STATE OF RAJASTHAN AND OTHERSversusMUKESH SHARMA

194                       [2019]
               SUPREME COURT     6 S.C.R. 194
                              REPORTS                        [2019] 6 S.C.R.


A                  STATE OF RAJASTHAN AND OTHERS
                                        v.
                             MUKESH SHARMA
                      (Civil Appeal No. 3086 of 2016 etc.)
B                               APRIL 22, 2019
                [ARUN MISHRA AND NAVIN SINHA, JJ.]
            Sentence/Sentencing:
             Remission of sentence – Writ petition challenging
C     constitutional validity of r. 8(2)(i) of Rajasthan Prisons (Shortening
      of Sentences) Rules, 2006 (framed u/s. 59(1) (2) and (5) Prisons
      Act, 1894) – By appellants/convicts undergoing life sentence – High
      Court allowed the petition holding that the Rules not having been
      placed before the State legislature as required by s. 59(2) of Prisons
      Act, did not acquire statutory force and that the Rules were contrary
D
      to s. 433A of Cr.P.C. – On appeal, held: It is not mandatory to place
      the Rules before the legislature prior to its promulgation – Under
      Penal Code imprisonment for life means convict’s natural life and
      under Rajasthan Prison Rules, 1951 it means imprisonment for 20
      years – Section 433A Cr.P.C. fixes the minimum period i.e. 14 years
E     of imprisonment before which remission cannot be considered –
      Remission is not a matter of right – As a matter of policy nothing
      prevents the State from imposing restrictions in the manner done by
      r. 8(2)(i) to consider claims of remission – Rajasthan Prisons
      (Shortening of Sentence) Rules, 2006 – r. 8(2)(i) and 2(e) – Prisons
      Act, 1894 – ss. 59(1) and (2) – Rajasthan Prison Rules, 1951 – r.
F
      1(e) – Code of Criminal Procedure, 1973 – ss. 432, 433(b) and
      433A – Penal Code, 1860.
            Allowing the appeals, the Court
            HELD : 1. The plain language of Section 59(2) of Prisons
G     Act, 1894 makes it manifest that there is no requirement for laying
      of the Rules before the legislature prior to promulgation of the
      Act. No time limit for laying has been provided. The use of words
      “as soon as” coupled with the absence of any consequence for
      not laying makes the provision directory and not mandatory.
      [Para 7][199-D-E]
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                                       194
STATE OF RAJASTHAN AND OTHERS v. MUKESH SHARMA                       195


     M/s. Atlas Cycle Industries Ltd. & ors. v. the State of         A
     Haryana (1979) 2 SCC 196 : [1979] 1 SCR 1070
     – relied on.
       2. Rajasthan Prison Rules, 1951, under the heading
Remission System, in Rule 1(e) provides that the sentence for
imprisonment for life or transportation of life shall be deemed to   B
mean imprisonment for 20 years. Sentence for imprisonment for
life or transportation of life under the Penal Code shall mean the
convict’s natural life. Rule 2(e) of the Rajasthan Prisons
(Shortcoming of Sentences) Rules 2006, defines shortening of
sentence to mean the reduction of that period of sentence of a
prisoner which he has to serve in the prison upon a judicially       C
pronounced sentence as a matter of grace on the part of the State
and as a recognition of his good behaviour in the prison.
[Paras 8, 9 and 10][201-D-F]
     Gopal Vinayak Godse v. State of Maharashtra (1961)
     3 SCR 440 – relied on.                                          D

       3. Section 432 Cr.P.C. provides for the power to suspend
or remit sentences and also to refuse the same. Section 433(b)
Cr.P.C. provides for commuting a sentence of imprisonment for
life to 14 years. Section 433-A Cr.P.C. provides that remission or
commutation shall not enable release of the convict from prison      E
unless the person had served at least 14 years of imprisonment.
It, therefore, fixes a minimum period before which remission
could not be considered. Any rule that may provide to consider
remission before 14 years would obviously be bad in view of the
statutory provision contained in the Code. [Para 11][200-G-H;        F
201-A-B]
     Union of India vs. V. Sriharan (2016) 7 SCC 1 : [2015]
     14 SCR 613 – relied on.
      4. Manifestly remission not being a matter of right, much
less upon completion of 14 years of custody, but subject to rules    G
framed in that regard, including complete denial of the same in
specified circumstances, as a matter of State policy, nothing
prevents the State from imposing restrictions in the manner done
by Rule 8(2)(i) of Rajasthan Prisons (Shortening of Sentence)
Rules, 2006 to consider claims for remission.[Para 12][201-F-G]
                                                                     H
196             SUPREME COURT REPORTS                            [2019] 6 S.C.R.


A           Maru Ram v. Union of India 1981 (1) SCC 107
            – relied on.
            Mohd. Munna v. Union of India & ors. (2005) 7 SCC
            417 : [2005] 3 Suppl. SCR 233 – referred to.
                               Case Law Reference
B
      (1981) 1 SCC 107                   relied on                  Para 2
      [1979] 1 SCR 1070                  relied on                  Para 4
      [2005] 3 Suppl. SCR 233            referred to                Para 5
      [1961] 3 SCR 440                   relied on                  Para 10
C
      [2015] 14 SCR 613                  relied on                  Para 11
            CIVIL APPELLATE JURISDICTION : Civil Appeal No. 3086
      of 2016.
             From the Judgment and Order dated 23.01.2008 of the High Court
D     of Judicature for Rajasthan, Jaipur Bench at Jaipur in D.B. Civil Writ
      Petition No.2421 of 2007.
            With
            Civil Appeal Nos. 3092, 3087, 3088, 3089, 3091, 3090, 3093, 3094
E     and 3095 of 2016.
             Dr. Manish Singhvi, Sr. Adv., Sandeep Jha, Milind Kumar, Advs.
      for the Appellantss.
             Soutik Banerjee, Gaurav Agrawal, Mrs. K. Sarada Devi, Advs.
      for the Respondent.
F
            The Judgment of the Court was delivered by
             NAVIN SINHA, J.
            1. A common question of law arises for consideration in this batch
      of appeals. The individual facts are therefore not relevant for adjudication.
G     Suffice it to observe that each of the respondents in the respective appeals
      was convicted under Section 302 and other provisions of the Indian Penal
      Code in different Sessions trials arising from separate unconnected
      incidents and sentenced to imprisonment for life. They filed individual
      writ petitions contending that they had served more than 14 years in
      custody but their cases were not placed by the Jail Authorities before
H
STATE OF RAJASTHAN AND OTHERS v. MUKESH SHARMA                                  197
                [NAVIN SINHA, J.]

the State Advisory Boards for shortening of their sentences and premature       A
release. The constitutional validity of Rule 8(2)(i) of the Rajasthan Prisons
(Shortening of Sentences) Rules, 2006, (hereinafter referred to as “the
Rules, 2006”) was challenged, putting a fetter on consideration of their
cases till they earned a minimum of four years of remission after
completing 14 years of actual imprisonment excluding remission, as being
                                                                                B
contrary to Section 433-A Cr.P.C. No other issue was urged.
       2. The Rules, 2006 were framed by the State Government in
exercise of powers under Clause (2) & (5) of Section 59 (1) of the
Prisons Act, 1894 (hereinafter referred to as ‘the Act’). The High Court
held that the Rules not having been placed before the Legislature of the
State as required by Section 59(2) of the Act did not acquire statutory         C
force. Furthermore, the Rules could not have been framed contrary to
Section 433-A of the Code of Criminal Procedure, 1973, relying on the
Constitution Bench decision in Maru Ram vs. Union of India, 1981 (1)
SCC 107.
       3. In view of the question of law involved, it will be proper to set     D
out the statutory provisions arising for consideration.
      “Section 59. Power to make rules.-
      (1) The State Government may by notification in the Official
      Gazette make rules consistent with this Act-                              E
                                   xxx
          (2) determining the classification of prison-offences into
          serious and minor offences;
                                   xxx
                                                                                F
          (5) for the award of marks and the shortening of sentences;
                                    xxx
      (2) Every Rule made under this section shall be laid, as soon as
      may be after it is made, before the State Legislature.”
                                                                                G
      “Rule 8(2) Notwithstanding anything contained in
      sub-rule (i)
      (i) a prisoner who has been sentenced to imprisonment for life for
      any offence for which death penalty is one of the punishment
                                                                                H
198             SUPREME COURT REPORTS                            [2019] 6 S.C.R.


A           provided by law or who has been sentenced to death but this
            sentence has been commuted under Section 433 of Code of
            Criminal Procedure, 1973, into one of imprisonment for life, shall
            be considered only after he has served 14 years of actual
            imprisonment excluding remission but including the period of
            detention spent during enquiry, investigation or trial, on the condition
B
            that such a prisoner shall also have to earn minimum of 4 years of
            remission in order to be eligible for consideration.”
            “Section 433-A. Restriction on powers of remission and
            commutation in certain cases - Notwithstanding anything
            contained in section 432, where a sentence of imprisonment for
C           life is imposed on conviction of a person for an offence for which
            death is one of the punishments provided by laws, or where a
            sentence of death imposed on a person has been commuted under
            section 433 into one of imprisonment for life, such person shall
            not be released from prison unless he had served at least fourteen
D           years of imprisonment.”
             4. Learned Senior Counsel Dr. Manish Singhvi, for the appellants,
      submitted that the High Court erred in striking down the latter part of
      Rule 8(2)(i) requiring a minimum of four years remission after completion
      of 14 years in custody on both counts. Adverting to the striking down of
E     the Rule for not laying it before the Legislature, it was submitted that the
      Rules did not contemplate laying before the Legislature prior to
      promulgation, as a pre-condition. The use of the words “as soon as”
      does not give any definite time period before which it is to be laid before
      the State Legislature. No consequences were provided for not laying
      the Rules before the Legislature, and in absence of which it could not
F     come into force. The provision was therefore directory and not mandatory.
      Any omission, therefore, in laying the Rules before the Legislature does
      not render the Rules invalid. In any event, the Rules had subsequently
      been laid before the Legislature. Dr. Singhvi relied on M/s. Atlas Cycle
      Industries Ltd. & ors. vs. the State of Haryana, (1979) 2 SCC 196.
G            5. It was next submitted that remission after completion of 14
      years in custody was not a matter of right, but was dependent on a host
      of considerations. Maru Ram (supra) has not been correctly appreciated.
      Life imprisonment normally means an imprisonment for life. Section 433-
      A, Cr.P.C. stipulates that where sentence for imprisonment for life is
H     imposed for an offence for which death is one of the punishments such
STATE OF RAJASTHAN AND OTHERS v. MUKESH SHARMA                                 199
                [NAVIN SINHA, J.]

person shall not be released from prison unless he had served at least         A
fourteen years of imprisonment. Thus, the State in its wisdom could
easily provide that life imprisonment shall not be subject to any remission
or provide limitations on the same. Remission, in the present case, being
a matter of State policy as incorporated in statutory rules falling within
the domain of the State, could not be claimed as a matter of fundamental
                                                                               B
right. Reliance was placed on Mohd. Munna vs. Union of India &
ors., (2005) 7 SCC 417. The State Government could, therefore, always
insist on a minimum number of years before premature release of a
convict serving life sentence.
        6. Learned counsel for the respondents submitted that the remission
policy of the State Government was ultra vires Article 14 of the               C
Constitution of India as it would take approximately 18 years of
imprisonment for a model prisoner to earn 4 years of remission, making
it virtually impossible to be considered for shortening of sentence in terms
of Section 433-A. Rule 8(2)(i) was clearly contrary to Section 433-A
Cr.P.C. in view of Maru Ram (supra) to the extent that it restricts            D
consideration for remission after 14 years.
       7. We have considered the respective submissions. The plain
language of Section 59(2) makes it manifest that there is no requirement
for laying of the Rules before the Legislature prior to promulgation. No
time limit for laying has been provided. As rightly urged, the use of          E
words “as soon as” coupled with the absence of any consequence for
not laying makes the provision directory and not mandatory. In Atlas
Cycle (supra) it was observed:
      “22. …In the instant case, it would be noticed that sub- section
      (6) of Section 3 of the Act merely provides that every order made        F
      under Section 3 by the Central Government or by any officer or
      authority of the Central Government shall be laid before both
      Houses of Parliament, as soon as may be, after it is made. It
      does not provide that it shall be subject to the negative or the
      affirmative resolution by either House of Parliament. It also does
      not provide that it shall be open to the Parliament to approve or        G
      disapprove the order made under Section 3 of the Act. It does
      not even say that it shall be subject to any modification which
      either House of Parliament may in its wisdom think it necessary
      to provide. It does not even specify the period for which the
      order is to be laid before both Houses of Parliament nor does it         H
200             SUPREME COURT REPORTS                           [2019] 6 S.C.R.


A           provide any penalty for non-observance of or non-compliance with
            the direction as to the laying of the order before both Houses of
            Parliament. It would also be noticed that the requirement as to
            the laying of the order before both Houses of Parliament is not a
            condition precedent but subsequent to the making of the order. In
            other words, there is no prohibition to the making of the orders
B
            without the approval of both Houses of Parliament. In these
            circumstances, we are clearly of the view that the requirement as
            to laying contained in sub-section (6) of Section 3 of the Act falls
            within the first category i.e. “simple laying” and is directory not
            mandatory.”
C           In conclusion, it was held that the Legislature never intended that
      non-compliance with the requirement of laying as envisaged by sub-
      section (6) of Section 3 of the Act should render the order void.
            8. Part-3 of the Rajasthan Prison Rules, 1951, under the heading
      Remission System, in Rule 1(e) provides that the sentence for
D     imprisonment for life or transportation of life shall be deemed to mean
      imprisonment for 20 years.
             9. Rule 2(e) of the Rules 2006, defines shortening of sentence to
      mean the reduction of that period of sentence of a prisoner which he has
      to serve in the prison upon a judicially pronounced sentence as a matter
E     of grace on the part of the State and as a recognition of his good behaviour
      in the prison.
             10. That sentence for imprisonment for life or transportation of
      life under the Penal Code shall mean the convict’s natural life needs no
      further elaboration in view of Gopal Vinayak Godse vs. State of
F     Maharashtra (1961) 3 SCR 440 followed in para 72(4) of Maru Ram
      (supra) as follows:
            “5….. A sentence of transportation for life or imprisonment for
            life must prima facie be treated as transportation or imprisonment
            for the whole of the remaining period of the convicted person’s
G           natural life.”
            11. Section 432 Cr.P.C. provides for the power to suspend or
      remit sentences and also to refuse the same. Section 433 (b) Cr.P.C.
      provides for commuting a sentence of imprisonment for life to 14 years.
      Section 433-A Cr.P.C. provides that remission or commutation shall not
H
STATE OF RAJASTHAN AND OTHERS v. MUKESH SHARMA                                 201
                [NAVIN SINHA, J.]

enable release of the convict from prison unless the person had served         A
at least 14 years of imprisonment. It, therefore, fixes a minimum period
before which remission could not be considered. Any rule that may
provide to consider remission before 14 years would obviously be bad in
view of the statutory provision contained in the Code. In Union of
India vs. V. Sriharan, (2016) 7 SCC 1, it was observed:
                                                                               B
      “79. In this context, the submission of the learned Solicitor General
      on the interpretation of Section 433-A CrPC assumes significance.
      His contention was that under Section 433-A CrPC what is
      prescribed is only the minimum and, therefore, there is no restriction
      to fix it at any period beyond 14 years and up to the end of one’s
      lifespan. We find substance in the said submission. When we refer        C
      to Section 433-A, we find that the expression used in the said
      section for the purpose of grant of remission relating to a person
      convicted and directed to undergo life imprisonment, it stipulates
      that “such person shall not be released from prison unless he had
      served at least fourteen years of imprisonment” (emphasis                D
      supplied). Therefore, when the minimum imprisonment is
      prescribed under the statute, there will be every justification for
      the court which considers the nature of offence for which
      conviction is imposed on the offender for which offence the extent
      of punishment either death or life imprisonment is provided for, it
      should be held that there will be every justification and authority      E
      for the court to ensure in the interest of the public at large and the
      society, that such person should undergo imprisonment for a
      specified period even beyond 14 years without any scope for
      remission. In fact, going by the caption of the said Section 433-A,
      it imposes a restriction on powers of remission or commutation in        F
      certain cases….”
      12. Manifestly remission not being a matter of right, much less
upon completion of 14 years of custody, but subject to rules framed in
that regard, including complete denial of the same in specified
circumstances, as a matter of State policy, nothing prevents the State         G
from imposing restrictions in the manner done by Rule 8(2)(i) to consider
claims for remission. In Maru Ram (supra) this Court held:
      “30. A possible confusion creeps into this discussion by equating
      life imprisonment with 20 years’ imprisonment. Reliance is placed
      for this purpose on Section 55 IPC and on definitions in various         H
202             SUPREME COURT REPORTS                            [2019] 6 S.C.R.


A            Remission Schemes. All that we need say, as clearly pointed out
             in Godse, is that these equivalents are meant for the limited
             objective of computation to help the State exercise its wide powers
             of total remissions. Even if the remissions earned have totalled up
             to 20 years, still the State Government may or may not release
             the prisoner and until such a release order remitting the remaining
B
             part of the life sentence is passed, the prisoner cannot claim his
             liberty. The reason is that life sentence is nothing less than lifelong
             imprisonment. Moreover, the penalty then and now is the same
             — life term. And remission vests no right to release when the
             sentence is life imprisonment. No greater punishment is inflicted
C            by Section 433-A than the law annexed originally to the crime.
             Nor is any vested right to remission cancelled by compulsory 14-
             year jail life once we realise the truism that a life sentence is a
             sentence for a whole life.”
             13. It is, therefore, held that the High Court erred in striking down
D     Rule 8(2)(i) of the Rules, 2006 on both counts. The Rule is held to be
      valid and consistent with the law. The impugned orders of the High
      Court are set aside and the appeals are allowed.


      Kalpana K. Tripathy                                            Appeals allowed.
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