DR. N. B. KHARE versus THE STATE OF DELHI

Even assuming for argument's sake that we have got jurisdiction under article 136, the exercise of which would ,depend upon the circumstances of each case, in view of the reasons which we have set out above, this is not · an appeal which, in our opinion, should be a9mitted even if we have the power to do so.

-The result is that tlie preliminary objection succeeds and the appeal fails and dismissed with costs.

PATANJALI SASTRI J.-1 entirely agree with the judgment just now delivered by Mukherjea J. and I have oothing to add.

Appeal dismissed.

Agent for the appellant: Ganpat Rai for Tanubhai

C. Desai.

Agent for the respondents : R. R. Biswas.

Agent for the Union of India: P. A. Mehta.

DR. N. B. KHARE

THE STATE OF DELHI

, SHRI HARILAL KANIA C. J., SAIYID FAZL Au,

PATANJALI SASTRI, MEHR CHAND MAHAJAN, ' and MuKHERJEA, JJ.]

Constitution of India, Art 19, els. (1) (d) and (5)-Funda-mental rights-Freedom of movement-Law imposing restrictions-V alidity -Reasonableness of restrictions-Scope of enquiry-East P11n1ab Public Safety Act, 1949, s. 4(1) (c), (3), (6)-Provisions empowering Provincial Government or District Magistrate to extern persons· mqking satisfaction of externing authority final, authorising e:rternment for indefinite period, and directing that authority "may communicate" grounds of e:rternment-Whether reasonable-Con-struction and Validity of Act.

Bharat Bank Ltd

Employeu •f Bharat Bllllk

PAiar!iali Sa11ri,

1950 May 26.

Dr. N. B. Khart v. T ht St alt of Delhi

Section 4, sub-s. (I) (c), of the East Punjab Public Safety Act of 1949 which was passed on the 29th March, 1949, and was to be in force until the 14th August, 1951, provided that ''The Provincial Government or the District Mag.lstratC. if satisfied \Vith respect to any particular person that with view to pre-venting hirn from acting in any manner prejudicial to the public safety or the maintenance of public order it is necessary to do so, 1nay, by order in writing, give direction that such person shall rcn1ove himself fron1, and shall not return to, any area that 1nay oe specified in the order." Sub-section (3) of s. 4 provided that "an order under sub-s. (I) made by the District Magistrate shall not, unless the Provincial Government by special order othe,wise directs, remain in force for more than three months fron1 the n1aking thereof," and sub-s. ( 6) laid down that "when an order has been macle in respect of any person under any of the clauses under s. 4, sub-s. (!) or sub-s. (2), the grounds of it may be com-municated to him by the authority making the order, and in any case when the order is to be in force tor more than three months, he shall have right of maki1'.g representation which shall be referred to the Advisory Tribunal constituted under s. 3, sub·s. ( 4) ." ·The petitioner, against whom an order under s. 4 (I) ( c) of the Act was passed applied to the Court under Art. 32 of the Constitution for writ of cn·tiorari contending that the order was illegal inasmuch as the provisions of t_he above· mentioned Act under wliich the order was made infringed the fundamental right to move freely throughout the territory of India which was guaranteed by Art. 19 (I) (d) of the Constitution and were accordingly void under Art. 13 (I) of the Constitution : Held, per KANIA C. J., FAzL ALI and PATANJALI SAsTRI, JJ-(MAHAJAN and MuKHERJEA, JJ. dissenting)-(i) that there was nothing unreasonable in the provision contained in sub-s. (I) (c) of s. 4 empowering the Provincial Government or the District Magistrate to make an extcrnment order, and making their satisfaction as to the necessity of making such an order final, or in the provisions contained in sub-s. ( 3) of s. 4 that an order of District Magistrate may remain in force for three months and that the Provincial Government may make an order, or keep alive an order made by District Magistrate, for period exceeding three months without fixing any time limit; (ii) with regard to stJb-s. ( 6), the word "may" in the expression "may communicate" must, in the context, be read as meaning "shall" and under the sub~scction it is obligatory on the authority making an order to communicate the grounds to the externec; (iii) the restrictions imposed by the above-mentioned. provisions of the Act upon the fundamental right guaranteed by Art. (19) (!) (d) were not, therefore, unreasonable restrictions within the meaning of Art. 19 (5) and the provisions of the Act were not void under Art. 13 (I ), and the order of externment was not illegal. Per MuKHERJEA J. (MlliAJAN J. concurring)-Though cercain authorities can be ·invested with power· to make

S.C.R. SUPREME COURT REPORTS

initial orders on their own satisfaction in cases of this descrip-tion, and s. 4 ( 1) ( c) of the East Punjab Public Safety Act cannot be pronounced. to be unreasonable simply because an order could be passed by the Provincial Government or the District Magistrate on their own personal satisfaction and not on materials, which satisfy certain objective' tests, yet, the position would be different if the order thus made is allowed to continue for any indefinite period of time without giving the aggrieved person an opp<lrtunity to say what he has got to say against the order; and inasmuch as sub-s. (3) of s. 4 prescribes no limit to the period of time during which an externment order would remain in force if it is made by the Provincial Government, and the Provincial Government is also given power to keep an order made by District Magistrate in force for an indefinite period, the provisions of sub-s. (3) are manifestly unreasonable. The provisions of sub-s. ( 6) of s. 4 are also unreasonable as they · make it entirely optional with the authorities to communicate to the person affected, the grounds upon which the order is made. Neither sub-s. ( 3) nor sub-s. ( 6) of s. 4 can, therefore, be said to have imposed restrictions which are reasonable in the i1tterests of the general public within the meaning of Art. 19 (5) and these provisions of the Act were consequently void and inoperative under Art. 13 ( 1) of the Constitution, and the externment order was illegal.

Dr. N. B. Khm•

on The State of Delh7

Held also, per KANIYA C. ]., F.1zL ALI, MAHAJAN and MuKHERJEA ]].-Whether the restrictions imposed by legis-lative enactment upon the fundamental right guaranteed by Art. 19 (l) (d) are reasonable within the meaning of Art. 19 (5) of the Constitution would depend as much on the procedural portion of the law as the substantive part of it, and in considering whether such restrictions are reasonable the Court is not there-fore bound to confine itself to an examination of the reasonable-ness of the restrictions in the abstract with reference to their duration and territorial extent. The Court can also consider the reasonableness of Lhe procedural part of the law and the circumstances under which, and the manner in which, the restric-tions have been imposed. [PATANJALI SAsTR1 J. did not express any opinion on this point.]

ORIGINAL JURISDICTION: PETITION No. :XXXVII of 1950.

Application under article 32 of the Constitution of India for writ of certiorari and prohibition. The facts are set out in the judgment.

B. Banerji for the petitioner.

M. C. Setalvad, Attorney-General for India (Gyan Chand, with him) for the opposite party.

&. N. B. KJi.,e

v. Tiu S1att ef Delhi Kania c. J.

1950. May 26. The following judgments were delivered :-

KANIA C. J .-This is an application for writ of Certiorari and prohibition under article 32 of the Constitution of India. The petitioner who is the President of the All-India Hindu Mahasabha since December, 1949, was served with an order of externment dated the 31st of March, 1950, that night. By that order he is directed by the District Magistrate, Delhi, not to remain in the Delhi District, and immediately to remove himself from the Delhi District and not to return to the District. The order was.to continue in force for three months. By another. order of the Madhya Bharat Government he was directed to reside in Nagpur. That order has been recently cancelled. The petitioner dis-putes the validity of the first order on the ground that the East Punjab Public Safety Act, 1949, under which the order was made, is an infringement of his funda-mental right given under article 19 ( 1) ( d) of the Constitution of India. He further contends that the grounds of the order served on him are vague, insuffi-cient and incomplete. According to him the object of the externment order · passed by the District Magistrate, Delhi, was to suppress political opposition to the policy of the Government in respect of Pakistan and the Muslim League. It i; alleged that because the peti-tioner and the Hindu Mahasabha are against the Government policy of. appeasement this order is served on him. It is therefore mala fide and illegal. In sup-port of his contention. about the invalidity of the East Punjab Public Safety Act and its provisions as regards externment, counsel for the petitioner relied on the recent unreported judgments of the Patna High Court in Miscellaneous Judicial Case No. 29 of 1950, Brijnan-dan v. The State of Bihar, and of the High Court of Bombay in Criminal Application No. 114 of 1950, re /aisinghbhai Ishwarlal Modi.

It is necessary first to ascertain the true meaning of article 19 (1) (d) read with clause (5) of the same article There is no doubt that by the order of extern-

ment the right of the p.:titioner to freedom of move-

ment throughout · the territory of India is abridged. The only question is whether the limits of µermissible legislation under clause (5) arc exceeded. That clause provides as follows :-"19. (5) 'Nothing in suh clauses (d), ( e) and ( f) of the said clause .shall effect the oper~tion of any existing law in so far as it imposes, or prevent the State from making any law imposing,, reasonable restrictions on the exercise of any of the rights conferred by the said sub-clauses either in the interests of the general public or for the protec-tion of . the interests of any Scheduled Tribe." It is clear that the clause permits imposition of reasonable restriction.s on the · exercise of the right conferred by sub-clause (d) in the interests of the general public. The rest of the provision of clause. (5) is not materiil. and neither side relies on it. Two interpretations of the clause are put before the Court. It is argued that grammatii:ally understood the only question before the Court is whether the impugnep legislation imposes reasonable restrictions on the exercise of the right. To put it in other words, the only justiciable issue to be decided by the Court is whether the restrictions imposed by the legislation on the exercise of the right arc reasor1able. If those restriction.s on the exercise of the right are reasonable, the Court has not to consider whether the law imposing the restrictions is reasonable. The other interpretation is that while the Constitution premits law laying down reasonable restrictions on the exercise of the rights mentioned in sub-clause 19 (1) (d), 1 [the reasonableness ][·has ][to ][be ][of the law ][also. ]It is· submitted that in de.ciding whether the restric-tions, on the exercise of the right are reasonable, the Court has to decide not onlv on the extent and nature of · .the restrictions on ·the exercise of the right but also as to whether the conditions under which ·the· right is restricted are reasonable. The majority judgments of the Patna and the Bombay High Courts, although the impugned Acts of the State Legislatures before them were, materially different on certain im-portant points, have given __ c;lause (5) of article 19 the -latter mea!ling.

Dr. }(. B. Khan

T Ill State of Dtlhi

Ka,,U. C.].

Dr. ,Y. B. Khare v. The State ~f Delhi KaniaC. J.

In my opm10n, clause (5) must be given its full meaning. The question which the Court has to con-sider is whether th<lol restrictions put by the impugned legislation on the exercise of the right are reasonable or not. The question whether the provisions of the Act provide reasonable safeguards against the abuse of the power given to the executive authority to adminis-ter the law is not relevant for the interpretation of the clause. The Court, on either interpretation. will be entitled to consider whether the -restric-tions on the right to move throughout India, 1.e., both as regards the territory and the duration, are reasonable or not. The law providing reasonable restrictions on the exercise of the right conferred by article 19 may contain substantive provisions as well as pro~edural provisions. While the reasonableness of the restrictions has to be considered with regard to the exercise of the right, it does not necessarily exclude from the consideration of the Court the question of reasonableness of the procedural part of the law. It is obvious tl1at if the law prescribes five years extern-ment or ten years externment, the question whether such period of extcrnment is reasomble, being the sub-stantive part, is necessarily for the consideration of the court under clause (5). Similarly, if the law provides the procedure under which the exercise of the right may b> restricted, the same is also for the consideration of the Court, as it has to determine if the exercise of the right has been reasonably restricted. I do not think by this interpretation the scope and ambit of the word "reasonable" as applied to restrictions on the exercise of the right, is in any way unjustifiably enlarged. It seems that the narrow construction sought to be put on the expression, to restrict the Court's power to consider only the substantive law on the point, is not correct. In my opinion this ospect of tlie construction of article 19 (5) has escaped the minority judgment in the two matters mentioned above. I am. not concerned with the conclusions of the two Courts about the in-validity of the provisions of the Acts they were asked to consider. To the extent they help in the interpreta-tion of article 19 (5) only they are helpful.

S.C.R. SUPREME COURT REPORTS

The next question is whether the impugned Act contains reasonable restrictions on the exercise of the rigbt given under article 19 (1) (d) or (e). Itwas argiied on behalf of the petitioner that under sec· tion 4- the power to make the order of extern .. ment was given to the Provincial Government or the District Magistrate, whose satisfaction was final. That decision was not open to review by the Court. On that ground it was contended that there was an un· reasonable restriction on the exercise of the citizen's right. In my opinion, this argument is unsound. This is not legislative delegation. The desirability of pass-ing an individual order of externment against citizen · has to be left to an officer. In the Act such provi-sion cannot be made. -The satisfaction of the officer Jhus does not impose an unreasonable restriction on the exercise of the citizen's right. So far as f4e Bom-bay Highl Court is concerned Chagla C. J. appears to have decided this point against the contention of the petitioner.· It was next urged that under section 4 (3) the order made by the District Magistrate shall not, unless the Proviricial Government by special order otherwise direct, remain in force for more than three months. It was argued that the period of three months itself was unreasonable as the externee · had no remedy during that time. [ - It was contended that when the Provincial Governmefit directed the renewal ·of the order no limit of time was prescribed by. the legislature for the dura-tion of the order. The order therefore can· be in opera-tion for ari indefinite period. This was argued to be an unreasonable restriction on the exercise of citizen's right. In this connection it may be pointed out that in respect of preventive detention, which is more severe rest~iction on the right of the citizen, the Consti-tution itself under article 22 (4) to (7) permits preven-tive detention for three months without any remedy. The period of three months therefore prim acie does not appear unreasonable. Under the proviso to section 4 (5) the Provincial Government is not permitted to direct the exclusion or removal from the Province of person ordinarily residing in the Province, and similarly

Dr. N. B. Khare v. The State of Dtilii

Kania C.J.

1950 Dr. N. B. Khare Y. The Stak of Dllhi

Kania C.].

the District Magistrate is not permitted to order the exclusion or removal of person ordinarily resident in his district from that district. This is great safe-guard provided under the East Punjab Public Safety Act. The further extension of the exter1.1ment order beyond three months may be for an indefinite period, but in that connection the fact that the whole Act is to remain in force only up to the 14th August, 1951, can-not be overlooked. Moreover, . this whole argument is based on the assumption that the Provincial Govern-ment when making the order will not pe,form its duty and may abuse the provisions of the sect10n. In my opinion, it is improper to start with such an assump-tion and decide the legality of an Act on that basis. Abuse of the power given by law. sometimes occurs ; but the validity of the law cannot be contested because of such an apprehension. In my opinion, therefore, this contention of .the petitioner cannot be accepted.It "was next argued that there is no provision in the Act for furnishing grounds of externment to the citizen. Section 4 (6) provides that when an extern-ment order has been made its grounds may be com-municated to the externee by the authority making the order and in any case when the order is to be enforced for more than three months he shall have right of making representation which shall be referred to the advisory tribunal constituted under section 3 ( 4). While the word "may" ordinarily conveys the idea of discretion and not compulsion, reading it with the last part of the clause it seems that when an externment order has to be enforced for more than three months an absolute right is given to the externee to make representation. He cannot make representation unless he has been furnished grounds for the order. In no other part of the Act right to obtain the grounds for the order in such case is given to him. Therefore, that right has to be read as given under the first part of section 4 (6). That can be done only by reading the word "may" for that purpose as having the meaning of "shall". If the word "may" has to be so read for that purpose, it appears to be against the well-recognised canons of construction to

read the same "may" as having different meaning when the order is to be in force for less than three months. I do not think in putting the meaning of "shall" on "may" in the clause, I am unduly strainc ing . the language used in the clause. ·So read this argument must fail.

Dr. Jt. B. Kht11t-

K•aC.J.

It was next argued that there is no provision in the Act showing what the advisory board has to do when it receives representation. reference to the advisory board necessarily implies consideration of the case by s1,1ch board. The absence of an express statement to that effect in the impugned act does not invalidate the Act.

It was finally contended on behalf of the petitioner that the grounds for the externment 011der supplied to him are vague, insufficient and incomplete. The grounds are stated as follows :-

"Your activities generally and particularly . since the recent trouble in East and West Bengal have been of communal nature tending to excite hatred between communities and whereas in the present composition of .the population of Delhi and the recent communal disturbances of Delhi feelings are roused be.tween the majority and minority communities your presence and activities in Delhi are likely to prove prejudicial to the maintenance of law and order, it is considered necessary to order you to leave Delhi.

These grounds cannot be described as vague, insufficient or incomplete. It is expressly stated that the ·activities of the petitioner, who is the President of the Hindu Mahasabha, since the recent disturbances between two communities in the East and West Bengal have particularly been of communal riature which excites hatred between the communities. It is ~rther stated that having regard to the recent disturb-ance· in Delhi, the population of which is composed of both these communities, the excitement of such hatred . is likely to be dangerous to the peace and· maintenance of law and order. Apart from. being vague, I think that these grounds are specific and if honestly believed can support the order. The argument that lhe order

Dr. N. B. n.,.,

Th• SlaJt of DI/hi XatriaC.J.

Fazl Ali].

Patmfiali SGltri].

Mul<Mrjea].

was served to stifle oppostition to the Government policy of appeasement has little bearing because the District Magistrate of Delhi is not concerned with the policy of the Government of appeasement or otherwise. The order is . made because the activities of the peti-tioner are likely to prove prejudicial to the maintenance of law and order and the grounds specified have direct bearing on that conclusion of the District Magistrate. I therefore think that this contention of the petitioner must be rejected.The result is that the petition fails and is dismissed.

FAzL Au J.-I agree.

PATANJALI SASTRI J.-I agree that this applica-tion must fail. As I share the views expressed by my Lord in the judgment just delivered by him on the reasonableness of the restrictions imposed by the im-pugned legislation whichever construction of article 19 (5) of the Constitution is adopted, I consider it un-necessary to express any opinion on the true scope of the judicial review permitted under that article, and I hold myself free to deal with that point when it becomes necessary to do so.

MAHAJAN J.-1 concur in the judgment which my brother Mukherjea is delivering and for the reasons given hy him I allow the petition and quash the order of externment.

MuKHERJEA J.-This is an application under article 32 of the Constitution, praying for quashing of an externment order made by the District Magistrate of Delhi, against the petitioner Dr. N. B. Khare, on 31st March, 195p,. by which the latter was directed to remove· himself immediately . from the Delhi District and not to return to that District so long as the order remained in force. The order is for three months at present. Complaint was also made in the petition in respect of another and subsequent order passed by the Government of Madhva Bharat which was served on the petitioner on his way to Nagpur and which

S.C.R. SUPREME COURT REPORTS

directed him to reside within the limits , of the Nagpur Muriicipality and not to leave that area without the permission of the District Magistrate of that place. This order of the Government of Madhya Bharat, we are told, has since been withdrawn and we are not concerned with that order or the Act under which it was passed in the present proceeding.

The substantial contention raised on behalf of the petitioner is that the particular provision of the East Punjab Public Safety Act, 194j, · under which the District Magistrate of Delhi purported to make the externment order, became void and ceased to be opera-tive after the new Constitution came into force, by reason of these provisions being inconsistent with the fundamental rights guaranteed under article 19 ( 1) ( d) of the Constitution read with clause (5) of the same article. The argument is that any order passed under such void legislative provisions must necessarily be void and of no effect in law. In order to appreciate the merits of this contention, it may be convenient to advert to the material provi-sions of the East Punjab Public Safety Act which are alleged to have become void as well as to the articles of the Constitution, upon which reliance has been placed by the learned,counsel for the petitioner. The East Punjab Public Safety Act came into force on 29th March, 1949, and its object; as stated in the preamble, is to provide for special measures to ensure public safety and maintenance of public order. Section 4 ( 1) of the Act provides :

"The Provincial Government or the District Magistrate, if satisfied with respect to any particular person that . with view to preventing him from acting in any manner prejudicial to the public safety or the maintenance of public· order it is necessary so to do, may, by order in writing, give anyone or more of the following directions, namely that such person ......... . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ( c) shall remove himself from, and shall not return to, any area that may be specified in the order."

Dr. N. B. Khtm

Thi Slate of D_•lhi

Mukher:iea j

Dr: JV. B: lrhare

T ~ Stal• of Delhi

r19sr.11

Sub-section (3) of the section lays down that "An order under sub-section (1) made by the District Magistrate shall not, unless the Provincial Government by special order otherwise directs, remain in force for more than three months from the making thereof." The contention of the petitioner is that the restric-tive provisions mentioned above, under which person could be removed from particular area or prohibited from returning to it are inconsistent with the funda-mental right guaranteed by article 19 ( 1) ( d) of the Constitution under which all citizerts shall have the right "to move freely throughout the territory of India." This right indeed is not absolute and the extent to which it could be curtailed by .legislation is laid down in clause (5) of article 19 which runs as follows: "Nothing in sub-clauses (d), (e) and (£) of the said clause shall affect the operation of any existing law in so far as it imposes, or prevent the State frotn making any law imposing reasonable restictions on the exercise of any of the rights conferred by the said sub-clauses ·either in the interests of the general public or for the protection of the interests of any Schedule•! Tribe." Thus the primary question which requires con-sideration is, whether the impugned legislation which apparently seems to be in conflict with the fundamental right enunciated in article 19 ( 1) ( d) of the Constitution is pro.tected by clause (5) of the article, under which law would be valid if it imposes reasonable restncttons on the exercise of the right . in the interests of the general public. It is not disputed that the question of reasonableness is justiciable matter which has to be determined by the Court. If the Courts hold the restrictions imposed by the law to be reasonable, the petitioner would certainly have no remedy. If, one the other hand, they are held to be unreasonable, article 13 (1) of the Constitution imposes duty upon the Court to pronounce the law to be invalid to the extent that it is inconsistent with the fundamental rights guaranteed under J>art III of the Constitution.

S.C.R. SUPREME COURT REPORTS

It has been urged, though somewhat faintly, by the learned Attorney-General that the; right of free movement throughout the Indian territory as enunciated in article 19 (1) (d) of the Constitution contemplates nothing else but absence of inter-State restrictions, which might prevent citizens of the Indian Union from moving from one State to another. law which does not impose barriers of this kind, it is said, cannot be inconsistent with the fundamental right secured by this clause. Such restricted inter-pretation is, in my opinion, not at all warranted by the language of the sub-clause. What article 19 (1) (d) of the Constitution guarantees is the free right of all citizens to go wherever they like in the Indian territocy-without any kind of restriction whatsoever. They can move not merely from one State to another but from one place to another within the same State ind what the Constitution lays stress upon is that the entire Indian territory is one unit so far as the citizens arc concerned. Clause (c) of section 4 (1) of the Eaet Punjab Public Safety Act, 1949, authorises the Provin-cial Government or the District Magistrate to direct any person to remo\'e himself from any area and pro-hibit him from entering the same. On the face of it such provision represents an · interference with the fundamental right guaranteed by article 19 (1) (d) of the Constitution. The controversy, therefore, narrows down to this, whether the impugned legislation is saved by reason of its being within the permissible limits prescribed by clause (5) of article 19 .. With regard to clause (5), the learned Attorney-General points out at the outset that the word "reason-able" occurring in the clause qualifies "restrictions" and not "law". It is argued that in applying the clause,. all that we haye to see is whether 'the restrictions that are imposed upon the exercise of the right by law are reasonable or not and we have not to enquire into the reason;ibleness or otherwise of the law itself. The reasonableness of the restrictions can be judged, ac-cording to the learned Attorney-General from the nature of the restrictions themselves and not from the manner in which or the authorities by which they are 2-5 S.C. Indiil (N.D.)(~

Dr. J'{. JJ. KIJMr

T& Siau of Delhi

M~herjea].

Dr. N. B. Khare

v. Tiu State of Delhi Muti...jea J.

imposed. The question whether the operation of the law produces hardship in individual cases is also matter which is quite irrelevant to our enquiry. I do agree that in clause (5) the adjective 'reason-able' is predicated of the restrictions that are imposed by law and not of the law itself ; but that does not mean that in deciding the reasonableness or otherwise of the restrictions, we have to confine ourselves to an examination of t'he restrictions in the abstract with reference merely to their duration or territorial extent, and that it is beyond our province to look up to the circumstances under which or the manner in whicl\ the n;strictions have been imposed. It is not possible to formulate an effective test which would enable us to pronounce any particular restriction to be reasonable or unreasonable per se. All the attendant circum-stances must be taken into consideration and one cannot dissociate the actual contents of the restnct1ons from the manner of their imposition or the mode of 1ft1tting them into practice. The question of reason-ableness of the restrictions imposed by. law may arise as much from the substantive part of the law as from its procedural portion. Thus, although I agree with the learned Attorney-General that the word "reasonable" in clause (5) of article 19 goes with "restrictions" and not with "law", I cannot accept his suggestion as regards the proper way of determining the reasonableness of the restrictions which legislation might impose upon the exercise of the right of free movement. Coming now to the provisions of the impugned Act, Mr. Banerjee's main contention is that section 4 (1) (c) of the East Punjab Public Safety Act, which provides for passing of orders removing person from particular area, on the satisfaction of the Provincial Government or the District Magistrate, cannot be reasonable piece of legislation inasmuch as the only pre-requisite for imposition of the restrictions is the personal satisfaction of ·certain individuals or authori-ties, the propriety or reasonableness of which cannot be tested by the application of any external rule or stand-ard. It is said that any law which places the liberty

S.C.R. SUPREME COURT REPORTS

of subject at the mercy of an executive officer, how-ever high placed he might be and whose action 'Cannot be reviewed by judicial tribunal, is an arbitrary and not reasonable exercise of legislative powers. The contention requires careful examination. It is not disputed that under clause (5) of article 19, the reasonableness · of challenged legislation has to be determined by Court and the Court decides such matters by applying some objective standard which is said to be the standard of an average prudent man. Judged by such standard which is sometimes described as an external yard-stick, the vesting of authority in particular officers to take prompt action under emergent circumstances, entirely on their own responsibility or personal satisfaction, is not necessarily unreasonable. One has to take into account the whole scheme of the legislation and the circumstances under which the restrictive orders could be made. The object of the East Punjab Public Safety Act is to pro-vide for special measures to ensure public safety . and maintenance of public order. Under section 4 (1) (c) of the Act, the Provincial Government or the District Magistrate may make an order directing the removal of certain person from particular area, if they are satisfied that such order is necessary to prevent such person from acting in any way prejudicial to public safety . or maintenance of public order. Preventive orders by their very nature cannot be made after any judicial enquiry or trial. · If emergent steps have got to be taken to prevent apprehended acts which are likely to jeopardise the interests or safety of the public, somebody must be given the power of taking the initial · steps ori his own responsibility ; and no reasonable objection could be taken if the authority, whp is given the power; is also entrusted with the responsibility of iµaintaining order and public-. peace in any particular district or province. The preventive provisions of the Criminal Procedure Code· are based on similar principle. In my opinion, therefore, the provision of section 4 ( 1) (c) of the East Punjab Public Safety Act cannot be pronounced . to be um:easonable, simply because the order could be passed by the Provincial Government

Dr. N. B. Khan v. The Stau of Delhi

l'rfukknjeaJ.

Dr. N. B. Khar•

Tiu Stall of Delhi

impartial tribunal. The provision of the · impugned Act which has bearing on this point is contained" in sub-sectioh (6) of section 4 and it runs as follows :

"When an order has been made in respect of any person under any of the clauses under section 4, sub-section (1), or sub-section (2) the grounds of it may be communicated to him by the authority making the order and in any case, when the order is to be in force for more than three months, he shall have right of making representation which shall be referred to the Advisory Tribunal, constituted under section 3, sub-section ( 4) ,"

It will be noted that the first part of the sub-section ·makes it entirely optional with the authorities to communicate the grounds, upon which the order is made, to the person affected by it. The grounds need not be communicated at all if the authorities so desire. As regards the right of representation the latter part of the sub-section seems to imply that when the order is to remain in force for more than three months, the right of representation should be given to the aggrieved person and the representation shall be re-ferred for ·consideration to the advisory tribunal consti-tuted under section 3, sub-section ( 4), of the Act. The right, however, is purely illusory as would appear from the fact that even in cases where the order is to be operative for more than three . months, there is no obligation on the part of the authorities ~o communi-cate to _ the person the grounds upon which the order was made. The aggrieved person consequently may not at all be apprised of the allegations made against him and it will be impossible for him to make any adequate or proper representation, if he is not told on what grounds the order was passed. In my opinion, this is an equally unreasonable provision and neither sub-section (3) nor sub-section (6) of. section 4 of the Act · can be said to have imposed restrictions which are reasoriable in the interests of the general public. My conclusion, therefore, is that under article 13 ( 1) of the Indian. Constitution, these provisions of the Act became void and inoperative after the Constitution came into

Dr. N. B. Khare .v.

The State of Delhi

Mukherjea ].

Dr.N.B. Khare v. The Stale of Delhi Mukhnjea].

force, and consequently the order made by the District Magistrate in the present case cannot stand.

I would, therefore, allow the application and quash the externment order that has been passed against the petitioner. Petition dismissed.

Agent for the petitioner: Gan pat Rai. Agent for the opposite party: P. A. Mehta.

CHIEF CONTROLLING REVENUE AUTHORITY

AND SUPERINTENDENT OF STAMPS

ti. MAHARASHTRA SUGAR MILLS LTD. [SHR1 HARILAL KANg C. J., SAIYID FAzL Au, PATANJALI SASTRI, MEHR CHAND MAHAJAN and MUKHERJEA J J.)

Indian Stamp Act (II of 1899), ss. 57, 59 (2)-Reference lo High Court-Nature of power .to refer-Duty to refer on reque.11 of party affected-Order directing Chief Controlling Authority to refer-Whether "matter concerning revenues"-furisdiction of Original Side of High Court-Government of India Act, 1935, s. 266(1).

The power conferred on the Chief Revenue Authority by Sec. 57 of the Indian Stamp Act, to make reference to the High Court is not intended for the benefit of the Revenue Authority alone, but ensures, also for the benefit of the party affected by the assessment. It is th~reforc coupled with duty to make reference when he is called upon to do so by the party affected, and if he declines to do so, it is within the power of the Court to direct him to discharge that ducy and make reference to the Court.

Alcock Ashdown & Co., Ltd. v. Chief Revenue Authority (SO I.A. 227) and /ulius v. Bishop of Orford (5 A.C. 214) applied.