STATE OF BIHAR versus RANI SONABATI KUMARI

Stpl1:mb~r ao.

THE STATE OF BIHAR

RA~I SONABATI KUMAR!

(S. K. DAs, J. L. KAPUR, K. SuBBA H.Ao .M. HIDAYATULLAH a.nd N. RAJAOOPALA

AYYANOAR, JJ.)

Temporary injunction-Disobedience by Stale of order issued against it-Proceeding i11 contempt against the Slal<-M ainlarn-ablity-Code of Civil Procedure, 1908 (Act I' of 1908), 0. 39, r. 2(3)_:Constitutio11 of India, Art. 300.

The respondent sued the State of Bihar for declaration that the Bihar Land Reforms Act, 1950, was ultra vires, void and unconstitutional and for permanent injunction restraining the State and its off!fers or agents from issuing any notification thereunder in respect of her estate or taking possession thereof and on petition filed along with the plaint obtained an order of temporary injunction against the State in terms of her pray-er, pending the hearing of the suit. More than year thereafter, the State made an application under 0. 39, r. 4 of the Code for discharge of the order of temporary injunction on the ground that the impugned Act had in another case been declared valid by the Supreme Court. Before that application could, however. be h~ard, the State o! Bihar, on May 19, 1952, issued notifica-tion under s. 3(1) o! the Act, authenticated by the Additional Secretary to the Government, declaring that, amongst others, the respondent's estate had vested in the State o! Bihar under the provisions of the Act. Thereupon the respondent moved the trial Court for taking action against the State under 0. 39, r. 2(3) of the Code. The contention on behalf of the State was that in view of Art. 31-B of the Constitution the issue o! the notification was lawful and could not constitute contempt of Court. The Subordinate Judge held that this was no defence to the application by the respondent and directed attachment of the appellant's property to the value o! Rs. 5,000 and the High Court on appeal affirmed that decision.

Held, that the courts below took the correct view of the matter and that the appeal must be dismissed.

The procedure laid down by 0. 39, r. 2(3) o! the Code o! Civil Procedure is remedial and essentially one for the enforce-ment or execution of an order of ten1porary injunction passed under 0. 39, r. 2(1) and is available against the State although the provision for detention may not apply to it. It is wrong to say that it is either contrary to Art. 300 of the Constitution or hit by the rule that no action lies against the State m tort or for wrong-doing entailing punishment or compensation.

District Board of Bhagalpur v, Province of Bihar, A.l.R. 1954

1 S.C.R. SUPREME COURT REPORTS

Pat. 529 and Tarafatullah v. S. N. Maitra, A.LR. 1952 Cal. 919, distinguished.

There is also no basis for the co.ntention that the State is not expressly or by necessary implication mentioned in 0. 39, r. 2(3). The word 'person' used by it, properly construed, includes the defendant against whom the order of injunction is primarily issued as also the defendant's agents, servants and workmen. Since the court'~ power to issue an order of temporary injunction against the. State under 0. 39, r. 2(1) cannot be in doubt, disobedience of such an order when issued necessarily attracts 0. 39, r. 2(3) of the Code.

Director of Rationing & Distribution v. Corporation of Calwtta, [1961] 1 S.C.R. 158, held inapplicable.

Held, further, that when once an order is passed which the Court has jurisdiction to pass, it is the duty of the State no less. than any private· party to obey it so long as it stands, and the conduc_t of the State Government in the instant case in issuing the notification at time when its application for vacating the injunction was 'still pending and the attitude taken up by it after the application under 0. 39, r. 2(3) was made and persis-ted in till the end must be disapproved.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 83 of 1956.

Appeal from the judgment and order dated June 30, 1954, of the Patna High Court in Appeal from Original Order No. 255 of 1952.

Lal Narayan Sinha and S. P. Varma, for the appel- · !ant. ·

· A. V. Viswanatha Sastri, B. K. Saran, D. P. Singh and K. L; Mehta, for the respondent. 1960. September 20. The Judgment of the Court was delivered by

AYYANGAR J.-The State of Bihar is the appellant in this appeal which comes before us on certificate granted by the High Court of Patna under Art. 133(1) (c) of the Constitution.

The principal point of law raised for-decision in the appeal is whether State is liable to be proceeded against under 0. 39, r. 2(3) of the Code of Civil Proce-dure, when it wilfully disobeys an order of temporary injunction passed eo nomine against it.

There is little controversy regarding the facts, but they have to be set out to appreciate some of the matters debated before us.

The Stale of Bihar v. Rani Sonabtiti Ku111ari

Ayyangay ].

Tise SlaJe of Dillar v. Rani Sonabati Kumari

The Bihar L&nd Reforms Act, 1950 (which we shall refer to ae the Act), which provided for the transfer-ence to the State of the interests of proprietors and tenure-holders in· estates within the State, received the assent of the President on September II, 1950, and was published in the Bihar Gazette on September 25, 1950. Thereupon Rani Sona.be.ti Kumari, the res-pondent, who was tho proprietresq of the Ghatwali Estate of Handwa situated within the State, insti-tuted against the State of Bihar, in the Court of the Subordinate Judge, Dumke., on the 20th 1'l'ovember, 1950, Title Suit 40 of 1950, inter alia for declaration that the Act was ultra vires of the Bihar Legislature and. was therefore "illegal, void, unconstitutional and inoperative " and that the defendant had " no 'right to issue any notification under the said Act or to take possession or otherwise meddle or interfere with the management of the estate in suit " and for perma-nent injunction "restraining the defendant, its officers, servants, employees and agents from issuing any notification under the provisions of the Bihar Land Reforms Act, in respect of the plaintiffs estate" and also "from taking possession of the said estate and from meddling or interfering in any way with the management thereof".

Along with the plaint, the respondent filed peti-

tion for tern porary injunction in which the prayer ran:

"It is therefore prayed that temporary injunc-

tion be issued against the defendant, its officers, em-ployees, servants or agents restraining them from issuing any notification with regard to the plaintiff's estate under the Bihar Land Reforms Act, 1950 (Act XXX of 1950) and from meddling or interfering with the possession of the plaintiff to tho properties in suit, till the disposal of this .suit ".

The Court issued an ex pa.rte ad interim· injunction

presumably in terms of the prayer in the petition, and directed notice of the petition to be served on tho Stahl of Bihar who filed their counter-affidavit on December 9, 1950, opposing the grant of any interim injunction and praying that the petition be dismissed

with costs. The petition was heard in the presence of both the parties on March 19, 1951, and the Sub-ordinate Judge made the ad interim injunction abso-lute and the order went on to add "and it is ordered that the defendant shall not issue any notification for taking over possession of the suit properties under the Land Reforms Act and shall not interfere with or disturb in any manner ·the plaintiff's possession over these properties under any of the provision of the aforesaid Act until this suit is finally disposed of by this Court". The order was appealable under 0. 43, r. (1) (r) of the· Code, but the State preferred no appeal and so it became final.On May 17, 1952, an application was filed by the State for vacating. the order, on the ground that the validity of the Act had been upheld by this Court in another case involving the same points and that thereafter the plaintiff had no prima facie case to sustain the injunction. Before however this applica-tion invoking the powers of the Court under 0. 39, r. 4 of the Code came on for hearing-(it was actually heard on May 30, 1952, when it reserved it for orders to be pronounced on June 2, 1952) the State of Bihar issued on May 19, 1952, notification under s. 3(1) of the Act declaring that the Handwa Raj Estate belong-ing to the respondent, . haid passed to and became vested in the State under the provisions of the Act. The notification ran :

"In exercise of the .powers conferred by sub-

section ( 1) of section 3 of the Bihar Land Reforms Act, 1950 (Bihar Act XXX of 1950), the Governor of Bihar is pleased to declare that the Estates described in the First Schedule and the tenures described in the Second Schedule hereto annexed belonging to the proprietor and the tenure-holder named in the respec-tive schedules have,. with effect from the date of the publication of this notification in the Bihar Qazette, passed to and became vested in the State under the provisions of this Act".

The Handwa Raj Estate with the name of the res-;vndent as the tenure holder was specified in the Second Schedule.

z960 The State of Bikar v. Rani Sonabati Kumari Ayyangar ].

'~[60 ]

1'!11 S.1,,:e o_f Hiluir

.• ·1yy111Jgar }.

This was followed by a.n authentication m these · terms:

"By order uf tho Governor of Biha.r,

K. K. Mitra,

Additional Secretary to Government."

On coming to know of this notification the respon-

dent moved the Subordinate Judge on June 2, 1952, for taking action against the defendant in the suit, for contempt under 0. 30, r. 2(3) of tho Codo of Civil l'roced ure.

When notice of this petition was served on the

State it submitted a.n answer in these terms:

"That in obedience to the said order, the defen-

dant begs to Rubmit that in view of the Article 31 of tho Coustitution, the aforesaid Notificat.ion, dated l!J.5.52, and published in. Bihar Gazette, dated 21-5.52 is vn.lid, legal and authorised and the publica-tion of the same does not constitute contempt of court."

The only matter here set out, Yiz., that the cons-

titutional Yalidity of the Act had been affirmed by an amendmeut of tho Constitution, could obviously afford no defence to the breach of an injunction order and indeed this was not sought to be supported before us. The learned Subordinate Judge passed an order 011 July 31, 1952, which ran" that in view of the notification coustituting breach of the injunction, the property of the defendant State of Bihar shall be attached to the value of Rs. 5,000. The plaintiff is directed to file the list of properties of this value and necessary requisities for issue of the attachment with-in se1•en days of this order."

From this order the State preferred an appeal to

the High Court. The appeal was, however, dismissed by the High Court bY. judgment rendered on June 30, 1954, and by reason of a. certificate granted by the learned Judges under Art. 133(l)(c) the State has preferred this appeal.

The arguments addressed to us by Mr. Lal Na.ra.J a.n

Sinha. who appeared for the appellant State, when closely analysed resolved themselves into five points:

1 S.C.R. SUPREME COURT REPORTS

_ (1) That the order of the Subordinate Judge dated

March 19, 1951, did not on its plain language, •foter-dict the issue of notification under s. 3(1) of the Act, but merely directed the State, not to disturb the possession of the plaintiff. It was common ground that beyond the issue of the notification, neither the State, nor its officers or servants had done anything by way of interfering with the possession of the plaintiff.

(2) That at the worst the order of the Subordinate

Judge, having regard to the language employed, was reasonably capable of two interpretations-(a) that the direction to the State included prohibition against issuing notification under s. 3(1), and (b) that there was no interdiction against notifications under s. 3(1) but only against notifications which directly involved or authorised interference with the plaintiff's possession of her Estate. Proceedings for contempt even for the enforcement of orders of Civil Courts being quasi-punitive in their nature, it was urged that party who bona fide conducted himself on the basis of one of two possible interpretations could not be held guilty of contempt.

(3) That the rule that the Crown or the State could

not be proceeded against for tort or wrong-doing applied to the present case, since disobedience of an order of injunction is virtually wrong for which 0. 39, r. 2(3) provides the punishment- or compensa-tion.

( 4) That State is not bound by Statute unless

it is named therein expressly or by necessary implica-tion, .and as there is no mention of State in specific terms in 0. 39, r. 2(3), State cannot, as such, be pro-ceeded against for disobedience of an order of Court.

(5) Even if State could be proceeded against for

wilful disobedience of an order, the publication of the notification under s. 3(1) which was the contempt alleged, was not proved with certainty, to be an act of the State Government, and that in the absence of definite proof of this fact, the liability of the State could not arise ; and that if the nvtification dated May 19, 1952, constituted the act of disobedience,

The Stale of Bihar

Rani Sonabati Kuniari

Ayyangar J.

The State of 81/iar

Rani Sonabati

Kuma1i

[ 1961 J

then only the Additional Secretary, Mr. K. K. Mitra

who authenticated the notification could, if at a.II, be made liable.

It would be convenient to deal with these matters in that order.

The first point urged was that the order of the Sub-ordinate ,Judge dated March 19, 1951, dfd not in terms or in substance prohibit the State from issuing a. notification under s. 3(1).

Section 3(1) of the Act rims:

"The State Government may, from time to time,

by notification, declare that the estates or tenures of proprietor or tenure-holder, specified in the notifica-

tion, have passed to and become vested in the State."

It was urged that the Subordinate Judge by his

order directed the State " not to issue any notification for taking possession "-and as the notification under s. 3(1) does not proprio vigore affect or interfere with the possessio'n of the proprietor or tenure-holder, the issue of such notification was not within the pro-hibition. The same argument was addressed to the High Court and was repelled by the learned Judges and in our opinion correctly. In the first place, the only "notification" contemplated by the provisions of the Act immediately relevant to the suit, was a. notifi-cation under s. 3( I). Such notification has the statutory effect of divesting the owner of the notified estate of his or her title to the property a.nd of trans-ferring it to and vesting it in the State. The State is enabled to ta.ke possession of the estate a.nd the pro-perties comprised in it by acting under s. 4, but the latter provision does not contemplate a.ny notifioa.tion, -only executive acts by authorized officers of the State. <j>f course, if action had been taken under s. 4, and the possession of the respondent ha.d been inter-fered with, there would have been further breach of the order which directed the State not" to interfere with or disturb in any manner, the plaintiff's posses-sion. What we desire to point out is that the order of the Court really consisted of two parts- the earlier directed against the defendant publishing notifica-tion which in the context of the relevant statutory

provisions could only mean notification under s. 3(1) and tlrn.t which followed, against interfering with the plaintiff's possession and the fact that the second part of the order was not contravened is no ground for ho!Jiug that there had been no breach of the first part. In the next place, the matter is put beyond the pale of controversy, if the order were read, as it has to be read, in conjunction with the plaint and the application for temporary injunction. Mr. Sinha did not seriously contend that if the order of· the Court were understood in the light of the allegations and prayers fa. these two documents, the reference to the "notification" in it was only to one under s. 3(1) of the Act, and that the injunction therefore was meant to cover and covered such notification. We, therefore, hold that this objection must fail.

The State of Bihar v.

Rani Sonabq,ti Kumari

Ayyangar ].

(2) The second contention urged was that even if on proper construction of the order, read in the light of the :Pelevant pleadings, the State Government was directed to abstain . from publishing notification under s. 3(1) of the Act, still, if the order was ambi-guous and equivocal and reasonably capable of two interpretations, a. party who acted on the basis of orie of such interpretations could not be held to have wilfully disobeyed the order. Stated in these terms, the contention appears unexceptionable. For its being accepted in any particular case, however, two condi-tions have to be satisfied: (1) that the order was ambiguous and was reasonably capable of more than one interpretation, (2) that the party being proceeded against in fact did not intend to disobey the order, but conducted himself in accordance with his inter-pretation of the order. We are cle&rly of the view that the case before us does not satisfy either condi-tion. In dealing with the first contention urged by learned Counsel, we have pointed out the true con-struction of the order-and in our opinion that is the only construction which it could reasonably bear. But this apart, even if the order was equivocal as learned Counsel ,puts it, still, it is of' no avail to the appellant, unless the State Govermnent understood it ·

The Stnte of l:Jihar "· Roia .)011ab1ti J(un1a.·i Ayya,igar J.

in the sense, lhat the order was confined to acts by which the possession of the plaintiff was directly inter-fered with and the notification was issued on that understanding and belief. There a.re two pieces of con-duct on the part of the State Government which a.re wholly inconRistent with the theory that the order was unclorstood by them as learned Counsel suggested. Tho first is that before the notification under s. 3(1) was issued they applied to tho Court to vacate tho order of injunction so that they might issue notifica-tion, and it was during the pendency of this applica-tion that the notification was issued-without waiting for the orders of the Court on their petition. The second is even more significant. When notice was issued to the defendant to show ca.use why it should not be committed for contempt, one would naturally expect, if the point urged has any validity, the defence to be based on denial of disobedience, by reference to the sense in which the order was under-stood. We have already extracted the relevant para-graph of the counter:u.ffidavit and in this there is no trace of the plea now put forward. Even in the memorandum of appeal to the High Court against the order of the learned Subordinate Judge under 0. 39, r. 2(3) there is no indieatiou of the contention now urged and though faint suggestion of inad vert-cnce on tho part of some officer appears to have been put forward during the Rtage of argument before the High Court, the point in this form was not urged before the learned Judges of the High Court, as seen from the judgmenl. The question whether party has understood an order in particular manner and has conducted himself in accordance with such con-struction is primarily one of fact, and where the mate-rials before the Court do not support such state of affairs, the Court cannot attribute an innocent inten-tion based on presumptions, for the only reason, that ingenuity of Counsel can discover equivocation in the order which is the subject of enforcement. The argu-ment being in efTect that party who ha.d hone. fide misconstrued the order and acted on that basis, could not be held to have wilfully and deliberat~ly disobeyed

1 S.C.R. SUPREME COURT REPORTS

· the order, such pie~ could obviously be urged only

when it is proved that party was in fact under misapprehension as to the scope of the order, but this was never the plea of the Government right up to the stage of the hearing before the High Court. Besides, if the case of the State was, that acting bona fide it had committed an error in construing the order, one would expect an expression of regret for the uninten-tional wrong, but even a. trace of contrition is singu-la.ry lacking at any stage. of the proceedings. We a.re clearly of the opinion that there is no factual basis for sustaining the second ground urged by learn-ed Counsel.

The State of Bihar v.

Rani Sonabati J(uniari

Ayyangar ].

(3) Turning to the next point urged, learned Coun-

sel· amplified it in these terms. No doubt, having regard to Art. 300 of the Constitution-which practi-cally reproduces the earlier statu.tory provisions in that behalf going back to 1858, States are not immune from liability to be sued. Learned Counsel added that he would not dispute that Title Suit 40 of 1950 was properly laid and that the Court had juris-diction to entertain it, as also jurisdiction to pass the order of temporary injunction against the defendant State pending . the decision of the suit. But learned · Counsel urged that it did not automatically follow that the State was amenable to proceedings, for dis-obedience of the injunction. Proceedings for contempt even for enforcing an order of Civil Court, he sub-mitted, were really a. punishment for wrong doing and in essence, therefore, quasi-criminal. For this reason he contended that Art. 300 which permitted suits to be filed against the Union and the States could not be held to authorise proceedings of such quasi-criminal nature, and that as result the Common Law rules, that the King could do no wrong and that the Crown could not be sued for tort, were attracted. In this connection learned Counsel invited our attention to the decisions in District Board of Bhagalpur v. Pro-vince of Bihar ([1]) and Tarafatullah v. S. N. M aitra ('). In the first of these cases, large number of English and Indian .decisions on the liability of the Crown in

(2) A.I.R. 1952 Cal. 919, 9•7·

(I) A.LR. 1954 Pat. 529.

Tli~ State of [Jihar v. J?1u1i So11abati J(uniari Ayyangar ].

tort were discussed. The question for consideration before the learned Judges was whether the suit before the Court against the Government could be legally maintainable and as to the scope and limitR of the rule " respondeat superior " in such actions against the State-but both these matters are far removed from the pale of the controversy before us.

In regard to the other ruling of the learned Judges of the Calcutta High Court, learned Counsel relied not so much on the decision itself but on the following observations of M ukerji, J. ('):

" State as such cannot be said to commit con-

tempt. In the case of the Ste.te the e.llegation must be against particular officer or officers of .the State. \Vhere as in this case an order was obtained against the State in civil proceeding restraining certain acts of the State, and it is alleged by the complainant or the petitioner that there has been contempt by breach of that order, the petitioner for contempt will have to take out the Rule for contempt against the particular officer or officers who has or have disobeyed that order. In such petition for contempt the Huie must be asked against an individual and not against the State. Article 300 of the Constitution of India provides for proceedings by way of suit against the State or the Union of India and cannot be extended t-0 e.pply to contempt proceedings".

In order however to apprecie.te tho observations 1t

is necessary to consider briefly the factB of the case. The decision was concerned with an application to commit the respondents for contempt for disobedience to an order of ad interim injunction granted by single Judge of the High Court on petition for the issue of writ of Certiorari under Art. 226 of the Con-stitution. No doubt, the order of temporary injunc-tion was issued against the Government, but the disobedience complained of was not any act of the .Jovernment as such, but of certain officers. N otwith-standing this, the Secretary to Government who had been formally impleaded as representing the Govern-ment, was sought to be proceeded against personally

(1) A.I.R. 1952 Cal. 919. 927.

for contempt and the prayer being that he as repre-senting the Government should be commftted to prison. As Chakravartti, C. J., pertinently pointed out, more ridiculous prayer.could not be imagined. The learned Judges further found that as fact no dis-obedience of the order had been proved. The ques-tion therefore whether the Government could be liable to be pr~ceeded against for contempt for disobedience of an order which Court has jurisdiction to pass and which bound the Government, the act constituting the contempt being unmistakably an act for which Government could not as such disclaim responsibility -did not ·arise for consideration in that case.

Having regard to the findings of fact reached by the Court, the obsei:_vations regarding the scope'-Ofj;he liability of Government were wholly obiter. In regard to the passage relied on we need only say that obser! vations about the ambit of Art: 300 of the Constitu-tion are too widely expressed, and do ·not take into account, the provisions of. the Civil Procedure Code 0. 21, r. 32 & 0. 21, r. 39(~)(3) which directly bear on the matter and which we shall discuss presently. Further, they cannot .also apply to those cases where . the disobedience takes the form of formal Govern-ment' order as iii this case. In this connection we prefer the approach to the question indicated by the learned C. J., who said: ·

" I do not say. that in fit cases writ for con-tempt may .. not be asked for against corporation itself, or against Government. In what form, in such a·case, any penal order, if considered necessary, is to be passe.d and how . it is to be enforced are different matters which do.not call for decision in this case. In England, there is specific rule providing for sequestration of the corporate property of the· party concerned, where s11eh party is corporation. I am not aware of any similar rule obtaining in this· ·country, but I do not.consider it impossible that in . fit case fine may be imposed and it may be realised by methods analogous to sequestration which would · be q, distress warrant directed against the properties of .the Government or the Corporation".

The State of Bihar v. Rani Sonabati · , Kumari Ayyangar ].

The Str•te 1>f !J1h(1; v. U.n1i SvJ1,1f1att h·11:nari Ay)·-1ngar j.

Learned Counsel laid considerable stress on the pro-ceedings under 0. 39, r. 2(3) being quasi-criminal, in an attempt to C>stablish that the State could not be proceeded against for Ruch a.criminal wrong. Though undoubtedly proceedings under 0. 39, r. 2(3), Civil Proceclure Code, have punitive aspect-as is evident from the contemner being liable to be ordered to be detained in civil prison, they are in substance design-ed to effect the enforcement of or to execute the order. Tl.tis is clearly brought out by their identity with the procedure prescribed by the Civil Procedure Code for the execution of decree for permanent injunction. 9rder 21, r. 32 sets out the method by which such decrees could be executed-and cl. (I) enacts-" where the part.y against whom decree ............... for an injunction has been passed, has had an opportunity for obeying the decree and haH wilfully failed to obey it, the decree may be enforced, in the case of decree .................. for an injunction by his detention in the civil pri8on, or by the attachment of bis property or by both ". Clauses 2 and 3 of this rule practically reproduce the terms of els. 4 and 3 respectively of 0. 39, r. 2, and the provisions leave no room for doubt that 0. 39, r. 2(3) is in essence only the mode for the enforcement or effectuation of an order of injunction. While on the provisions of 0. 21, r. 32, it may be pointed out that learned Counsel for the l?t.ate does not contend that State Government against whom dc,r;r,,e for permanent injunction has been passed is not liable tu hll proceeded against under this provision of the Code in the event of the decree not being obeyed by them. No doubt the State Government not being natural person could not bo ordered to be detained in civil prison, on the analogy of Corpora-tions for which special provision is made in 0. 39, r. 5, but beyond that, both when decree for permanent injunction is executed and when an order of tempo-rary injunction is enforced the liability of the State Government to be proceeded against appears to us dear. The third point urged lacks substance and is rejected.

Some point was sought to be made of the fact that

as the State was juristic entity merely, the wrong

which constituted the disobedience, must have been the act of some servant or agent of the Government and that except on the principle of vicarious liability the State could not be liable. This argument which is partly based on the observations of Mukherji, J., in the' passage already extracted would if accepted deny that there could be any action by the State at all, is really part of the last submission and could conveni. ently be dealt with along with it. Besides, it need only be mentioned that the fact that officers and servants of Government could be dealt with as individuals bound by the orders passed against the defendant Government, nor the fact that they would be liable in contempt is no ground at all for holding that the State Government itself would not be liable for their own act.

(4) The invocation of the rule of construction

that the Crown was not bound by statute unless by express words or by necess.(try implication the inten. tion so to bind was manifested, was the next submis-sion of learned Counsel, reliance being placed for the position, on the recent dacision of this Court in Director of Rationing & Di8tribution v. Corporation of Calcutta (1 ).

We shall proceed to consider the soundness of the contention that on proper construction of the Civil Procedure C?de the State of Bihar is not within 0. 39, r. 2(3). Article 300 of the Constitution permits suits, which before the Constitution could have been filed against the Central and Provincial Governments res. pectively, to be filed against the Union and the State. As already stated, there is no dispute that having regard to the cause of action alleged in the plaint, Title Suit 40 of 1950 could be properly laid against the State and the plaintiff could, if she was able to make good her allegations of fact and law, be entitled to be granted the reliefs prayed for in her suit includ. ing the relief for permanent injunction restraining the State from issuing notification under s. 3( l) of the Act and from interfering with her possession of

(t) [1961] 1 S.C.R. 158.

The St.1te of Bihar v.

Rani Sonabati Kun1ari

Ayyangar ].

The Slate oj Bihar v. Rani Souabati Kumari

Ayyangar ].

the estate of He.ndwe.. It is also admitted that the Subordinate Judge had jurisdiction to pass the order of temporary injunction age.inst the State Government and that the order bound them. What is contended however is that ~he method of enforcing that order provided for in 0. 39, r. 2(3) of the Code is not available against the State Government, because the State Government is not named in that sub-rule expressly or even by necessary implication. An exa-mination L0wever of the provisions of the Code and the Scheme underlying it in relation to proceedings age.inst Government establishes that this submission is wholly untenable.

The Code of Civil Procedure docs nut determine w bother any particular suit or class of suits could be filed age.inst the Government or not, these being mat-ters of substantive law. But when in law suit cculd be properly filed age.inst Government-be it the Union or the State, it makes a. complete provision for the procedure applicable to such suits and the type of orders which Courts could pass in such suits and how these orders could oo enforced. Pe.rt IV of the Code comprising ss. 79 to 82, sets out tho details of the pro-cedure "to be followed in suits against Government. Section 79 prescribes what the ca.use title of suits age.inst Government should be, the expression 'Government' being used to designate both the Union as well as tho State Governments. Section 80 pro-vides-making specie.I provision not applice. hie to suits against private parties, for two months' notice prior to suit. If Government were party to suit, it necessarily follows that where the plaintiff succeeds there might be decree age.inst the Govt"rnment-the Union or the State-and s. 82 lays down specie.I rules for the execution of such decrees. In the lst Schedule to the Code, there is separate chapter-Chapter XXV II, dee.ling with suits age.inst Government, in which provision is specially me.de for adequate time being granted to it for conducting the various stages of the uroceedings before Courts.

The foregoing, in our opinion, makes it clear that

the State is bound by the Code of Civil Procedure, the

scheme of the Code being that subject to any special

provision made in that regard, as respects Govern-ments, it oocupies the same position as any other party to proceeding before the Court.

The Slol• df Bihar v. Roni Sonabati Kumari

We a.re further satisfied that even apart from the Scheme of the Code, the State, as party defendant is plainly within the terms of 0. 39, r. 2(3) of the Code.

There is here no controversy that the Subordinate

Judge had jurisdiction to pass the interim order of injunction against the State on the terms of 0. 39, r. 2(1) which reads:-

" In any suit for restraining the defendant fro!Il

committing •..........•... injury of any kind, whether compensation is claimed in it or not, the plaintiff may at 8.ny time after the filing of the suit ............ apply to the Court for temporary injunction to restrain the defendant from committ.ing the ..•............... injury complained of .......•.•..... ".

The reference to the " defeuda.nt" in the sub-rule precludes any afgument against the State being exempt from or being outside the statute. The entire argument on this part of the case was based on the difference between the language employed in cl. (1) extracted above and ol. (3) of the rule making provi-sion for the manner in which disobedience to orders passed under cl. (1) could be dealt with.

Clause (3) runs:

" In case of disobedience, or of breach of any such terms, the Court granting an injunction may order the property of the person guilty of such disobedience . or breach to be attached, and may also order such person to be detained in the civil prison for term not exceeding six months, unless in the meantime the Court directs his release."

Learned Counsel urged that cl. (3) discarded the use of the expression "defendant" employed in cl. (1) which would have included the " State " in cases where ths State was party defendant, and had desig-nated the party against whom the injunction ·order could be enforced as ''.the person guilty of the di8obe-dienoe " and with further provision empowering the

Tiu Statr of v. RrPI' So'1abnti /(11mari

Court to order the detention of " such person " in Civil prison. The word " person " it we.a urged wa.s a.t the best a. neutral expression, which in the a.bsence of compelling indication, wa.s not a.pt to include " a. State " a.nd pa.rticula.rly so in tho light of the rule of construction approved by this Court in The Director of Ratianing v. Corporatian of Calcutta('). It wa.s fur-ther pressed upon us thst the construction suggested would not render injunction orders pa.seed on the Sta.te when it wa.s a. defendant brutum fulmen, because, the State a.s a. juristic person could a.ct only through human agency and there would a.lwa.ys be some offi. cer-a nature.I " person guilty of disobedience " in every case where orders passed age.inst a. State were disobeyed. We a.re cloa.rly of the opinion that the entire argument should be rejected,We feel wholly uua.ble to a..ccept the construction suggested of the expression " person guilty of disobe. diencc" in the clause. The reason for the variation in the phraseology employed in els. (l) a.nd (3) of 0. 39, r. 2 is not far to seek. Under tho law when a.n order of injunction is passed, that order is binding on a.nd enforceable not merely age.inst the persons eo no. mine implea.ded a.s a. party to the suit a.nd age.inst whom the order is passed but age.inst "the a.gents a.nd servants, etc." of such a. party. If such were not the law, order8 of injunction would be rendered nuga.. tory, by their being contravened by the a.gents a.nd servants of parties. For that rea.wn, the la.w provides that in order that plaintiff might seek to enforce a.n order age.inst a. servant or a.n a.gent of the defendant, these latter need not be added a.s defendants to the . . suit and a.n order obtained specifica.lly age.inst them-a.n order age.inst the defendant sufficing for this pur. pose. If such a.gents or servants, etc., a.re proved to have form!!.! notice of the order a.nd they disobey the injunction, they a.re liable to be proceeded age.inst for contempt, without a.oy need for a. further order age.inst them under 0. 39, r. 2(1). This legal position is brought out by the terms of a.n injunction order set out in Form 8 of Appendix to the Code which

\1) [1961] 1 S.C.R. 158.

reads: "The Court doth order that an injunction be a.warded to restrain the defendant C. D., his servants, a.gents and workmen, from .................. ". It is not suggested that the form which the order of the Subordinate Judge took in this case, departed from this model.

If such is the scope of an order for injunction, it would be apparent that the expression " person " has in 0. 39, r. 2(3) been employed merely compendiously to designate everyontl in the group "Defendant, his a.gents, servants and workmen" and not for excluding any defendant against whom the order of injunction has primarily been passed. It would therefore follow that in cases where the State is the defendant against w horn an order of injunction has been issued, it is "expressly " named in the clause and not even by necessary implication, and the rule of construction invoked does not in any manner avail the appellant.

The matter may also be approached from broader angle. Where a. Court is empowered by statute to issue an injunction against any defendant, even if the defendant be the State-the provision would be frus-trated and the power rendered ineffective and unmea-ning if the machinery for enforcement; specially enacted did not extend to every one against whom the order of injunction is directed. Apart, therefore, from a. critical examination of the phraseology of O. 39, r. 2(3), the obligation on the part of the State to obey the injunction and be proceeded against for disobedi-ence if it should take place would appear to follow by necessary implication. As Maxwell ([1]) puts it "The Crown is sufficiently named in statute when an in-tention to include it is manifest ".

The only point remaining for consideration is as to whether the publication of the notification under s. 3(1) which was treated by the Subordinate Judge to be the disobedience, had been established to be " the a.ct " of the State. The entirety of the argument on this part of the case was rested on the terms of Art. 154(1) of the Constitution reading :

(I) Maxwell on Interpretation of Statutes, 10th Edition, p .. :i:,.o. Cf. Moore v. Smith, (1859) •8 L.J.M.C. H6.

The Stat• of Bihar

Rani Sonabali I<umari

Ayyangar ].

The Stale of lliliar

Rani Sonabati Kwma1i

A.vyangar ].

"The executive power of the State she.II be vested in the Governor and she.II be exercised by him either directly or through officers subordinate to him in accordance with this Constitution ".

It was urged that the publication of the notification was" an executive act "-an exercise of the executive power of the State-and since such power could be exercised either by the Governor directly or through officers subordinate to him, it could not be predicated, from the mere fact that the notification was purported to be made in the no.me of the Governor, in confor-mity with the provisions of rt. 166( I) tbe.t it was the Governor who was responsible for the notification and not some officer subordinate to him. On this reason-ing the further contention was, t 1iat unless the respon-dent proved that it was the Governor hirnsel~ who had authorised the issue of the notification, the State or the State Government could not be fixed with liability therefore, so as to be held guilty of disobedience of the order of injunction.

The submission of learned Counsel iB correct to this

extent that the process of making an order precedes and is different from the expression of it, and that while Art. 166(1) merely prescribes bow orders are to be made, the authentication referred to in Art. 166(2) indicates the manner in which previously made order should be embodied. As observed by the Privy Council in King Emperor v. Sibnath Banerji(')-with reference to the term "executive power" in Ch. 2 of Part 3 of the Government of India Act, 1935, (corresponding to Part VI, Ch. II of the Constitution) -" the term ' executive ' is used in the broader sense as including both decision.as to action and the carry-ing out of the decision".

Section 3(1) oi the Act confers the power of issuing

notifications under it, not on any officer but on the State Government e.s such though the exercise of that power would be governed by the rules of busine88 fro.med by the Governor under Art. 166(3) of the Constitution. But this does not afford any e.l!Sietanoe to the e.ppelle.nt. The order of Go:ve~nnient in the (1) (194,) L.R. 72 I.A. 141.

present ca.se is expressed to be ma.de " in the na.me of the Governor" a.nd is a.uthentica.ted as prescribed by Art. 166(2), and consequently "the va.lidity of the order or instrument cannot be ca.lied in question on the ground that it is not an order or instrument ma.de or executed by the Governor".

Authorities have, no doubt, la.id down that the

validity of the order may be questioned on grounds other than 'those set out in the Article, but we do riot have here a. case where the order of the Government is impugned on the ground that it was not passed by the proper authority. Its validity a.s an order of Government is not in controversy a.t a.II.

The only point canvassed is . whether it was a.n

order ma.de by the Governor or by someone duly authorised by him in that behalf within Art. 154(1). Even assuming that the order did not originate from the Go>ernor personally, it avails the State nothing because the Governor remains responsible for the action of his subordinates ta.ken in his name. In Emperor v. Sibnath Banerji ([1]), already referred to, Lord Tha.nkerton pointing out the distinction between delegation by virtue of statutory power therefor and the ca.se of the exercise of the Governor's power· by authorized subordinates under the terms of s. 49(1) of the Government of India. Act, 1935 (corresponding to Art. 154(1) ), said:

" Sub.a. 5 of s. 2 (of the Defence of India. Act,

1939) provides a. means of delegation in ·the strict sense of the word, namely, a. tra,nsfer of ·the power or duty to the officer or authority defined in the sub-section, with a. corresponding divestiture of the Governor of any responsibility in the matter, whereas under s. 49(1) of the Act of 1935, the Governor remains responsible for the action of his aubordina.tes ta.ken in his na.me." . ·

This la.st point a.lso is therefore without force a.nd has to be rejected.

Before oqncluding, we ~o~sider it proper to draw

attention to one aspect of tlie case. It is of the essence of t~e rule of law that every authority wit_hin the State .(1) (1945} L.R. 7• I.A. 241. . .

The State of Bihar v.

Rani Sonabali Kumati

Ayyangar ].

The Stale of Bihar v. Rani Sonabat K1ionari

including the Executive Government should. consider itself bound by and obey the Law. It is fundament. al to the system of polity that India has adopted and which is embodied in the Constitution that the Courts of the land are vested with the powers of "interpreting the law and of applying it to the facts of the cases which are properly brought before them. If any party to the proceedings considers that any Court has committed any error, in the understanding of the law or in its application, resort must be had to such review or appeals as the law provides. When once an order has been passed which the Court has jurisdiction to pass, it is the duty of all persons bound by it to obey the order so long as it stands, and it would tend to the subversion of orderly administration and ci vii Government, if parties could disobey orders with impunity. If such is the position as regard private parties, the duty to obey is all the more imperative in the case of Governmental authorities, otherwise there would be conflict between one branch of the State polity, viz., the executive and another branch-the Judicial. If disobedience could go unchecked, it would result in orders of Courts ceasing to have any mean-ing and judicial power itself becoming mockery. When the State Government obeys law, or gives effect to an order of Court passed against it, it is not doing anything which detracts from its dignity, but rather, invests the law and the Courts with the dignity which are their due, which enhances the prestige of the executive Government itself, in democratic set.up. We consider that on the facts of this case there was no justification, legal or otherwise for the State Government to have rushed the notifica-tion under s. 3(1), when its application to modify or vacate the order for interim injunction was p<-nding before the Subordinate Court. But more than that, when possibly by failure to appreciate their error, the notification had been published, and the propriety and legality of its action was brought up before the Court by an application under O. 39, r. 2(3), the attitude ta.ken up by the State Government and persisted in upto hearing before us, has been ~me which we can

hardly commend. If the Government had delibe-rately intended to disobey the order of the Court, because for any reason they considered it wrong, their conduct deserves the severest condemnation. If on the other hand it was merely case of inadvertence and arose out of error, nothing would have been lost and there was everything to be gained, even in the · matter of the prestige of the Government, by frank avowal of the error committed by them and an ex-pression of regret for the lapse, and it is lamentable that even at the stage of the hearing before us, there was no trace of any such attitude. The appeal fails and is dismissed with costs.

Appeal dismiMed.

The State of Bihar

Rani Sonabai Kumari

Ayyangar ].