.HANS MULLER OF NURENBURG versus SUPERINTENDENT, PRESIDENCY JAIL, CALCUTTA AND OTHERS.

1955 Shyabuddinsab Mohidin.Jab Akki v. The Gadag-Betgeri Municipal Borough and others Sinha J.

1955 February 23

meeting of the ~rd August 1954 had. been validly held and that there is no illegality in the election. of the 2nd and 3rd respondents as president and vice-presi-dent respectively. We accordingly affirm the orders of the High Court, though not for the same reasons. The appeal fails ·and is dismissed with costs.

Appeal dismissed.

HANS MULLER OF NURENBURG .

SUPERINTENDENT, PRESIDENCY JAIL, CALCUTTA AND OTHERS. [MuKHERJEA C.J., S. R. DAs, VIVIAN BosE, . BHAGWATI and }AGANNADHADAS JJ.)

Constitution of India, Arts. 14, 21 and 22-Entry 9 and entry 10 in Union list of Seventh Schedule to Constitution-Preventive De-tention Act 1950 (Act V of 1950), s. 3(1)(b)-Whether ultra vires Constitution-Foreigners Act 1946 (Act XXXI of 1946), s. 3(2)(c)-Whether ultra vires ,Constitution-Extradition Act 1870 and For-eigners Act, 1946--Distinction between.

The petitioner, West German subject, was placed un<;Ier pre-ventive detention by an order of the West Bengal Government under '· 3( 1) (b) of the Preventive Detention Act 1950 on the ground that he was foreigner within the meaning of the Foreigners Act 1946 and that it had becoine necessary to make arrangements for his ex-pulsion from India ahd tht;refore he was required to be detained until the issue of an appropriate order from the Central Government.

The questions for determination in the case· were :-

(i) whether s. 3(1)(b) of the Preventive Detention Act was ultra vires the Constitution inasmuch as it contravenes Arts. 14, 21 and 22 of the Constitution and whether it w:is beyond the ·legislative competence ·of Parliament to enact such law; '

(ii) whether, in any event, the detention was invalid as .it was made in bad faith.

Held that the Impugned portion of the Preventive Detention Act and i. 3(2)(c) of the Foreigners Act on which it is based are not ultra vires the Constitution· inasmuch a:~;

( i) in view of Entry 9 and Entry 10· 0£ the Union list of the Seventh Schedule to the Constitution, the language of which must be given the widest meaning, the legislative competence of Parlia-ment to deal with the question of preventive detCntion of foreigners ·

is clear and this covers not only s. 3(l)(b) of the Preventive Deten· tion Act but also the Foreigners Act, 1946, in so far as it deals with the powers of expulsion and the right of the Central Government to restrict the movements of foreigners in India and prescribe the place of their residence and the ambit of their movements in the land;

(ii) the Preventive Detention Act was comprehensive Act dealing with preventive detention and was framed with the limita-tions of Arts. 21 and 22 in view. Section 3(1)(b) of the Preventive Detention Act was enacted to bring the unrestrained power given by s. 4(1) of the Foreigners Act into line with the provisions of the Constitution;

(iii) section 3(1)(b) of the Preventive Detention Act is reason-ably related to the purpose of the Act, namely preventive detention, inasmuch as the· right to expel foreigner conferred by s. 3(2) of the Foreigners Act on the Central Government and the right to make arrangements for expulsion include the right to make arrangements for preventing any breach or evasion of the order; and the Preven-tive Detention Act confers the power to use the means of preventive detention as one of the methods of achieving this end;

(iv) the State Government is competent to make an order of detention under the law in anticipation of an order of expulsion that is about to be made, or which may be made by the Central Govern-ment on the recommendation of the State Government which, though seized with certain powers of Government is not competent to make an order of expulsion itself. Unless ·a State Government has autho-rity to act in anticipation of orders from the Centre it might be too late to act at all;

( v) the impugned section does not offend Art. 14 of the Con-stitution inasmuch as differentiation between foreigner and foreigner as envisaged ins. 2(a) ands. 3(2)(c) of the Foreigners Act 1946 and s. 3(1)(b) of the Preventive Detention Act is based on reasonable and ration~! classification. There is no individual discrimination, and reasons of State may make it desirable to classify foreigners into different groups.

On the question of good faith, held, that the circumstance of the· case . did not show bad faith on the part of .the . West Bengal Government.

The Foreigners Act 1946 is not governed by the provisions of the Extradition Act 1870. The two are distinct and neither impinges on the other. Even if there is requisition and good case for extradition, Government is not bound to accede to the request. I~ is given an unfettered right to refuse, vide s. 3(1) of the Extradition Act, and has got an absolute discretion to choose the less' icumbrous procedure of. the F:oreigners Act when foreigner is concerned. As the Government is-given the right to choose, no question· of want of good faith can arise merely because: it exercises the" tight of choice which the law confers. ·

1955 Hans Muller of Nurenburg v: Superintendent, Presidency Jail, Calcutta and others

1955 ·Hans Muller:of Nurenburg v. S~perinUndent, Presidency Jail, .C1lcutta and others

The grounds were served on the 22nd of September, 1954. The second ground runs-

"That you are foreigner within the meaning of ·the Foreigners Act, 1946 (Act XXXI of 1946) and that . it has become _ necessary _to ·make <l!"rangements ·for your expulsion from India and for this purpose ,you are required to be detained under -section 3(1) (b} of the Preventive Detention Act, 1950 until the issue ·of an appropriate order of · expulsion from the Central ·Government". On the day after his arrest, namely on -the 19th .September, 1954 he wrote ·to .the Consul"General of West Germany at •.Calcutta ·saying that he ·had been ·arreste_d ·and asking· for .·-an early interview. This Was ,granted.. · ·

On the 21st of September 1954; .the petitioner wrote •to the West Bengal' Goverrunelif asking· it

"to b~-kind enough. to pass .• an.ord~-for our !ID-_ mediate repatriation from India" · ,

S.C.R. ·sUPREME ·COURT .REPORTS

and "to do the necessary arrangement :for our :trans-mission out of India".

On the 9th of October 1954 the Calcutta Police handed .the petitioner's . passport over to the West German Consul at the Consul's request. . This pass-port was issued to the petitioner by the West German Government at Nurenburg. in West Germany on the 27th of November 1953. When the passport was handed over to the West German Consul it had on it number of visas, including an Ind~an, all of which had on them the col;ldition "while the. passport is valid''. When the West German . Consul got the passport he made ·the following entry on it :

"Valid only for the return' voyage to the Federal Republic of Germany·until the 8th January 1955". The pet:itiorier complains that this invalidated all the other visas and as, according to . this fresh entry, the passport ceased to be valid after ·the 8th of January 1955, he now has no passport. . . . . .

. . . On the same day, the .9th of October 1954, the West German Government wrote to . the West Bengal Gov-ernment saying · that warrant of arrest was issued against· the petitioner in West Germany in connection with a. number of frauds and that legal proceedings . in connection with those warrants. are still ,pending. . The Consul also said that he had received information that similar charges had been made against . the petitioner in Lebanon· and in Egypt and he concluded-

"The Government 'of the Federal Republic of Germany . will . apply for Muller's extradition through diplomatic channels whilst at the same · time submit-ting the 'supporting documents. As i:his- will Tetjuite certain amount of time, I am directed to give you advance 'information of '.this step and . hereby <.request the Government of West Bengal to issue provisional warrant··of arrest which ensures Muller's . .detention up to the date ·of his extradition to Germany. '

. I .Th~i;; COnsulate I Ws ; already . afrariged . ' for., .Muller's 'repatriation oy:,·· ;'tl).e"_:,' Gerfrian boat . :'KANDELFELS' due to arrive' 'in 'Cakutta'~ dn" the 19tlf'' ifilrtiiiL :An

.Hans Muller nf Nurenburg .y.

Superintendent, Presidency Jail, Calcutta and otherS; Bose J.

IQ55 Hans Muller of Nurttoburg v. _ Superintendent, Presidnicy Jail, Calcutta arul others Bose J.

1288 :SUPREME COURT REPORTS [1955]

expenses in connection with Muller's repatriation will be borne by the Government of , the Federal Republic of Germany". , . · On receipt of this letter the Secretary to the Gov-, ernment of West Bengal recorded the following note : , "I suppose there would be 'no objection to our keeping Muller in detention till the 19th instant. We must issue order of his release as soon as his boat is ready to sail". . The West Bengal Government had no, power' to de-port the petitioner. Only the · Central · Government could do that, and up till the 20th of October the Central Government had not passed any orders. On that date the petitioner applied to the High , Court of Calcutta .for writ in the nature ·of . habeas . ,corpus under section 491 of the Criminal Procedure, Code. Because of that, and, because this matter has been pending in the courts ever since, no orders have yet been issued for his expulsion from India though we are told by the learned Attorney-General that they have been 'made and · sighed but are being held in abeyance pending the decision of this petition. The petitioner contended that 'his detention was invalid for the following, among other, reasons :~ ( 1) Because section 3( 1) (b) ' of· the Preventive Detention Act, the section under which the order was made,. is u'ltra vires 'the Constitution on three grounds-( a) that it contravenes articles 21 and '22; " (b) that it contravenes article 14, and (c) that it was beyond the legislative · compe-. tence of Parliament to. enact such law;, (2) Because section 3(1)(1;>), is. not law of pre-ventive detention within the meaning. of article 22(3) and ,therefore. it . contravenes , article., 22 (1) and (2); and (3) Because,. in any event, the o;d~r. was µ;~de in bad faith. ·

The High Court · decided ·against the . petitioner on all points and. dismissed the. petition. on 1().o12-1954. He· thereujJ9nJ made the px:esent petition· to this, Court <1n the same grounps, presumably under .. article. 32 of the Constitution. It was filed on 10-1-1955.

S.C.R. SUPREME COURT REPORTS. ', ' ; ' • ' I ; i: .; I• ' j ~ • i • ! ,.1 • t (.,.,

We will first consider the vires of section 3(1)(b). It is iri: ·these terms : · "The Ceiitral Government· or the · State Govern-ment may-'-· . ................................................... " t '

(b) if s~tisfied with respect to any person who is foreigner within the meaning of the Foreigners Act, 1946 (XXXI ·of 1946), that · with view to regulating his continued presence in'. Iridia or with view to making arrangem~nts for his expulsion 'from India, it is necessary so to do, 'make an order directing that such person be detained". · . · ·

The detention ord.er is. by State Government and not by the Centre. The portion of the section on which the order is based is the part that gives State Gov-ernment power. to make an order of detention against foreigner, on satisfaction, "with view to making arrangements for his expulsion from India".

The competence of. the Central Legislature to enact law dealing with this aspect of preventive detention is derived from Entry 9 of the Union List read with Entry 10. The portion of Entry 9 which concerns us is as follows :

"Preventive detention for reasons connected with .............. Foreign Affairs ............ " The scope of the expression "Foreign Affairs" is indi-cated in Entry 10 :

"Foreign Affairs; all matters which bring the Union into relation with any foreign country". It is well settled that the language of these Entries must be ·given the widest scope of which their mean-ing is fairly capable because they set up machinery of Government and are not mere Acts of legislature subordinate to the Constitution. Giving Entry 9 its widest range we find it impossible to hold that legis-lation that deals with the right of State to keep foreigners under preventive detention without trial does not bring the Union into relation with foreign country. Every country claims the right to the allegi-ance of its subjects wherever they may be arid in return guarantees to them the right of diplomatic

1955 Hans Muller of Nnrenburg. To Superintendent, Presidency Jail, Calcutta and others Bose J.

1955 H/Jns Muller <if Nurenburg· v. Superinundenl, Presidency· Jail~ Calcutta and 'others Bi:Jse·J•

protection . .when abroad.. It is therefore . the privilege, and the anxiety, of every civilised· nation . to keep vigilant watch over i~s subjects ab.road . and to. ensure for them, as far as that is possible through diplomatic channels, fair play and justice administered ' along lines of what is called, broadly for want of better term, natural justice. foreign State has very direct interest in what ls done to its 'subjects in for: eign land. Therefore,· legislation ·that confers juris-diction upon Governments in this country to deprive foreigners of therr liberty cannot but be · matter that will bring the Union into relation with foreign States,. particularly when there is no public hearing and no trial in the ordinary courts of the land. But in this particular case, the relation is even more direct, for the provision here is for detention with view to making arrangements for foreigner's expul'sion from India. foreign State has very deep interest in knowing where and how its subjects can be forcibly expelled against their will. The legislative competence of Parliament to deal with this question is, we think, clear; and this covers not only section 3(1)(b) of the Preventive Detention Act but also the Foreigners Act, 1946 (Act XXXI of 1946) in so far as it <leals with the pC>.wers @f expulsion anru llhe· right of the Central Government to restrict the movements of foreigners in India and prescribe the place of their residence and the ambit of their movements in the land.

The learned Attorney-General sought to base the legislative competence upon other Entries as well and claimed that Parliament is not confined to Entry 9 in List I and Entry 3 in List III (the only Entries that touch directly on preventive detention). He claimed; for example, that laws for the preventi"e detentioR of foreigners can .also be based upon Entry 17 in List I which relates to aliens and Entry 19 which relates to expulsion from India•; and also upon the portions of Entries 9 in List I and 3 in List III that deal with the "security of India,'' and the "security of the State" and the "maintrnance of public order", provided always that they comply with articles 21 and 22 of the Constitution. We express no opiniOR

S.CR. SUPREME COURT REPORTS

about this. as we can uphold the portion of the Statute that is impugned here on the narrower ground we have set out above. The next question is whether the limitations im-posed on this power by articles 21 and 22 have been observed. Article 21 guarantees the protection of personal liberty to citizen and foreigner alike. No person can be deprived of· his personal liberty "except according to procedure established by law'', and article 22 prescribes the minimum that the pro-cedure established by law must provide. There can be no arrest or detention without the person being produced before the nearest magistrate within twenty four hours, excluding the time necessary for the journey, etc., nor can he be detained beyond that period _without the authority of magistrate. The only exceptions are (1) enemy aliens and (2) "any person who is arrested or detained under any law providing for preventive detention". . There are further limitations, but they were not invoked except that the learned Attorney-General explained that the unrestricted power given by sec-tion 4(1) of the Foreigners Act, 1946 (a pre-constitu-tion measure) to confine and detain foreigners became invalid on the passing of the Constitution because of articles 21 and 22. Therefore, to bring this part of the law into line with the Constitution, section 3(l)(b) of the Preventive Detention Act was enacted. It was more convenient to insert new provisions about the confinement and detention of foreigners in the Pre-ventive Detention Act rather than amend the For-eigners Act because the Preventive Detention Act was comprehensive Act dealing with preventive deten-tion and was framed with the limitations of articles 21 and 22 in view.

It was urged on behalf of the petitioner that sec-tion 3(l)(b) of the Preventive Detention Act is not reasonably related to the purpose of the Act, namely, "preventive detention". I~ was argued that preven-tive detention can only be for the purpose of prevent-

Hans Muller of Nurenburg VI Superintendent, Ptesideru,y Jail, Calcutta and otlr4r1 Bose J.

Hans Muller of Nurenburg y, Superintendent, Presidency Jail, CalcUtta and others Bose J.

ing something and when you seek to make arrange-ments for man's expulsiorr from the country you are not preventing· anything, or trying to,· but are facilitating the performance of positive act . by the State, namely the act of expulsion.

We do not agree and will first examine the pos1t10n where an order of expulsion is made before any steps to enforce it are taken. The right to expel is conferred by section 3(2)(c) of the Foreigners Act, 1946 on the Central Government and the right to enforce an order of expulsion and also to prevent any breach of it, and the right to use such force as may be reason-ably necessary "for the effective exercise of such power" is conferred by 'section 11 ( 1), also on the Central Government. There is, therefore, implicit in the right of expulsion number of ancillary rights, among · them, the right to prevent any breach of the orders and the right to use force and to take effective measures to carry out those purposes. Now the most effective method of preventing breach of the order and ensuring that it is duly obeyed is by arresting and detaining the person ordered to be ex-pelled until proper arrangements for the explusion can be made. Therefore, the right to make arrange-ments for an expulsion includes the right to make arrangements for preventing any evasion or breach of the order, and the Preventive Detention Act con-fers the power to use the_ means of preventive deten . tion as one of the methOds of achieving this end. How far it is necessary to take this step in given case is matter that must be left to the discretion of the Government concerned, but, in any event, when criminal charges for offences said to have been com-mitted in this country and abroad are levelled against person, an apprehension that he is likely to disap-pear and evade an order of expulsion cannot be called either unfounded or urrreasonable. Detention rn such circumstances is rightly termed preventive and falls within the ambit of the Preventive Detention Act and is reasonably related to the purpose of the Act. The next question is whether any steps can be

, . •' I

' f' ><

taken under the law in anticipation of an · order that is about to be made, or which may be made, by the competent authority on · the recommendation of an-other authority seized with certain powers of. Govern-ment and yet ·not competent to make an order of this kind.

The Foreigners Act confers the right of expulsion on the Central Government. Therefore, State Government has no right either to make an order of expulsion or to expel. It was argued that if State Government cannot expel or rriake an · order of expul-sion, then it cannot be' permitted· to ·detain "with view to making arrangements for the expulsion". It was contended that the only authority that can make such arrangements, or direct that they should b~ made, is the Central Government. · It was also argued that until an order of expulsion is made by the proper authority, no one can start making arrange-ments for its due execution; the arrangements con-templated by section 3(1) (b) must follow and not precede the order, especially as they involve curtail-ment of man's personal liberty, for the order may never be made and it would be wrong to permit an authority not authorised to decide the question to ,detain man of its own motion till somebody else has time and leisure to consider the matter. That would be inconsistent with the fundamental right to liberty guaranteed by the Constitution to citizen and foreigner alike. Again, we do not agree. The Preventive Detention Act expressly confers the right to detain "with view to making arrangements" for the expulsion upon both the State and the Central Government and the "satisfaction" required by section 3 ( 1) (b) can be of either Government. The right to satisfy itself that , the drastic method of preventive detention is neces-sary to enable suitable arrangements for expulsion to be made is therefore expressly conferred on the State Government and as State Government cannot expel, the conferral of the right can only mean that the State" Government is given the power to decide and to - satisfy itself whether expulsion is desirable or neces-8- 90 S. C. India/59

Hans Muller of Nurenburg v. Superintendent Presidency Jail, Calcutta and others Bose J.

1955 Hans Muller of .Nurenburg v. Superintendent Presi,dency ."'fail, Calcutta and others Bose J.

sary, and if it thinks it is, then to detain until proper arrangements ·for the expulsion are made, one· of them, and ·an essential one, being reference to· the Cen-tral Government for final orders. It is evident that the authorities must be vested with wide discretion in the present field where international complications might easily .follow in given case. U nles. State Government has authority to act in anticipation of ·orders from rhe Centre, it might be too late to act at all.

We now turn to the argument that section 3(1) (b) is ultra vires because it offends article 14 of the Con-stitution. Actually, the attack here is .on section 3 {2)(c) of the Foreigners Act but as section (3)(1)(b) of the Preventive Detention Act is .consequential on that it is also involved. Section 3(1)(b) permits detention of "foreigner" within the meaning· of the Foreigners Act, 1946. The definition of "foreigner" is given in section 2( a) of that Act and is as follows :

" 'foreigner' means person who--

( i) is not natural-born British subject as de-

fined in sub-sections (1) and (2) of section (1) of the British Nationality and Status of Aliens Act, 1914, or (ii) has not been granted .a certificate of natura-lization as British subject under any law for the .time being in force in India" ..

The rest of the definition is not material. The argu-ment is that tills differentiates between foreigner and foreigner. It takes two classes of British subjects who are now as much foreigners as anyone else not an Indian citizen, out of the clas. of foreigners for the purposes of preventive detention and for the purposes of expulsion under the Foreigners Act. Tills, it was contended, offen_ds article 14 which provides that

"The State shall not deny to any person equality before the law or the equal protection of the laws within the territory .of India".

This argument is easily :answered by the classifica-tion rule which has been repeatedly applied in this Court. The dassification of foreigners into those who are ·British subjects of the kind set out ·in the defirii-.tion, and ·others, so as to make the ·former not

foreigners for the purposes of the Foreigners Act and the Preventive Detention Act, :is reasonable and rational classification and so does not, on the autho-rity of our previous. decisions, offend article 14. There is no individual discrimination and it is easily under-standable that reasons of State may make it desirable to classify foreigners into different groups. We repel this argument.

It was then said that at any rate there is differen-tiation in the same group because the definition dis-criminates between classes of British subjects inter se. It was pointed out that the British Nationality and Statuts of Aliens Act, 1914 was repealed in 1948 and re-enacted in another form but as our Act has retain-ed the 1914 definition that is the one we must consider. We do not intend to examine this contention because, even if it be true that there is the discrimination alleged, namely between one class of British subject and another, that will not give the petitioner right of challenge on this ground. He is not British subject and so is not member of the only class that could claim to be aggrieved on this score. This Court has decided in earlier cases that the only persons who can impugn any given piece of legislation under article 32 are those who are aggrieved thereby. As the petitioner is not person aggrieved, so far as this point is concerned, he not being British subject, he cannot be attack the section on this gruund.

We hold that the impugned portions of section 3(1)(b) of the Preventive Detention Act and section 3(2)(c) of the Foreginers Act, 1946 are intra vires. '

We now turn to wider question that brings us to the fringe of International law. It arises in this way. The good faith of the Government of the State of West Bengal in making the order of detention was challenged on the following, among other, grounds. It was argued that the real object of Government in continuing the detention was to keep the petitioner in custody so that it would be in position to hand him over to the West German authorities as soon as suitable German boat arrived. It will be remembered

l9.'Ji5 Hans Muller of Nurenhurg v. Superintendent Presidency Jail, Calcutta and others Bose j.

1955 Htins Mul/E'i of Nurenburg . v. Superintendent . Presidency Jail, Calculta and others Bose J~

.[1955]

that the ·West German Government_ wants the . geti-tioner fot offences which ·he is alleged to have· com-mitted in West · Germany and that. the· .West German Consul at Calcutta wrote. to the West Bengal Govern-ment on 9-10-1954 asking that Government to issue provisional warrant of arrest against the, petitioner and to keep him in custody until the · West,, German Government could initiate extradition·· · proceedings against him, and added. that the West ,Genp.an. Con-sulate at Calcutta had already arrat;iged ,.f<w. his re· patriation on a. Ger!llan boat that was to arrive on the 19th of October 1954. On receipt ,of this· letter, the Secretary of the West . Bengal Government recorded :a note saying that he supposed there would be no. objec-tion to the West Bengal Government keeping the petitioner in detention . till the .19th. It was said that the connection between the letter, the expected arrival of the boat on the 19th and the· Secretary's. proposal to keep the petitioner till that date, was obvious. . · ·

The attack on the good faith of the West Benga.I Government at this p0int was two-fold. First, it was said that whatever the original ·intention of the West Bengal Government may have been, when the. West German Consul's letter was recei".ed, the object of the detention was no longer for the .purpose. of . m~king .arrangements for ·the petitioner's expulsion bm for keeping him in custpdy till. the West German Govern-ment was in position to commence .extradition prn-ceedings; that, it was said, was an abuse of the Preven-tive Detention Act and was not justified by any of its prov1s1.ons ..

The second ground of attack was that, if that was not · the object, then, very clearly, the idea ·was to hand the petitioner over to the Germari authorities on German boat without the. formality of extradi-tion proceedings and without givirig . the petitioner ·. chance to defend himself and show that ·he. could not be extradited. That, . it was said, made ·the. matter worse than ever. It was denied that the petitione.r had committed any offence in West Germany or any-where else. He claimed to be· communist and said that the real object of the West German Government

S.C.R. SUPREME.COURT ,REPORTS.

was 'to 'subject him to political persecution the moment they could lay hands on · him. The contention was that once an order of extradition ·is asked . for, foreigner cannot be handed over to: the Government seeking, his .extradition except under the Extradition Act. .

The learned Attorney-General contended very strongly that this question was academic and should not be ~onsidered because no order . of expulsion had yet been · serv~d on the petitioner and no orie · knows the terms of the order. We do not think it is in view of what 'the )earned Attorney~GeneraL told us, namely that all order of expulsion . has actually been made and ,signed b~t is. kept in abeyance pending our deci-sion. · · · ·

We see no ~orce in th~ first part of the petitioner's argument. · We.' are at. bottom considering the question of the_ West Bengal Government's gOod faith. · The order of detention was made before the West German Consul . ~rote his. letter, so there was no connection between' that letter and the order. After that there is no material to indicate that the West Bengal Gov-ernment changed its mind and continued the deten-tion for another purpose. The note referred to is the note . of. Secretarv to Government and embodies ·his suggestion about what should be done. It cannot be used either . as an order of Government itself or as an indication of its mind.·The second point raises question of wider import touching the status and rights of foreigners in India, and ·the question we have to determine is whether there is ·any- law in India vesting the executive gov-ernment with power to expel foreigner from this land as opposed to extraditing him.

Article 19 of the Constitution confers certain fundamental rights of freedom on the citizens of India, among them, the right "to move freely throughout the territory· of India" and "to reside and settle in any part of India", · subject only to laws that impose rea~ sonable restrictions on the exercise of those rights in the interests of the general publiC' or for the protec-tion of the interests of any Scheduled Tribe. No cor-

1955 Hans Muller of Nurenburg v. Superihtendenl Presidency Jail, Calcutta and othtrs

Hans Mulltt •f Nurenburg v. SuptTinletidbttt' Presidency ]aif,. Calcutta and othtrs Bose j.

responding rights are given to foreigners. All that is guaranteed to, them is protection to life and liberty i1t accordance with the laws of the land. This is con· ferred by article 21 which is in the following terms : "No person shall be deprived of his lite or per-sonal liberty except according to procedure estab-lished by law". _ Entries 9, 101 17, 18 and 19 in the Union List confer wid~. powers on the_ Centre to make laws about, among. ,other things, admission into and expulsion from India, about, . extradition arid aliens and about preventive . de~ention ~onnectecf with foreign affairs. Therefore, the right to make laws about the extradi-tion of aliens and about their expulsion from the land is. express,ly ,conferred; al.so, it is to, be observed that extradition . and expulsion are contained in· separate entries indicating that_ though they may. 9v~lap ·'in certain. aspects, they are different . ·and. distinct . sub-jects. And that brings us to the Foreigners Act which deais, among ' other . t:lllngs, with, expulsi9n, and the Extradi~on _Act which. regulates .extradition. ·

The · Foreigpers · Act confers the power to ·expel foreighers from India. It vests the Central Govern-ment" With 'absolute""artd· unfettered ·discretion and,- as there ·is · no provision fettering this discretion · in · the Constirutioii, an unrestricted ·right to expel remains.

The law of extradition is quite different. ·Because of tteaty obli'gati0ns it . confers right on certain countries (not all) to ·ask that personS' who 'are alleged to havl: committed· certain specified offences in their territories; or who . have already been convicted of those bffences· by· their courts, be handed · over to them in custody for prosecution 'Or ·punishment. But des· pite that -the Government . of -India· is not . bound to comply•., with · the .. ·request, ,and has. an.- abso.lute and unfettered --discretion to refuse . .-

There· are important' · differences · between the two Acts. · ., Irr ·the · first'"place, the Extradition Act "applies to ev&¥ybody;" citizen ·and :foreigner alike,.-and to every class "•of."foreignet, rhat··.is ''W· say, ·everi• to•··foreigners who ·~re n6t' · nationak ···of .. the · coiµltrY' asking· for

S.C.R. SUPREME COURT REPORTS·

extradition. But, as has, been seen, because , of article 19 no citizen can be expelled (as opposed · to extradi-tion) in the absence of specific law to that effect; and there is none; also, the kind of ·law touching ex" pulsion (as opposed to extradition) that could be made in the case of citizen would have to be restricted in scope. That- is not the case where foreigner -is .con-cerned because article . 19 does not appJy. . ~ut citizen who has committed certain kinds .. of offences abroad can be extradited if the formalities,. prescribed by the Extradition Act are observed. foreigner has no such right and he can be expelled withoµt. ,any formality beyond the making · of . an order by the Central Government. But if he is extradited. instead of being expelled, .then. the formalities ·.of the · Extraqi-tion Act must be complied with. The importance ·of the distinction will be realised from what follows; and that applies ,to citizen and foreigner alike'. . . .

The Extradition . Act is really special branch ·of the law of. Criminal Procedure. It .. deals , with crimi-nals and those accused of certain crimes. ·.The For-eigners Act ·is not directly concerned with criminals or crime though the fact that foreigner . has committed offences, or is suspected of that, may be good ground for regarding him . as undesirable. Therefore,. under the Extradition Act warrants or summons .must be issued; there must be magisterial enquiry. and. when there is ·an arrest it is penal in character; and-,-and this is . the most important distinction of all-when the person to be . extradited leaves .India he does not leave the country fn;e man.· The police in India hand him• over to the police of the requisitioning State and. he remains in· custody thFOughout.

In the case of expulsion, no idea of• punishmeht is involved, at any rate, ··in theory, and if ·man is pre-pared to leave voluntarily he can ordinarily ·go ·as and when he pleases.·· But· the• right is not' his. Under the Indian law, 'the niattef -is I left to the ·unfettered discretioh'-t>f the Union· Government ·an:d -.tha:t-'Govern-ment can[1 ]prescribe ·the route and the port-ior 'place of departure: ·and' ·can place ;him •on· -a ·particular·, ship ·[1]'0r plane.: ·(See sectfons. 3(2):(h) :and·•6 ·of'•'thedForeigtu:rs

r955 Hans· Muller ef Nurenburg v. Superintendent Presidency Jai, Calcutta and others Bose J.

Hans Muller of Nutenburg v. Superintendtnt Presidency Jail, Calcutta and others Bose :J.

1300. SUPREME ·COURT REPORTS

Act). Whether. the Captain of foreign ship or .. Plane can be compelled to take .. passenger he does not want or to follow particular route is matter .that does not arise and we express no opinion on it. j3ut as-suming that he is willing to do so, the righ.t of the Government to make the order vis-a-vis the man ex-pelled is absolute.

This may not be the law in all ·countries. ·· Oppen-heim, for example, says· that in England, until Decem· ber · 1919, the British Government had

"no power to expel even. the most dangerous .alien without the recommendation of court, or without an Act of Parliament making provision for' , · such expulsion, except during war on ·an . occasion ··of imminent .. national · . danger : or great · .. emergency". (Oppenheim's International Law, Vol. I, 7th edition, page 631). · ·"'

But that is immaterial, for the law m"'each country is different and we are concerned . with ·the law as it obtains in · our land. Here the matter· of. expulsion · has to be viewed . from three points of view : ( 1) does the Constitution permit the making of such law? (2) does it place any limits on such laws? and (3) is· there in fact any law on this. topic. in India and ·if .so, what does it enact? We· have already· examined the law··making power in this behalf and its ·scope, and as to the· third · question the law on this · matter in India is embodied in the Foreigners Act which . gives an unfettered right to the Union Government to .expel. But there ·is this distinction. If the order · is one of expul-sion, as opposed to extradition;· 'then the person ex-pelled leaves India free· man. It is true he· may• be apprehended the moment he· ··leaves; by some other power and consequently, in some . cases, this would be small consolation to him, but in most cases the dis-tinction is substantial, for the right of . foreign power to arrest except in its .own territory ~nd · on -its own . boats is not unlimited. But however thii,t ·may be, so:far as India is concerned; there must be .. an order of release if he is in preventive. custody and though he may Ii<; conducted to the frontier .. under detention .he . must be permitted · to.· leave free man

S.C.R .. SUPREME COURT REPORTS

and cannot be handed over under arrest.

In case of extradition, he does not leave free man. He remams under arrest throughout and 1s merely handed over by one set of police to the next. But m that event, the formalities of the Extradition Act must be complied with. There must be magis-terial enqmry with regular hearing and the person sought to be extradited must be afforded the right to submit written statement to . the Central Govern-ment and to ask, if he so chooses, for political asy-ium; also he has the right to defend himself and the right to consult, and to be defended by, legal prac-titioner of his choice. (Article 22(1) ). Of course, he can also make representation against an order of ex-pulsion and ask for political asylum apart from any Act but those are not matters of right as under the Extradition Act.

Our conclusion is that the Foreigners Act is not governed by the prov1s10ns of the Extradition Act. The two are distinct and neither impinges . on the other. Even if there is requisition and good case for extradition, Government 1s riot bound to accede to the request. It 1s given an unfettered right to refuse. Section 3(1) of the Extradition Act says..,-

"the Ceritral Government may, if it thinks fit". Therefore, if it chooses not to comply with the re-quest, the person against whom the request is made cannot insist that it· should. The right 1s not his; and the fact that request has been made does not fetter the discretion of Government to choose the less cumbrous procedure of the Foreigners· Act when foreigner is concerned, provided always, that in that event the person concerned leaves India free man. If no choice had been left to the Government, the position would have been different but as Govern-ment is given the right to choose, no question of want of good faith can arise merely because it exercises the right of choice which the law confers. This line of attack on the good faith of Government falls to. the ground.

The remaining grounds about want of good faith

Hans Muller of Nurenburg Vi Superintendent, Presidency Jail, Calcutta and others Bose J.

Hans MUlltr of Nurenburg ,,. Suptrinten<knt) Presidency Jail, . Calcutta. and otherS' Bose J~

1955 February 28

1302: SUPREME COURT REPORTS.

that were raised · in the petition were not seriously piessed and as. they are of no substance we need not discuss them.

. The petition fails and is dismissed.

Petition dismissed.

l\MRIK SINGH

THE STATE OF PEPSU.

[S. K. 'DAS, BHAGWATI arid VENKATAAAMA AYYAJ!. JJ.)

Criminal Procedure Code (Aci V·of 1898), s.-197(1)-Charge of criminal ~isappropriation against public servant-Sanction for prosecution under s. 197(1) of the Code of Criminal .Procedure-W hen necessary-Whether every offence committed· by public servant or every act done. b~ -him while .performing .official duties requires sanc-tion for prpsecution.

It -is not every ·offence · •committed by public servant · that retjui-res sanction for prpsecu\i.t;n. under s . .197(1} of the Code of Criminal Proct;dure . nor. eveµ every act done by him while he is actually engaged in µie performanCe of his official duties; but if the act compla.ined. of : is· direCtly concerned \vith his official duties so that, if queStionea, it c'ould b'e claimed to 'have been done by virtue of·the office, then. san<;tion. would .be necessanr; and that would be so, irrespective of whether it \Vas, iri fact, proper discharge of his duties, ·because that ,.Would re:illy be ··matter Of defence on the merits, which would have to be investiga'.ted at the· trial, and could not arise at the stage -of the grant of- sanction, which must precede the institution of the prosecution.

Whether sanction is· ·necessary to Proseeute .public servant on charge of criminal .misappropriation, will depend qn whether the acts complained of hinge on }:iis duties as public servant. If they do, then sanction i_s requis~te. But if· they are uncoqnected with such duties, then nb. sancti~n "is necessary._.. ·' ·

Hori Ram Singh Y •. Emperor ([1939] F.C.R. 159), H. H. B, Gill v. The King ([1948] L.R. ·75 LA. 41), Albert. West Meads v. The King '([1948] 'L.R. 75 I.A. 185), Phaniniira Chandra v. The King (['I949J L.R::76 LA>lO); 'R. W:· Math'ams v. "State°<jf West·B.engal ([.1955]. .l S.C:R. 2'16~:artd Shreekttntiah Ramayya· Munipalil v. The State of Bombay ([·1955-].:J .s.C.R:- 117.7),. referr<;d to.'

Criri:iirial

CRIMINAL APPELLATE JuR1smcTmN: Appeal• No:·48 of "195'11."·'"' ... · · "·· ··•""'"· ...