1

Reportable

IN THE SUPREME COURT OF INDIA

CRIMINAL APPELLATE JURISDICTION

Criminal Appeal No 561 of 2022

(Arising out of SLP(Crl) No 1788 of 2022)

Mallada K Sri Ram .... Appellant(s)

Versus

The State of Telangana & Ors ....Respondent(s)

J U D G M E N T

Dr Dhananjaya Y Chandrachud, J

1 Leave granted.

2 This appeal arises from a judgment dated 25 January 2022 of a Division Bench of

the High Court for the State of Telangana dismissing the writ petition seeking a

writ of habeas corpus.

3 The brother

1

of the appellant worked as an employee with an entity by the name

of M/s Ixora Corporate Services

2

, Banjara Hills, Hyderabad. On 13 October 2020,

a complaint was lodged on behalf of the Company with the SHO, Banjara Hills,

alleging that K Mahendar, another employee at the Company, had opened a

salary account with the Federal Bank without authorization and in conspiracy

with the detenu collected an amount of Rs 85 lakhs from 450 job aspirants. It

1 “detenu”

2 “Company”

2

was alleged that the co-accused who was in charge of the HR Department at the

Company had, in collusion with the detenu, hatched a plan to collect money

from individuals by misrepresenting that they would be given a job at the

Company and collected money from aspirants for opening a bank account and

supplying uniforms.

4 The first FIR, FIR No 675 of 2020, was registered on 15 October 2020 at Police

Station Banjara Hills against K Mahendar (A-1) and the detenu (A-2) for offences

punishable under Sections 408, 420, 506 and 120B of the Indian Penal Code

1860

3

. On 17 December 2020, another FIR, FIR No 343 of 2020, was registered

at Police Station Chatrinaka against the detenu for offences punishable under

Sections 408, 420 and 120B IPC based on similar allegations at the behest of

another informant. The detenu was arrested, in the first case, on 17 December

2020 and, in the second case, on the execution of a PT warrant on 4 January

2021. In the first case, the detenu was released on bail on 8 January 2021 in

terms of an order dated 31 December 2020, subject to the condition that he

shall appear before the SHO, Police Station Banjara Hills on Mondays between

10.30 am and 5 pm till the filing of the charge-sheet. In the second case, the

detenu was released on bail by an order dated 11 January 2021, subject to the

condition that he shall appear before the SHO, Police Station Chatrinaka on

Sundays between 2 pm and 5 pm for a period of three months. The Court has

been apprised of the fact that the charge-sheet has been submitted in the first

case.

5 An order of detention was passed against the detenu on 19 May 2021 under the

provisions of Section 3(2) of the Telangana Prevention of Dangerous Activities of

Bootleggers, Dacoits, Drug-Offenders, Goondas, Immoral Traffic Offenders, Land

Grabbers, Spurious Seed Offenders, Insecticide Offenders, Fertiliser Offenders,

3 “IPC”

3

Food Adulteration Offenders, Fake Document Offenders, Scheduled Commodities

Offenders, Forest Offenders, Gaming Offenders, Sexual Offenders, Explosive

Substances Offenders, Arms Offenders, Cyber Crime Offenders and White Collar

or Financial Offenders Act 1986

4

. The order of detention was challenged before

the High Court in a petition under Article 226 of the Constitution. The Division

Bench of the High Court dismissed the petition by its impugned judgment and

order dated 25 January 2022.

6 Mr A Sirajudeen, senior counsel appearing on behalf of the appellant, submits

that there is ex facie, non-application of mind by the detaining authority while

passing the order of detention. Senior counsel submitted that this would be

evident from the fact that the detenu had been granted bail almost five months

prior to the order of detention. The grant of bail was subject to the condition that

the detenu would report to the SHO of the police station concerned, in the first

case, until the charge-sheet was filed and, in the second case, for a period of

three months on stipulated days of the week. In the first case, the charge-sheet

was submitted prior to the date of the order of detention on 19 May 2021. On

the above premises, it has been submitted that the very basis of the order of

detention stands vitiated since it will be apparent from the condition which was

imposed by the Court while granting bail that the detenu was required to attend

the police station concerned throughout the stipulated period and even that

period came to an end by the time the order of detention was passed. Moreover,

whereas the order of detention has proceeded on the basis that the acts of the

detenu had created a situation leading to a breach of public order in the case, on

the other hand, it is evident from the counter affidavit which has been filed by

the Commissioner before the High Court that there was only an apprehension

that there would be a likelihood of a breach of public order in the future. It was

further submitted that it is evident from the recording of facts that the order of

4 “Telangana Act of 1986”

4

detention was passed nearly seven and five months after both the criminal cases

were instituted. The detention was, it is urged, based on stale material. It has

been argued that the ordinary course of criminal law would be sufficient to deal

with the alleged violation and on the above facts, the detention of the detenu is

based on no cogent material whatsoever.

7 Mr Mohith Rao, counsel appearing on behalf of the respondents, has submitted

that the nature of the acts which are attributed to the detenu are a part of a

series of organized activities involving white collar crime where job aspirants

were allured into parting with their money on the promise that they would get

employment in the future. Hence, it has been urged that the High Court has

rightly held that the order of detention should not be interfered with.

8 At the outset, it is necessary to set out the relevant provisions of the Telangana

Act of 1986:

“2. Definitions.—In this Act, unless the context otherwise

requires,—

(a) “acting in any manner prejudicial to the maintenance

of public order” means when a bootlegger, a dacoit, a drug-

offender, a goonda, an immoral traffic offender, Land-Grabber, a

Spurious Seed Offender, an Insecticide Offender, a Fertiliser

Offender, a Food Adulteration Offender, a Fake Document

Offender, a Scheduled Commodities Offender, a Forest Offender,

a Gaming Offender, a Sexual Offender, an Explosive Substances

Offender, an Arms Offender, a Cyber Crime Offender and a

White Collar or Financial Offender is engaged or is making

preparations for engaging, in any of his activities as such, which

affect adversely, or are likely to affect adversely, the

maintenance of public order:

Explanation.—For the purpose of this clause public order shall be

deemed to have been affected adversely or shall be deemed

likely to be affected adversely inter alia, if any of the activities of

any of the persons referred to in this clause directly, or

indirectly, is causing or calculated to cause any harm, danger or

alarm or a feeling of insecurity among the general public or any

section thereof or a grave widespread danger to life or public

health;

***

(x) “White collar offender” or “Financial Offender” means a

person who commits or abets the commission of offences

5

punishable under the Telangana Protection of Depositors of

Financial Establishment Act, 1999 (Act 17 of 1999) or under

Sections 406 to 409 or 417 to 420 or under Chapter XVIII of the

Indian Penal Code, 1860.

3. Power to make orders detaining certain persons. —(1)

The Government may, if satisfied with respect to any

bootlegger, dacoit, drug-offender, goonda, immoral traffic

offender, Land-Grabber, Spurious Seed Offender, Insecticide

Offender, Fertilizer Offender, Food Adulteration Offender, Fake

Document Offender, Scheduled Commodities Offender, Forest

Offender, Gaming Offender, Sexual Offender, Explosive

Substances Offender, Arms Offender, Cyber Crime Offender and

White Collar or Financial Offender that with a view to preventing

him from acting in any manner prejudicial to the maintenance of

public order, it is necessary so to do, make an order directing

that such person be detained.

(2) If, having regard to the circumstances prevailing or likely to

prevail in any area within the local limits of the jurisdiction of a

District Magistrate or a Commissioner of Police, the Government

are satisfied that it is necessary so to do, they may, by order in

writing, direct that during such period as may be specified in the

order, such District Magistrate or Commissioner of Police may

also, if satisfied as provided in sub-section (1), exercise the

powers conferred by the said sub-section:

Provided that the period specified in the order made by the

Government under this sub-section shall not in the first

instance, exceed three months, but the Government may, if

satisfied as aforesaid that it is necessary so to do, amend such

order to extend such period from time to time by any period not

exceeding three months at any one time.

***

13. Maximum period of detention.— The maximum period

for which any person may be detained, in pursuance of any

detention order made under this Act which has been confirmed

under Section 12, shall be twelve months from the date of

detention.”

9 The order of detention dated 19 May 2021 notes that that the detenu is a ‘white-

collar offender’ under Section 2(x) of the Telangana Act of 1986 whose offence of

cheating gullible job aspirants has been causing “large scale fear and panic

among the gullible unemployed job aspirants/youth and thus he has been acting

in a manner prejudicial to the maintenance of public order apart from disturbing

the peace, tranquillity and social harmony in the society”. These alleged

6

offences were noted as the grounds for his detention, in addition to the

apprehension that “he may violate the bail conditions and there is an imminent

possibility of his committing similar offences, which would be detrimental to

public order, unless he is prevented from doing so by an appropriate order of

detention”.

10 The detenu was released on bail on 8 January 2021 by the Additional Chief

Metropolitan Magistrate, Hyderabad subject to the condition that he would have

to report to the SHO of the Police Station concerned on a stipulated day every

week till the charge sheet was filed. The order granting bail to the detenu in the

second case provided that the detenu was subject to the condition of appearing

once every week on Sunday before the Police Station concerned for a period of

three months with effect from 11 January 2021. As a consequence, the

conditions attached to the orders granting bail stood worked out in the month of

April 2021. The order of detention dated 19 May 2021 has failed to advert to

these material aspects and suffers from a non-application of mind. The basis on

which the preventive detention of the detenu has been invoked is that the

detenu has cheated aspirants for jobs on the basis of fake documents and that,

as a consequence, 450 aspirants were duped, from whom an amount of Rs 85

lakhs had been collected. The order of detention records that the detenu had

moved bail applications in two cases in which he was in judicial custody and that

the Magistrate had granted him conditional bail. It was apprehended that he

may violate the bail conditions while committing similar offences. It is pertinent

to note that no application for cancellation of bail was moved by the

investigating authorities for violation of the bail conditions.

11 At this stage, it would also be material to note that the first case was registered

on 15 October 2020, while the second case was registered on 17 December

2020. Bail was granted on 8 January 2021. The order of detention was passed on

7

19 May 2021 and was executed on 26 June 2021. The order of detention was

passed nearly seven months after the registration of the first FIR and about five

months after the registration of the second FIR. The order of detention is

evidently based on stale material and demonstrates non-application of mind on

the part of the detaining authority to the fact that the conditions which were

imposed on the detenu, while granting bail, were duly fulfilled and there was no

incidence of a further violation. In the counter affidavit which was filed before

the High Court, the detaining authority expressed only an apprehension that the

acts on the basis of which the FIRs were registered were likely to be repeated in

the future, thereby giving rise to an apprehension of a breach of public order.

The High Court has failed to probe the existence of a live and proximate link

between the past cases and the need to detain the detenu after seven months of

registration of the first FIR and nearly five months of securing bail.

12 The distinction between a disturbance to law and order and a disturbance to

public order has been clearly settled by a Constitution Bench in Ram Manohar

Lohia v. State of Bihar

5

. The Court has held that every disorder does not meet

the threshold of a disturbance to public order, unless it affects the community at

large. The Constitution Bench held:

“51. We have here a case of detention under Rule 30 of the

Defence of India Rules which permits apprehension and

detention of a person likely to act in a manner prejudicial to the

maintenance of public order. It follows that if such a person is

not detained public disorder is the apprehended result. Disorder

is no doubt prevented by the maintenance of law and order also

but disorder is a broad spectrum which includes at one end

small disturbances and at the other the most serious and

cataclysmic happenings. Does the expression “public

order” take in every kind of disorders or only some of

them? The answer to this serves to distinguish “public

order” from “law and order” because the latter

undoubtedly takes in all of them. Public order if

disturbed, must lead to public disorder. Every breach of

the peace does not lead to public disorder. When two

5 AIR 1966 SC 740

8

drunkards quarrel and fight there is disorder but not

public disorder. They can be dealt with under the powers

to maintain law and order but cannot be detained on the

ground that they were disturbing public order. Suppose

that the two fighters were of rival communities and one

of them tried to raise communal passions. The problem

is still one of law and order but it raises the

apprehension of public disorder. Other examples can be

imagined. The contravention of law always affects order

but before if can be said to affect public order, it must

affect the community or the public at large. A mere

disturbance of law and order leading to disorder is thus

not necessarily sufficient for action under the Defence of

India Act but disturbances which subvert the public order are. A

District Magistrate is entitled to take action under Rule 30(1)(b)

to prevent subversion of public order but not in aid of

maintenance of law and order under ordinary circumstances.

52. It will thus appear that just as “public order” in the

rulings of this Court (earlier cited) was said to

comprehend disorders of less gravity than those

affecting “security of State”, “law and order” also

comprehends disorders of less gravity than those

affecting “public order”. One has to imagine three

concentric circles. Law and order represents the largest

circle within which is the next circle representing public

order and the smallest circle represents security of

State. It is then easy to see that an act may affect law

and order but not public order just as an act may affect

public order but not security of the State. By using the

expression “maintenance of law and order” the District

Magistrate was widening his own field of action and was adding

a clause to the Defence of India Rules.”

(emphasis supplied )

13 In Banka Sneha Sheela v. State of Telangana

6

, a two-judge Bench of this

Court examined a similar factual situation of an alleged offence of cheating

gullible persons as a ground for preventive detention under the Telangana Act of

1986. The Court held that while such an apprehension may be a ground for

considering the cancellation of bail to an accused, it cannot meet the standards

prescribed for preventive detention unless there is a demonstrable threat to the

maintenance of public order. The Court held:

“9. …learned counsel appearing on behalf of the petitioner has

raised three points before us. First and foremost, he said there is

6 (2021) 9 SCC 415

9

no proximate or live connection between the acts complained of

and the date of the detention order, as the last act that was

complained of, which is discernible from the first 3 FIRs (FIRs

dated 12-12-2019, 12-12-2019 and 14-12-2019), was in

December 2019 whereas the detention order was passed 9

months later on 28-9-2020. He then argued, without conceding,

that at best only a “law and order” problem if at all would arise

on the facts of these cases and not a “public order” problem,

and referred to certain judgments of this Court to buttress the

same. He also argued that the detention order was totally

perverse in that it was passed only because anticipatory

bail/bail applications were granted. The correct course of action

would have been for the State to move to cancel the bail that

has been granted if any further untoward incident were to take

place.

12. While it cannot seriously be disputed that the detenu may

be a “white collar offender” as defined under Section 2(x) of the

Telangana Prevention of Dangerous Activities Act, yet a

preventive detention order can only be passed if his activities

adversely affect or are likely to adversely affect the

maintenance of public order. “Public order” is defined in the

Explanation to Section 2(a) of the Telangana Prevention of

Dangerous Activities Act to be a harm, danger or alarm or a

feeling of insecurity among the general public or any section

thereof or a grave widespread danger to life or public health.

15. There can be no doubt that what is alleged in the five FIRs

pertain to the realm of “law and order” in that various acts of

cheating are ascribed to the detenu which are punishable under

the three sections of the Penal Code set out in the five FIRs. A

close reading of the detention order would make it clear that the

reason for the said order is not any apprehension of widespread

public harm, danger or alarm but is only because the detenu

was successful in obtaining anticipatory bail/bail from the courts

in each of the five FIRs. If a person is granted anticipatory

bail/bail wrongly, there are well-known remedies in the ordinary

law to take care of the situation. The State can always appeal

against the bail order granted and/or apply for cancellation of

bail. The mere successful obtaining of anticipatory bail/bail

orders being the real ground for detaining the detenu, there can

be no doubt that the harm, danger or alarm or feeling of

insecurity among the general public spoken of in Section 2(a) of

the Telangana Prevention of Dangerous Activities Act is make-

believe and totally absent in the facts of the present case.

32. On the facts of this case, as has been pointed out by us, it is

clear that at the highest, a possible apprehension of breach of

law and order can be said to be made out if it is apprehended

that the detenu, if set free, will continue to cheat gullible

persons. This may be a good ground to appeal against the bail

orders granted and/or to cancel bail but certainly cannot provide

the springboard to move under a preventive detention statute.

We, therefore, quash the detention order on this ground….”

10

14 In Sama Aruna v. State of Telangana

7

, a two-judge Bench of this Court

examined a case where stale materials were relied upon by the detaining

authority under the Telangana Act of 1986. The order of detention pertained to

incidents which had occurred between nine and fourteen years earlier in relation

to offences involving a criminal conspiracy, cheating, kidnapping and extortion.

This Court held that a preventive detention order that is passed without

examining a live and proximate link between the event and the detention is

tantamount to punishment without trial. The Court held:

“17. We are, therefore, satisfied that the aforesaid detention

order was passed on grounds which are stale and which could

not have been considered as relevant for arriving at the

subjective satisfaction that the detenu must be detained. The

detention order must be based on a reasonable prognosis of the

future behaviour of a person based on his past conduct in light

of the surrounding circumstances. The live and proximate link

that must exist between the past conduct of a person and the

imperative need to detain him must be taken to have been

snapped in this case. A detention order which is founded on

stale incidents, must be regarded as an order of punishment for

a crime, passed without a trial, though purporting to be an order

of preventive detention. The essential concept of preventive

detention is that the detention of a person is not to punish him

for something he has done but to prevent him from doing it.

See G. Reddeiah v. State of A.P.[G. Reddeiah v. State of A.P.,

(2012) 2 SCC 389 : (2012) 1 SCC (Cri) 881] and P.U.

Iqbalv. Union of India [P.U. Iqbal v. Union of India, (1992) 1 SCC

434 : 1992 SCC (Cri) 184].”

15 A mere apprehension of a breach of law and order is not sufficient to meet the

standard of adversely affecting the “maintenance of public order”. In this case,

the apprehension of a disturbance to public order owing to a crime that was

reported over seven months prior to the detention order has no basis in fact. The

apprehension of an adverse impact to public order is a mere surmise of the

detaining authority, especially when there have been no reports of unrest since

7 (2018) 12 SCC 150

11

the detenu was released on bail on 8 January 2021 and detained with effect from

26 June 2021. The nature of the allegations against the detenu are grave.

However, the personal liberty of an accused cannot be sacrificed on the altar of

preventive detention merely because a person is implicated in a criminal

proceeding. The powers of preventive detention are exceptional and even

draconian. Tracing their origin to the colonial era, they have been continued with

strict constitutional safeguards against abuse. Article 22 of the Constitution was

specifically inserted and extensively debated in the Constituent Assembly to

ensure that the exceptional powers of preventive detention do not devolve into a

draconian and arbitrary exercise of state authority. The case at hand is a clear

example of non-application of mind to material circumstances having a bearing

on the subjective satisfaction of the detaining authority. The two FIRs which were

registered against the detenu are capable of being dealt by the ordinary course

of criminal law.

16 We also note that after notice was issued by this Court, the respondents have

been served. No counter affidavit has been filed. We have declined to allow any

further adjournment for filing a counter affidavit since a detailed and

comprehensive counter affidavit which was filed before the High Court is already

on the record and the present proceedings have been argued on the basis of the

material as it stood before the High Court. The liberty of the citizen cannot be

left to the lethargy of and the delays on the part of the state. Further, in the

counter affidavit filed before the High Court, the respondents have argued that

the detenu must move the Advisory Board and the writ petition has been filed in

a premature fashion. However, in Arnab Manoranjan Goswami v. State of

Maharashtra

8

, a two-judge Bench of this Court has held that while the ordinary

procedural hierarchy among courts must be respected, the High Court’s writ

jurisdiction under Article 226 extends to protecting the personal liberty of

8 (2021) 2 SCC 427

12

persons who have demonstrated that the instrumentality of the State is being

weaponised for using the force of criminal law:

“68. Mr Kapil Sibal, Mr Amit Desai and Mr Chander Uday Singh

are undoubtedly right in submitting that the procedural

hierarchy of courts in matters concerning the grant of bail needs

to be respected. However, there was a failure of the High Court

to discharge its adjudicatory function at two levels—first in

declining to evaluate prima facie at the interim stage in a

petition for quashing the FIR as to whether an arguable case has

been made out, and secondly, in declining interim bail, as a

consequence of its failure to render a prima facie opinion on the

first. The High Court did have the power to protect the citizen by

an interim order in a petition invoking Article 226. Where the

High Court has failed to do so, this Court would be abdicating its

role and functions as a constitutional court if it refuses to

interfere, despite the parameters for such interference being

met. The doors of this Court cannot be closed to a citizen who is

able to establish prima facie that the instrumentality of the

State is being weaponised for using the force of criminal law.

Our courts must ensure that they continue to remain the first

line of defence against the deprivation of the liberty of citizens.

Deprivation of liberty even for a single day is one day too many.

We must always be mindful of the deeper systemic implications

of our decisions.”

17 It is also relevant to note, that in the last five years, this Court has quashed over

five detention orders under the Telangana Act of 1986 for inter alia incorrectly

applying the standard for maintenance of public order

9

and relying on stale

materials while passing the orders of detention

10

. At least ten detention orders

under the Telangana Act of 1986 have been set aside by the High Court of

Telangana in the last one year itself. These numbers evince a callous exercise of

the exceptional power of preventive detention by the detaining authorities and

the respondent-state. We direct the respondents to take stock of challenges to

detention orders pending before the Advisory Board, High Court and Supreme

Court and evaluate the fairness of the detention order against lawful standards.

9 V Shantha v. State of Telangana, (2017) 14 SCC 577; Banka Sneha Sheela v. State of

Telangana, (2021) 9 SCC 415;

10 Sama Aruna v. State of Telangana, (2018) 12 SCC 150; Khaja Bilal Ahmed v. State of

Telangana, (2020) 13 SCC 632

13

18 We accordingly allow the appeal and set aside the impugned judgment of the

High Court dated 25 January 2022. The order of detention which has been

passed against the detenu on 19 May 2021 shall accordingly stand quashed and

set aside.

19 Pending application(s), if any, stands disposed of.

…..…..…....…........……………….…........J.

[Dr Dhananjaya Y Chandrachud]

…..…..…....…........……………….…........J.

[Surya Kant]

New Delhi;

April 04, 2022

-S-

14

ITEM NO.25 COURT NO.4 SECTION II

S U P R E M E C O U R T O F I N D I A

RECORD OF PROCEEDINGS

Petition(s) for Special Leave to Appeal (Crl.) No(s).1788/2022

(Arising out of impugned final judgment and order dated 25-01-2022

in WP No. 17120/2021 passed by the High Court for the State of

Telangana at Hyderabad)

MALLADA K. SRI RAM Petitioner(s)

VERSUS

THE STATE OF TELANGANA & ORS. Respondent(s)

(FOR ADMISSION and I.R.)

Date : 04-04-2022 This petition was called on for hearing today.

CORAM : HON'BLE DR. JUSTICE D.Y. CHANDRACHUD

HON'BLE MR. JUSTICE SURYA KANT

For Petitioner(s) Mr. A. Sirajudeen, Sr. Adv.

Mr. A.V.S. Raju, Adv.

Mr. Ch. Leela Sarveswar, Adv.

Mr. P. Prabhakar, Adv.

Mr. R. Ravi, Adv.

Mr. Somanatha Padhan, AOR

For Respondent(s) Mr. P. Mohith Rao, Adv.

Mr. S. Udaya Kumar Sagar, AOR

UPON hearing the counsel the Court made the following

O R D E R

1 Leave granted.

2 In terms of the signed reportable judgment, the appeal is allowed. The order of

detention which has been passed against the detenu on 19 May 2021 shall

accordingly stand quashed and set aside.

3 Pending application, if any, stands disposed of.

(SANJAY KUMAR-I) (SAROJ KUMARI GAUR)

AR-CUM-PS COURT MASTER

(Signed reportable judgment is placed on the file)