence
mainly due to the fear of their life. Ultimately, the non-conviction affects
the larger interest of community, which lies in ensuring that the executors
G of heinous offences like terrorist acts are effectively prosecuted and
punished. Legislature drafted Section 30 by taking all these factors into ·
account. In our view a fair balance between the rights and interest of
witness, rights of accused and larger public interest has been maintained
under Section 30. It is also aimed to assist the State injustice administration
H and encourage others to do the same under the given circumstances.
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 895

Anonymity of witness is not general rule under Section 30. Identity will A
be withheld only in exceptional circumstance when the Special Court is
satisfied that the life of witness is in jeopardy. Earlier this Court has
endorsed similar procedure. (See: Gurbachan Singh v. State of Bombay,
[1952] SCR 737; · Hira Nath Mishra v. Principal, Rajendra Medical
College, [1973] 1 SCC 805; A. K Roy v. Union of India, [1982] l SCC B
. 27 J. While deciding the validity of Section 16ofTADA, this Court quoted
all these cases with approval. (See also the subsequent decision in Jamaat-
e-Islami Hind v. Union of India, [1995] l SCC 428.

The need for the existence and exercise of power to grant protection
to a witness and preserve his or her anonymity in a criminal trial has been C
universally recognised. Provisions of such nature have been enacted to
protect the life and lil1erty of the person who is able and willing to give
evidence in support of the prosecution in grave criminal cases. A provision
of this nature should not be looked at merely from the angle of protection
of the witness whose life may be in danger if his or her identity is disclosed D
but also in the interest of the community to ensure that heinous offences
like terrorist acts are effectively prosecuted and punished. It is a notorious
fact that a witness who gives evidence which is unfavourable to an accused
in a trial for terrorist offence would expose himself to severe reprisals
which could result in death or severe bodily injury or that of his family E
members. If such witnesses are not given appropriate prott!ction, they
would not come forward to give evidence and there would be no effective
prosecution often.:>rist offences and the entire object of the enactment may
possibly be frustrated. Under compelling circumstances this can be
dispensed with by evolving such other mechanism, which complies with F
natural justice and thus ensures a fair trial.

The observations made in this regard by this Court in the decisions
to which we have adverted to earlier have been noticed by this Court in
Kartar Singh 's case (supra).·and has upheld the validity of a similar
provision subject, of course, to certain conditions which form part of G
Section 30 now. The present position is that Section 30(2) requires the
court to be satisfied that the life of a witness is in danger to invoke a
provision of this nature. Furthermore, reasons for keeping the identity and
address of a witness secret are required to be recorded in writing and such
reasons shou!d be weighty. In order to safeguard the right of an accused H
896 SUPREME COURT REPORTS [2003) SUPP. 6 S.C.R.

A to a fair trial and basic requirements of the due process a mechanism can
be evolved whereby the Special COUI1 is obJi_gated to satisfy itseJfabout the
truthfulness and reliability of the statement or disposition of the witness
whose identity is sought to be protected.

B Our attention has been drawn to legal position in USA, Canada,
New Zealand, Australia and UK as well as the view expressed in the
European Cout1 of Human Rights in various decisions. · However, it is not
necessary to refer any of them because the legal position has been fully
set out and explained in Karta1· Singh ?.nd provision of POTA in Section
30 clause (2) has been modelled on the guidelines set out therein. We may
C further notice that the effort of the court has been to balance the right of
the witness as to his life and liberty and the right of community in effective
prosecution of heinous criminal offences with the right of the accused to
a fair trial. This is done by devising a mechanism or arrangement to
preserve anonymity of the witness when there is an identifiable threat to
D the life or physical safety of the witness or others whereby the court
satisfies itself about the weight to be attached to the evidence of the
witness. In some jurisdictions an independent counsel has been appointed
for the purpose to act as amicus curie and after going through the
deposition evidence assist the court in forming an opinion about the weight
E of the evidence in a given case or in appropriate cases to be cross-examined
on the basis of the questions formulated and given to him by either of the
parties. Useful reference may be made in this context to the recommen-
dations of the Law Commission of New Zealand.

The necessity to protect the identity of the witness is not a factor
F that can be determined by a general principle. It is dependent on several
factors and circumstances arising in a case and, therefore, the Act has left
the determination of such question to an appropriate case.

Keeping secret the identity of witness, though in the huger interest
G of public, is a deviation from the usual mode of trial. In extraordinary
circumstances we are bound to take this path, which is less travelled. Here
the Special Comts will have to exercise utmost care and caution to ensure
fair trial. The reason for keeping identity of the witness has to be well
substantiated. It is not feasible for us to suggest the procedure that has to
H be adopted by the Special Courts for keeping the identity of witness secret.
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.) 897

It shall be appropriate for the concerned Courts to take into account all the A
factual circumstances of individual cases and to forge appropriate methods
to ensure the safety of individual witness. With these observations we
uphold the validity of Section 30.

Sectioit 32:
B
This Section made it lawful of certain confessions made to police
officers to be taken into consideration.

Concerning the validity and procedural difficulties that could arise
during the process of recording confessions the Petitioners submitted that C
there is no need to empower the police to record confession since the
accused has to be produced before the Magistrate within forty-eight hours,
in that case magistrate himself could record the confession; that there is
no justification for extended time limit of forty eight hours for producing
the person before Magistrate; that it is not clear in the Section whether the
confession recorded by the police officer will have the validity after D
Magistrate has recorded the fact of torture and has sent the accused for
medical examination; that it is not clear as to whether both the confession
before the police officer as well as confession statement before the
Magistrate shall be used in evidence; that the Magistrate·s cannot be used
for .mechanically putting seal of approval on the confessional statements E
by the police; that, therefore, the Section has to be nullified. Validity of
this Section was defended by the learned Attorney General by forwarding
the arguments that the provisions relating to the admissibility of confes-
sional statements, which is similar to that of Section 32 in POTA was
·upheld in Kartar Singh's case (supra); that the provisions of POTA are an F
improvement of TADA by virtue of enactment of Section 32(3) to 32(5);
that the general principles of law regarding the admissibility of a confes-
sional statement is applicable under POTA; that the provision which entails
the Magistrate to test and examine the voluntariness of a confession and
complaint of torture is an additional safeguard and does not in any manner
inject any constitutional infirmity; that there cannot be perennial distrust G
of the police; that Parliament has taken into acco·,nt all the relevant factors
in its totality and same is not unjust or unreasonable.

At the outset it has to be noted that the Section 15ofTADA that was
similar to this Section was upheld in Kartar Singh's case (supra) (pages fl
898 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A 664-683 of SCC). While enacting this Section Parliament has taken into
account of all the guidelines, which were suggested by this Court in Kartar
Singh's case (supra). Main allegation of the Petitioners is that there is no
need to empower the police to record confession since the accused has to
be produced before the Magistrate within forty-eight hours in which case
B the Magistrate himself could record the statement or confession. In the
context of terrorism the need for making sue~ a provision so as to enable
Police officers to record the confession was explained and upheld by this
Court in Kartar Singh's case (supra) (page 680 para 253 ofSCC). We need
not go into that question at this stage. If the recording of confession by
C police is found to be necessary by Parliament and if it is in tune with the
scheme of law, then an additional safeguard under Section 32 (4) and (5)
is a fortiori legal. In our considered opinion the provision that requires
producing such a person before the Magistrate is an additional safeguard.
It gives that person an opportunity to· rethink over his confession. Moreo-
ver, the Magistrate's responsibility to record the statement and the enquiry
D about the torture and provision for subsequent medical treatment makes the
provision safer. It will deter the police officers from obtaining a confession
from an accused by subjecting him to torture. It is also worthwhile to note
that an officer who is below the rank ·of a Superintendent of Police cannot
record the confession statement. It is a settled position that if a confession
E was forcibly extracted, it is a nullity in law. Non-inclusion of this obvious
and settled principle does not make the Section invalid. (See : Kartar
Singh's case (supra) page 678, para 248 - 249 of SCC). Ultimately, it is
for the concerned Court to decide the admissibility of the confession
statement. (See : Kartar Singh's case (supra) page 683, para 264 of SCC).
F Judicial wisdom will surely prevail over irregularity, ~f ~my in the process
of recording confessional statement. Therefore we are satisfied that the
safeguards provided by the Act and under the law is adequate in the given
circumstances and we don't think it is necessary to look more into this
matter. Consequently we uphold the validity of Section 32.

G Section 49:
Section 49 mainly deals with procedure for obtaining bail for an
accused under POTA.

Petitioners' main grievance about this Section is that under Section
H 49(7) a Court could grant bail only if it is satisfied that there are grounds
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.l. [RAJENDRA BABU, J.] 899

f6r believing that an accused 'is not guilty of committing such offence', A
since such a satisfaction could be attained only after recording of evidence
there is every chance that the accused will be granted bail only after
min}mum one year of detention; that the proviso to Section 49(7), which
is not there under TADA, makes it clear that for one year from the date
of detention no bail could be granted; that this Section has not incorporated B
the principles laid down by this Court in Sanjay Dutt',. c:>se (supra) (at page
439 para 43-48 of SCC) wherein it is held that if a chaltan is not filed after
expiry of 180 days or extended period, the indefeasible right of an accused
to be released on bail is ensured, provided that the same is exercised before
filing of challan; that the prosecution is curtailing even this right under C
POTA. Therefore, the petitioners want us to make the Section less stringent
according to the settled principles of law. Learned Attorney General
submitted that the provisions regarding bail are not onerous nor do they
impose any excessive burden or restriction on the right of the accused; that
similar provisions are found in Section 37 of the NDPS Act 1985 and in
Section I 0 of the UP Dacoity Affected Areas Act; that on a true D ·
construction of Section 49(6) and (7) it is not correct to conclude that the
accused carinot apply for bail at all for a period of one year; that the right
of the accused to apply for bail during the period of one· year is not
\ completely taken away; that the stringent provision of bail under Section
49(7) would apply only for the first one year of detention and after its E
expiry the normal bail provisions under Cr.P.C. would apply; that there is
no dispute that the principle laid down by this Court in D.K Basu v. State
of West Bengal, [ 1997] l SCC 416, will apply; that in the .light of effective
safeguards provided in the Act and effective remedies against adverse
orders there is no frailty in Section 49.
F
Section 49 of the Act is similar to that of Section 20 of TADA,
constitutional validity of which has been upheld by this Court in Kartar
Singh's case (supra) (pages 691-710 of SCC). Challenge before us is
limited to the interpretation of Section 49(6) and (7). By virtue of Section
49(8), the powers under Section 49(6) and (7) pertaining to bail is in G
addition to and not in derogation to the powers under the Code or any other
law for the time being in force on granting of bail. The offences under
POTA are more complex than that of ordinary offences. Usually the overt
and covert acts of terrorism are executed in a chillingly efficient manner
as a result of high conspiracy, which is invariably linked with anti-national H
900 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A elements both inside and outside the country. So an expanded period of
detention is required to complete the investigation. Such a comparatively
long period for solving the case is quite justifiable. Therefore, the
investigating agencies may need the custody of accused for a longer period.
Consequently, Section 49(6) and (7) are not unreasonable. In spite ofthis,
B bail could be obtained for an accused booked under POTA if the 'court
is satisfied that there are grounds for believing that he is not guilty of
committing such offence' after hearing the Public Prosecutor. It is the
general law that before granting the bail the conduct of accused seeking
bai I has to be taken into account and evaluated in the background of nature
of crime said to have committed by him. That evaluation shall be based
C on the possibility of his likelihood of either tampering with the evidence
or committing the offence again or creating threat to the society. Since the
satisfaction of the Court under Section 49(7) has to be arrived based on
the particular facts and after considering the abovementioned aspects, we
don not think the unreasonableness attributed to Section 49(7) is fair. (See:
D Kartar Singh's case (supra} page 707~ para 349-352 of SCC).

Proviso to Section 49(7) reads as under:

"Provided that after the expiry of a period of one year from the
date of detention of the accused for an offence under this Act, the
E
provisions of sub-section (6) of this Section shall apply."

It is contended that this proviso to Section 49(7) of POTA is read
by some of the courts as a restri,ction on exercise of power for grant of
bail under Section 49(6) of POTA and such power could be exercised only
F after the expiry of the period of one year from the date of detention of the
accused for offences under POTA. If the intention of the legislature is that
an application for bail cannot be made prior to expiry of one year after
detention for offences under POTA, it would have been clearly spelt out
in that tpanner in Section 49(6) itself. Sections 49(6) and 49(7) of POTA
G have to be read together and the combined reading of these two sections
is to the effect that Public Prosecutor has to be given an opportunity of
being heard before releasing the accused on bail and if he opposes the
application, the court wilf have to be satisfied that there are grounds for
believing that he is not guilty of having committed such offence. It is by
H way of exception to Section 49(7) that proviso is added which means that
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU. J.] 90 l
after the expiry of one year after the detention of the accused for offences A
under POTA, the accused can be released on bail after hearing the Public
Prosecutor under ordinary law without applying the rigour of Section 49(7)
of POTA. It also means that the accused can approach the court for bail
subject to conditions of Section 49(7) ofPOTA within a period of one year .
after the detention for offences under POTA. B
Proviso to Section 49(7) provides that the condition enumerated in
sub-section (6) will apply after the expiry of one-year. There appears to
be an accidental omission or mistake of not including the word ~not' after
the word 'shall' and before the word 'apply~. Unless such a word is
included, the provision will lead to an absurdity or become meaningless. C
Even otherwise, read appropriately, the meaning of the proviso to Section
49(7) is that ~n accused can resort to ordinary bail procedure under the
Code after that period of one year. At the same time, proviso does not
prevent such an accused to approach the Court for bail in accordance with
the provisions of POTA under Section 49(6) and (7) thereof. This D
interpretation is not disputed by the learned Attorney General. Taking into
account of the complexities of the terrorism related offences and intention
of Parliament in enacting a special law for its prevention, we do not think
that the additional conditions regarding bail under POTA are unreasonable.
We uphold the validity of Section 49. E
There is no challenge to any other provisions of the Act.

In the result, these petitions stand dismissed subject, however, to the
clarifications that we have set out above on the interpretation of the
provtsions of the enactment while dealing with the constitutionality F
thereof.

WP. (Crl.) 129/2002 :

A case was registered against the petitioner under Section 13(1)(a)
of the Unlawful Activities Prevention Act, 1967, Section 21(2) and (3) of G
the Prevention of Terrorism Act, 2002 (POTA) read with Sections l 09 and
1208 ofthe Indian Penal Code on 4. 7.2002. When the petitioner returned
to Chennai from Chicago on 11.7.2002, he was arrested at the Chennai
A\rport and was produced before a Judicial Magistrate, Madurai on
12.7.2002. He had been remanded. He has been detained in jail since then H
902 SUPREME COURT REPORTS "[2003] SUPP. 6 S.C.R.
A pursuant to the remand order of the Judicial Magistrate, Madurai. A ·
notification was issued constituting Special Court, Chennai at Poonamallee
for trial of the offences under POTA. The petitioner was produced before
the Special Court on 7.8.2002 and he h~s been continued to be remanded
to jail from time to time. On 9.10.2002, his remand has been extended
B beyond the period of 90 days.

In this case, though several questions have been raised, two questions
have been specifically urged, namely :

(1) Whether Section 21 (1) and (3) of the Prevention of Terror-
c ism Act, 2002 are offending ArticJe l9(l)(a) and 19(l)(c) of
the Constitution of India and therefore unconstitutional?
I

(2) Does the mere expression of sympathy f4r Tamils in Sri
Lanka for whom the Liberation of Tigers of Tamil Ee1am has
become the sole-representative recognised by the Interna-
D tional Community amount to support to a terrorist organi-
sation under the Prevention of Terrorism Act, 2002 thereby
empower the State to curtail the personal liberty?

We have upheld the constitutional validity of Section 21 of POTA
E in the decision pronounced by us in Writ Petition (C) No. 389 of 2002
above and, therefore, the first question does not survive for consideration.

So far as the second question is concerned, we have heard Shri F.S.
Nariman and Shri Anil B. Divan, learned senior counsel appearing for the
F petitioner, apart from Shri Rajinder Sachhar and Shri B.S. Malik, the
learned senior counsel appearing for the petitioner in connected matters,
on the interpretation of Section 21 of POTA. Shri P .P. Rao, appearing for
the State of Tamil Nadu, has made elaborate submissions and adverted
to various affidavits filed by the Union of India. However, it is not
necessary for us to examine any of these aspects in these proceedings. We
G have -carefully considered the arguments advanced by the learned counsel
and that of the learned Attorney General for India on this aspect of the
matter. We_ think, the proper course that has to be adopted in a case of
this nature where a criminal case has already been lodged and the same
is pending consideration before the Special Court, it would not be
H appropriate for us to express our views on the question of facts arising in
PEOPLE'S UNION FOR CIVIL LIBERTIES v. U.O.I. [RAJENDRA BABU, J.] 903

this case. We are sure that the Special Court will decide the matter in the A
light of decision pronounced by us in Writ Petition (C) No. 389 of 2002
above.

The writ petition is disposed of with aforesaid observations.

WP.(Crl.) 2812003 : B

· The petitioner in this writ petition seeks for declarati~n that Section
21 (2) and the proviso to Section 49(6) and 49(7) of POTA are illegal and
ultra vires the Constitution of India.

Inasmuch as we have upheld the constitutional validity of Section
c
21(2) and proviso to Section 49(6) and 49(7) of POTA in the judgment
pronounced by· us in Writ Petition (C) No. 389 of 2002 above, this writ
petition is dismissed.

WP. (Crl.) 4812003 : D

In this. writ petition, apart from challenging the constitutional
validity of Sections 1(4), 3 to 9, 14, 18 to 24, 26, 27, 29 to 33, 36 to 53
which has been upheld by us in the judgment pronounced by us in Writ
Petition (C) No. 389 of 2002 above, the constitutional validity of Entry 2 I: E
of the Schedule to POTA is also challenged.

On that aspect no specific arguments have been addressed by any
of the parties. This matter will have to be heard separately and hence, this
writ petition is de-linked from other matters.
F
S.K.S. Petitions dismissed
Except W.P. (Crl.) 28/2003,
to be heard separatly.

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