PETITIONER:
STATE OF U.P.
Vs.
RESPONDENT:
HARI SHANKAR TEWARI
DATE OF JUDGMENT25/02/1987
BENCH:
MISRA RANGNATH
PATHAK, R.S. (CJ)
DUTT, M.M. (J)
CITATION:
1987 AIR 998 1987 SCR (2) 426
1987 SCC (2) 490 JT 1987 (1) 563
1987 SCALE (1)462
ACT
National Security Act, 1980--Section 3(2)--Detention Order-Assailed in Court--Duty of Court--To find out whether impugned activities affect ’Public order’ or ’law and order’.
HEADNOTE
A Division Bench of the High Court quashed the order of detention of the respondent, made under Section 3(2) of the National Security Act, 1980 as bad in law, following the earlier Full Bench decision in the case of Ashok Dixit v. State and others that a solitary assault on one individual which may well be equated with ordinary murder can hardly be said to disturb public peace of place public order in jeopardy so as to bring the case within the purview of the Act, that it can only raise a ’law and order’ problem and no more, and that the act or incident which may be attributed to the detenu may be reprehensible and yet if it concerns only specific individuals and has no impact on the general members of the community and has no potentiality of disturbing the even tempo of life of the people, it cannot be held to be an activity prejudicial to public order.
In appeal by the State, it was contended that the High Court was wrong in quashing the detention order. Dismissing the appeal, this Court,
HELD: Conceptually, there is difference between law and order and public order but what in a given situation may be a matter covered by law and order may really turn out to be one of public order. Facts of each case have to be looked into to ascertain whether a matter relates to the larger circle or the smaller circle. An act which may not at all be objected to in certain situations is capable of totally disturbing the public tranquility. When communal tension is high, an indiscreet act of no significance is likely to disturb or dislocate the even tempo of the life of the community. An order of detention made in such a situation has to take note of the potentiality of the act objected to. No hard and fast rule can really be evolved to deal with problems of human society. Every 427 possible situation cannot be brought under water-tight classifications and a set of tests to deal with them cannot be laid down. As and when an order of detention is questioned, it is for the court to apply these wellknown tests to find out whether the impugned activities upon which the order of detention is grounded go under the classification of public order or belong to the category of law and order. [432H; 434D-F]
In the instant case, it is unnecessary to examine the facts to find out whether the grounds furnished in support of the order of detention related to public order or not. The respondent suffered detention for a major part of the period covered by the order and was released when the High Court quashed it. The detention being one of 1984, in normal course, would have lapsed more than eighteen months hack. [434H; 435A-B]
Pushkar Mukherjee and Ors. v. State of West Bengal, [1969] 2 SCR 635; Superintendent, Central Prison, Fategarh v. Ram Manohar Lohia, [1960] 2 SCR 821; Dr. Ram Manohar Lohia v. State of Bihar and Ors., [1966] 1 SCR 709; In re: Sushanta Goswami & Ors., [1969] 3 SCR 138; Madhu Limaye v. Sub Divisional Magistrate, Monghyr and others, [1971] 2 SCR 711; Kanu Biswas v. State of WestBengal, [1972] 3 SCC 831; Arun Ghosh v. State of West Bengal, [1970] 3 SCR 288; Babul Mitra alias Anil Mitra v. State of West Bengal, [1973] 1 SCC 393; Kuso Sah v. State of Bihar and Ors., [1974] 2 SCR 195; Ram Ranjan Chatterlee v. State of West Bengal, [1975] 3 SCR 301; Ashok Kumar v. Delhi Administration and others, [1982] 2 SCC 403; S.K. Kedar v. State of West Bengal, [1972] 3 SCC 816; Nagendra Nath Mondal v. State of West Bengal, [1972] 1 SCC 498, referred to.
JUDGMENT
CRIMINAL APPELLATE JURISDICTION: Criminal Appeal No. 106 of 1987.
From the Judgment and Order dated 9.9. 1985 of the Allahabad High Court in H.C.W.P. No. 16272 of 1984. Yogeshwar Prasad, D. Bhandari and Vishal Jeet for the Appellant. R.K. Garg, Mohan Pandey and R.B. Misra for the Respondent. The Judgment of the Court was delivered by
RANGANATH MISRA, J. This appeal by special leave is directed against the order of the Division Bench of the Allahabad High Court by which it has quashed an order of detention of the respondent 428 made under section 3(2) of the National Security Act (hereinafter referred to as ’the Act’). The High Court relied upon a decision of a Full Bench of that Court in Ashok Dixit v. State and others disposed of on 1.8.1985 being Habeas Corpus Petition No. 11161 of 1984 for its conclusion that the detention of the respondent was bad in law. The majority opinion of the Full Bench, as far as relevant said:
"A solitary assault on one individual which
may well be equated with ordinary murder can
hardly be said to disturb public peace or
place public order in jeopardy so as to bring
the case within the purview of the Act. It can
only raise a ’law and order’ problem and no
more. Assaulting an individual in a bus or
train on account of enmity may affect only
certain individuals; but if the assault is
made indiscriminately in the bus or train and
passengers are harassed indiscriminately, the
same would be likely to endanger public order
as this kind of incident is bound to have such
impact that it will disturb the even tempo of
life of the community. The act or incident
which may be attributed to the detenu may be
reprehensible and yet if it concerns only
specific individuals and it has no impact on
the general members of the community and has
no potentiality of disturbing the even tempo
of life of the people, it cannot be held to be
an activity prejudicial to public order."
The Full Bench in its turn referred to several decisions of this Court in its attempt to bring out a distinction between the concepts of Law and order and public order and one of such decisions of this Court is the case of Pushkar Mukherjee v. State of West Bengal, [1969] 2 SCR 635. This Court said therein:
"The difference between the concepts of public
order and law and order is similar to the
distinction between public and private crimes
in the realm of jurisprudence. In considering
the material elements of crime, the historic
tests which each community applies are intrin-
sic wrongfulness or the social expediency
which are the two most important factors which
have lead to the designation of certain con-
duct as criminal. Dr. Alien has distinguished
public and private crimes in the sense that
some offences primarily injure specific per-
sons and only secondarily the public interest,
while others directly injure the public inter-
est and affect individuals only remotely. (See
Dr. Allen’s Legal
429
Duties pp.249) There is a broad distinction
along these lines, the differences naturally
arise in the application of any such test."
It is claimed that these observations of this Court were taken as the guideline by the Full Bench to ascertain whether the allegations brought the case within the purview of public order. Learned counsel for the appellant has strongly canvassed that the test laid down by Dr. Allen was not applicable to judge the validity of a detention order and the High Court has gone wrong in quashing the detention of the respondent.
It has not been disputed at the Bar that public order and law and order are two distinct concepts. There is abundance of authority of this Court drawing the distinction between the two. In the case of Superintendent, Central Prisons, Fatehgarh v. Ram Manohar Lohia, [1960] 2 SCR 821 Subba Rao J., as he then was, spoke for the Court thus:
"The expression public order has a very
wide connotation. Public Order is the basic
need in any organised society. It implies the
orderly state of society any community in
which citizens can peacefully pursue their
normal activities of life. In the words of an
eminent Judge of the Supreme Court of America
"the essential rights are subject to the
elementary need for order without which the
guarantee of those rights would be a
mockery ........ It (public order) is syn-
onymous with public peace, safety and tran-
quillity."
In Ram Manohar Lohia v. State of Bihar, [1966] 1 SCR 709 Hidayatullah, J., as he then was, speaking for the majority view observed: -
"One has to imagine three concentric
circles. The law and order represents the
largest circle within which the next circle
representing public order and the smallest
circle represents security of State. It is
then easy to say that an act may affect law
and order but not public order just as an act
may affect public order but not public order
just as an act may affect public order but not
the security of the State." 430 In Sushanta Goswami & Ors., [1969] 3 SCR 138 case, this Court observed:-
"The contravention of law always affects
public order but before it can be said to
affect public order, it must affect the commu-
nity or the public at large. A mere disturb-
ance of law and order leading to disorder is
not necessarily sufficient for action under
the Act but a disturbance which will affect
public order can alone justify the detention
under that Act." A Constitution Bench was again called upon to deal with this problem. In the case of Madhu Limay v. Sub Divisional Magistrate, Monghyr, [1971] 2 SCR 742 Hidayatullah, CJ., speaking for the Court observed:-
"In a judgment, the expression ’in the inter-
est of public order’ in the constitution is
capable of taking within ’itself not only
those acts which disturb the security of the
State or act within order puglique, as de-
scribed but also certain acts which disturb
public tranquillity or are prejudice of the
peace. It is not necessary to give the expres-
sion a narrow meaning because, as has been
observed, the expression in the interest of
public order is very wide." In Kanu Biswas v. State of West Bengal, [ 1972] 3 SCR 831 this Court stated:-
"The question whether a man has only
committed a breach of law and order or has
acted in a manner likely to cause a disturb-
ance of the public order, is a question of
degree and the extent of the reach of the act
upon the society. Public order is, what the
French call, is something more than ordinary
maintenance of law and order. The test to be
adopted in determining whether an act affects
law and order or public order as laid down in
the above case Arun Ghosh v. State of WestBen-
gal, [1970] 3 SCR 288 is: Does it lead to
disturbances of the current of life of the
community so as to amount to a disturbance of
public order or does it affect merely an
individual leaving the tranquillity of society
undisturbed? In Babul Mitra v. State of West Bengal, [1973] 1 SCC 393 this court observed: 431
"The distinction between law and order
and public order have been pointed out suc-
cinctly in Arun Ghosh v. State of West Bengal
(supra). According to that decision the true
distinction between the areas of law and order
and public order is that one of degree and the
extent of the reach of the act in question
upon society. The Court pointed out that the
act by itself is not determinative of its own
gravity. In its quality, it may not differ but
in its potentiality it may be very different." A three-Judge Bench examined the same point in Kuso Shah v. State of Bihar, [1974] 2 SCR 195. Referring to the facts, the Court observed:
"These acts may raise problems of law and
order but we find it impossible to see their
impact on public order. The two concepts have
well-defined contours. It being wellestab-
lished that stray and unorganised crimes of
theft and assaults are not matters of public
order since they do not tend to effect the
even flow of public life. Infractions of law
are bound in some measure to lead to disorder
but every infraction of law does not neces-
sarily result in public disorder. As observed
in Pushkar Mukherjee v. State of West Bengal,
(supra) the line of demarcation must be drawn
between serious and aggravated forms of disor-
der which directly affect the community or
injure the public interest and the relatively
minor breaches of peace of purely local sig-
nificance which primarily injure specific
individuals and only in a secondary sense,
public interest. In Dr. Ram Manohar Lohia v.
State of Bihar, (supra) Hidayatullah, J. has
expressed this concept picturesquely by saying
that one has to imagine three concentric
circles: law and order represents the largest
Circle within which is the next circle repre-
senting public order and the smallest circle
represents the security of the state. Law and
order comprehends disorders of less gravity
than those affecting public order just as
public order comprehends disorders of less
gravity than those affecting the security of
state." In Ram Ranjan Chatterlee v. State of West Bengal, [1975] 3 SCR 301 dealing with the same question, this Court stated:
"It may be remembered that qualitatively the
acts which affect law and order are not dif-
ferent from the acts which
432
affect public order. Indeed a state of peace
or orderly tranquillity which prevails as a
result of the observance or enforcement of
internal laws and regulations by the Govern-
ment is a feature common to the concepts of
law and order and public order. The distinc-
tion between the areas of law and order and
public order, as pointed out by this Court in
Arun Ghosh v. State of West Bengal (supra) is
one of degree and extent of the reach of the
Act in question on society. It is the potenti-
ality of the Act to disturb the even tempo of
the life of the community which makes it
prejudicial to the maintenance of the public
order. If the contravention in its effect is
confined only to a few individuals directly
involved as distinguished from a wide spectrum
of public it would raise a problem of law and
order only. These concentric concepts of law
and order and public order may have a common
epicentre but it is the length, magnitude and
intensity of the terror-wave unleashed by a
particular exception of disorder that helps
distinguished it as an act affecting public
order from that concerning law and order." In Ashok Kumar v. Delhi Administration, [1982] 2 SCC 403 this Court re-examined the question and stated:-
"The true distinction between the areas
of public order and law and order lies not in
the nature or quality of the act but in the
degree and extent of its reach upon society.
The distinction between the two concepts of
law and order and public order is a fine one
but this does not mean that there can be no
over-lapping. Acts similar in nature but
committed in different contexts and circum-
stances might cause different reactions. In
one case it might affect specific individuals
only and therefore touch the problem of law
and order while in another it might affect
public order. The act by itself therefore is
not determinative of its own gravity. It is
the potentiality of the act to disturb the
even tempo of the life of the community which
makes it prejudicial to the maintenance of the
public order."
These are sufficient to draw the conclusion that conceptually there is difference between law and order and public order but what in a given situation may be a matter covered by law and order may really turn out to be one of public order. We may now refer to two cases of 433 this Court for that purpose. In Arun Ghosh’s case (supra) Chief Justice Hidayatullah stated thus:
"Take the case of assault on girls. A
guest at a hotel may kiss or make advances to
half a dozen chamber maids. He may annoy them
and also the management but he does not cause
disturbance of public order. He may even have
a fracas with the friends of one of the girls
but even then it would be a case of breach of
law and order only. Take another case of a man
who molests women in lonely places. As a
result of his activities girls going to col-
leges and schools are in constant danger and
fear. Women going for their ordinary business
are afraid of being waylaid and assaulted. The
activity of this man in its essential quality
is not different from the act of the other
man. But in its potentiality and in its effect
upon the public tranquillity there is a vast
difference. The act of the man who molests the
girls in lonely places causes a disturbance in
the even tempo of living which is the first
requirement of public order. He disturbs the
society and community. His act makes all the
women apprehensive of their owner and he can
be said to be causing disturbance of public
order and not merely committing individual
action which may be taken note by the criminal
prosecution agencies." Equally useful would be reference to two other cases, Mathew, J. in S.K. Kedar v. State of West Bengal, [1972] 3 SCC 816 approved the ratio of the decision referred to above and indicated :-
"The question whether a person has only com-
mitted a breach of law and order or has acted
in a manner likely to cause a disturbance of
the public order is one of degree and the
extent of the reach of the act upon the socie-
ty. An act by itself is not determinative of
its own gravity. In its quality, it may not
differ from other but in its potentiality it
may be very different. Similar acts in differ-
ent contexts affect differently law and order
on the one hand and public order on the other.
It is always a question of degree of the harm
and its effect upon the community. Public
order is the even tempo of the life of the
community taking the country as a whole or
even as specified localities. It is the degree
of disturbance and its effect upon the life of
the community in a locality which determines
whether the disturbance amounts only to a
breach of law and order." 434 In Nagendra Nath Mondal v. State of West Bengal, [1972] 1 SCC 498 the Court observed as follows:
"The target of arson, was an educational
institution and particularly the registers and
other papers maintained by it. The object
obviously was vandalism, to disrupt its work-
ing by burning its records and to create a
scare so that neither the teaching staff nor
the pupils would dare attend it for prosecu-
tion of studies. The acts in question no
doubt, would be acts similarly to those com-
mitted by a person who resorts to arson, but
in the circumstances, were acts different in
potentiality and therefore, amounted to af-
fecting public order."
In the final analysis, therefore, one has to turn to the facts on each case to ascertain whether the matter relates to the larger circle or the smaller circle. An act which may not at all be objected to in certain situations is capable of totally disturbing the public tranquillity. When communal tension is high, an indiscreet act of no significance is likely to disturb or dislocate the even tempo of the life of the community. An order of detention made in such a situation has to take note of the potentiality of the act objected to. No hard and fast rule can really be evolved to deal with problems of human society. Every possible situation cannot be brought under water-tight classifications and a set of tests to deal with them cannot be laid down. As and when an order of detention is questioned, it is for the Court to apply these well-known tests to find out whether the impugned activities upon which the order of detention is grounded go under the classification of public order or belong to the category of law and order.
The criticism of learned council for the appellant against the ratio in Pushkar Mukherjee’s case is perhaps not warranted. We have pointed out above that the ratio of that decision has been approved in several later cases. The reference to Dr. Allen’s classification was obviously intended to bring into bold relief the basic distinction. The guideline indicated in that judgment in another part falls in line with the general principles adopted by this Court in several authorities. We do not find that the Full Bench of the Allahabad High Court adopted any wrong basis to draw the difference between the two concepts.
In our opinion, it is unnecessary to examine the facts of this case to find out whether the grounds furnished in support of the order of 435 detention related to public order or not. The respondent suffered detention for a major part of the period covered by the order and was released when the High Court quashed it. The detention being one of 1984, in normal course, would have lapsed more than eighteen months back. The appeal fails and is dismissed. N.P.V. Appeal dismissed. 436