Citation : 2021 Latest Caselaw 13038 Bom
Judgement Date : 14 September, 2021
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IN THE HIGH COURT OF JUDICATURE AT BOMBAY
BENCH AT AURANGABAD
CRIMINAL WRIT PETITION NO. 242 OF 2021
Mohammad Imran s/o Mohammad Latif,
Age : 20 years, Occu.: Student,
R/o.: Bari Colony, Galli No.7,
Aurangabad. ... PETITIONER
VERSUS
1. The Police Commissioner,
Aurangabad.
2. The Superintendent,
Central Prison,
Harsool, Aurangabad.
3. The State of Maharashtra. ... RESPONDENTS
....
Advocate for the Petitioner : Mr. M. A. Latif
APP for the Respondents : Mr. M. M. Neralikar
....
CORAM: SUNIL P. DESHMUKH &
N. B. SURYAWANSHI, JJ.
RESERVED ON : 01/09/2021.
PRONOUNCED ON : 14/09/2021.
JUDGMENT : (PER : N. B. SURYAWANSHI, J.) :
Rule. Rule made returnable forthwith. With the consent of
the parties, petition is taken up for fnal hearing at the admission
stage.
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2. This petition takes exception to the order dated 23/12/2019
passed by the Commissioner of Police, Aurangabad (respondent
no.1) thereby detaining the petitioner under Section 3 of
Maharashtra Prevention of Dangerous Activities of Slumlords,
Bootleggers, Drug-Ofenders, Dangerous Persons, Video Pirates,
Sand Smugglers and Persons Engaged in Black Marketing of
Essential Commodities Act, 1981 (for short 'MPDA Act').
3. Heard learned advocate for the petitioner and the learned
Assistant Public Prosecutor for the State.
4. The tenability of detention order is questioned on the
following grounds :
I) There is no period of detention specifed in the
impugned order, same is unsustainable;
II) The grounds of detention were not communicated to
the petitioner in his mother tongue ( Urdu), the impugned order is
vitiated;
III) There is delay in execution of the detention order;
IV) The petitioner does not fall within the defnition of
dangerous person and there was no need to invoke provisions of
the MPDA Act against him.
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V) There is unexplained delay in passing the impugned
order.
VI) No subjective satisfaction of the detaining authority is
reflected in the impugned order.
5. The learned advocate for the petitioner in support of the
above grounds, strenuously urged that since no period of
detention is specifed in the impugned order, the impugned order
is vitiated on that ground alone. The learned advocate for the
petitioner by relying upon the school leaving certifcate of the
petitioner submitted that he has taken education in Urdu
language and therefore, the grounds of detention ought to have
been explained to the petitioner in Urdu language. He further
submitted that since the grounds of detention were not explained
to the petitioner in his mother tongue (i.e. in Urdu), the impugned
order is vitiated for violation of Article 22(5) of the Constitution of
India. He submits, thus, the impugned order is liable to be
quashed and set aside. In support of these submissions he relied
upon the decisions in Mrs. Nafsa Khalifa Ghanem vs. Union
of India and others, 1982 (1) SCC 422 and Prem Chand Vs.
Union of India and others, reported in AIR 1981 SC 613.
He further submitted that there is unexplained delay in executing
the detention order. The impugned order was served on the
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petitioner after a delay of 11 months and 23 days. No steps were
taken to search and arrest the petitioner. Further submission is
that Section 7 of the MPDA Act authorises the detaining authority
to exercise powers of issuance of proclamation under Section 82
of Cr.P.C. in respect of absconding accused. However, these
powers were not exercised by the detaining authority. On the
contrary, proposal was forwarded to learned Judicial Magistrate
First Class, who has issued proclamation under Section 82 of
Cr.P.C. On this ground also the impugned order is vitiated.
6. The learned advocate further assailed the in-camera
statements. According to him, the verifcation of in-camera
statements was not properly done. No date is mentioned on
which the witnesses, whose in-camera statements are recorded,
were threatened by the detenue. He submitted that the
verifcation ought to be done by independent agency like CID,
Crime Branch or by Tahsildar / Executive Magistrate. By relying
upon Prem Chand (supra) he submitted that it is not permissible
to rely upon in-camera statements. The learned advocate further
submitted that there is unexplained delay in passing the
impugned order. The last ofence is registered against the
petitioner in September, 2019 and the detention order is passed
in December, 2019. According to him, the proposal of detention
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was submitted on 02/12/2019 and the impugned order is passed
on 23/12/2019. Thus, there is unexplained delay of 21 days. The
learned advocate further submitted that there is no subjective
satisfaction of detaining authority while passing the impugned
order. He urged that though it is mentioned in the order that the
witnesses are not coming forward to depose against the
petitioner, till today no trial against the petitioner has
commenced. Hence, there is no question of witnesses not
coming forward. He further submitted that till date no action
under Section 107 of Cr.P.C. is initiated against the petitioner. So
also there is no action under the Bombay Police Act. According to
him, simultaneously two proceedings are initiated against the
petitioner one under Bombay Police Act and another the
proceedings in question under MPDA Act. According to the
learned advocate this amount to double jeopardy.
7. The learned advocate further submitted that the petitioner
cannot be termed as a dangerous person. By referring to the
defnition of dangerous person in Section 2 (b-1) he submitted
that considering the ofences registered against the petitioner, he
cannot be termed as a dangerous person. By relying upon the
decision in Vijay Narain Singh vs. State of Bihar and others,
AIR 1984 SC 1334, he submitted that no similar ofences are
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committed by the petitioner. The ofences registered against the
petitioner are individual ofences and are not against the public at
large. The activities of the petitioner have not caused any
prejudice to public or they have not caused any public nuisance.
In support of his submission (public order and law and order), the
learned advocate relied on Vinod Ramjiyawan Rajbhar vs. A.
N. Roy, Commissioner of Police and others, 2006(2)
Mh.L.J. (Cri.) 411. By relying upon Hemchand Somnath
Gupta vs. D. Sivanandhan, Commissioner of Police and
others, 2006(1)Mh.L.J.(Cri.)786 he urged that the petitioner
does not fall in the defnition of habitual ofender and dangerous
person. He further submitted that though the impugned order
refers to that the "petitioner and his associates" there is
whatsoever no action taken against the so called associates of
the petitioner. Even their names are not disclosed in the
impugned order. He, therefore, submitted that the detaining
authority has abused the process of law by passing the impugned
order. In support of his submission he relied on Nasir Abdul
Farid Khan vs. D. N. Jadhav, Commissioner of Police,
2008(2) Bom.C.R. (Cri) 312.
8. A compilation of following citations was placed on record by
the learned counsel for the petitioner :
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1) AIR 2017 SC 3770;
2) 1980 D.G.L.S. S.C. 281;
3) ALL M.R. (Cri.) 2014, 4655;
4) ALL M.R. (Cri.) 2003, 1450;
5) ALL M.R. (Cri.) 2008, 1259;
6) ALL M.R. (Cri.) 2000, 1773;
7) A.I.R. 1996 S.C. 70;
8) A.I.R. 1981 S.C. 613;
9) ALL M.R. (Cri.), 2018, 2512;
10) ALL M.R. (Cri.), 2000, 773;
11) ALL M.R. (Cri.), 2001, 846;
12) ALL M.R. (Cri.), 2013, 3870;
13) ALL M.R. (Cri.), 2008, 1259;
14) ALL M.R. (Cri.), 1997, 1270;
15) Criminal Writ Petition No. 193 of 2017;
16) A.I.R. 1984 S.C. 1334;
17) 2006 (1) Mh.L.J. 786 and
18) 2006 (2) Mh.L.J. 411.
9. Per contra the learned APP submitted that the detention
proposal was initiated on 02/12/2019. On 13/12/2019 the in-
camera statements were verifed by the Deputy Commissioner of
Police and on 23/12/2019 the impugned order was passed. In
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terms of Section 3(3) of MPDA Act forthwith report was submitted
and the detention order was approved by the State Government
on 30/12/2019. The detention order could not be served on the
petitioner earlier as the petitioner was absconding. The eforts to
trace him were not successful. It is only when the petitioner was
arrested in Neknoor Police Station in C.R. No. 278 of 2020, the
order of detention could be served on him, after taking
permission of the learned Judicial Magistrate First Class. So the
delay cannot be attributed to the detaining authority. The
learned APP by relying upon the record made available submitted
that the petitioner has given statement before the
Superintendent of Jail that he has received the relevant papers on
15/12/2020, that he is educated up to 10 th standard at Rajiv
Gandhi Urdu High School, Baijipura, Aurangabad and he is well
conversant with Urdu, Hindi, Marathi and English languages. He
has further stated that documents of detention be given to him in
Marathi language and his father Advocate Mohammad Latif be
informed about his detention. The learned APP placed reliance on
the certifcate, counter signed by the Jailer, Aurangabad Central
Prison, which is to the efect that the grounds of detention and
other relevant documents from page no. 1 to 310 were served on
the petitioner and the grounds were explained to the petitioner in
Marathi, Hindi and English language and he agreed that he has no
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complaint in that behalf. Learned APP further submitted that on
02/12/2019 the proposal was initiated and the detention order
was passed on 23/12/2019. It is therefore clear that the order
was passed within reasonable time and there is no delay. He
further submitted that there is live link between the last ofence
committed by the petitioner and the detention order. He
submitted that the delay in execution of the detention order is
because the petitioner was absconding and as such the delay is
only ostensible and not real. In spite of taking all the possible
eforts to serve and execute the detention order on the petitioner,
it could not be served on him because of his abscondence, for the
reasons beyond the control of the detaining authority. Learned
APP submitted that the verifcation of in-camera statements is
done in terms of the guidelines of verifcation dated 19 th
September, 2002. As per the guidelines the Deputy
Commissioner of Police is authorized person to record the
verifcation. He further submitted that though externment
proceedings were initiated against the petitioner during the
pendency of those proceedings the petitioner committed crime,
therefore, he can be termed as dangerous person and his
detention was necessary. By relying upon the detention order he
submitted that the detention order reflects subjective satisfaction
of the detaining authority. In support of his submissions the
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learned APP relied upon i) T. Devaki vs. Government of Tamil
Nadu and others, (1990) 2 SCC 456, ii) Abdul Nasar Adam
Ismail vs. State of Maharashtra and others, AIR 2013 SC
1376, iii) Subhash Popatlal Dave vs. Union of India and
another, (2014) 1 SCC 280 and iv) Vinod K. Chawala vs.
Union of India and Others, AIR 2006 SC 2864.
10. Heard the learned advocate for the petitioner and the
learned Assistant Public Prosecutor at length. We have gone
through the grounds raised in the petition, the annexures of the
petition and the record made available by the learned APP.
11. The impugned order is passed by the Commissioner on
23/12/2019 under Section 3(1) of MPDA Act. After following
prescribed procedure and after obtaining opinion of the Advisory
Board appointed under the MPDA Act, the State Government on
21st January, 2021 confrmed the detention order by exercising
powers conferred by Sub-section 1 of Section 12 of the MPDA Act
thereby directing detention of the petitioner for a period of one
year from the date of detention. In T. Devaki (supra) the Hon'ble
Supreme Court has held that Section 13 of the MPDA Act
prescribes the maximum period of detention shall be 12 months
from the date of detention. The Act nowhere requires the
11 J WP 242-21
detaining authority to specify the period for which the detenue
was required to be detained. It was thus, held that the impugned
order of detention was not rendered illegal on account of the
detaining authority's failure to specify the period of detention in
the order. The Constitutional Bench of Apex Court while
considering the detention order made under Section 3 of the
Preventive Detention Act, 1950 held that non-specifcation of any
defnite period of detention order made under Section 3 of the Act
was not a material omission rendering the order invalid. We,
therefore fnd no force in the ground of the petitioner that for
non-specifcation of the period of detention, the impugned order
is vitiated.
12. The petitioner has placed on record his leaving certifcate
(annexure 'C') issued by Rajiv Gandhi Urdu High School, Baijpura,
Aurangabad. As per the leaving certifcate, the petitioner has
taken education up to 10 th standard and he failed in Board Exam.
In the statement dated 15/12/2020 the petitioner has
categorically admitted that during his education he has learnt
Urdu, Hindi, Marathi and English languages. He can read and
write in those languages and he clearly understands those
languages. Admittedly, the petitioner is living in Maharashtra
since his birth. The petitioner admittedly signs in English. Merely
12 J WP 242-21
because he has taken education in Urdu school, it does not mean
that he does not understand Hindi and Marathi languages. The
petitioner has further stated in the said statement that
information about his detention should be given to his father M. A.
Latif. He has further stated that the grounds of detention and
other documents be given to him in Marathi language. The
detention order is explained to him and he has no complaint in
that regard. We are therefore unable to accept the ground raised
by the petitioner that since his mother tongue is Urdu and he
ought to have been supplied the documents in Urdu language, as
the same is not done there is violation of Article 22(5) of the
Constitution of India.
13. In Mrs. Nafsa Khalif Ghanem (supra) the detenue knew
Arabic language only and the grounds were explained to him in
Hindi, the Hon'ble Apex Court, therefore, held that the detention
of the petitioner therein was illegal. In the present case since the
petitioner has taken education in Urdu school and as he is well
conversant with Urdu, Hindi, Marathi and English languages the
said citation would not help the petitioner's case.
14. In Abubakar @ Bagla Rais Ansari vs. The
Commissioner of Police and others, 2014 ALL MR (Cri)
13 J WP 242-21
4655, Grounds of the detention were served on the detenue
therein in English and its Hindi translation was supplied to him,
which the detenue could not read. The Apex Court, therefore,
held that it resulted in violation of detenue's right under Article
22(5) of the Constitution of India. In the instant case since, the
petitioner has admitted to be well conversant with Urdu, Hindi,
Marathi and English languages and all the grounds of detention
and relevant documents were served on the petitioner on
15/12/2020 and the same were handed over by the petitioner to
his father namely Advocate M. A. Latif, we fnd that there is no
violation of Article 22(5) in the present case as claimed by the
petitioner.
15. We fnd no merit in the ground of the petitioner that there is
delay in execution of the impugned detention order. The order of
detention is passed on 23/12/2019. The said order was sought to
be executed by visiting the detenue's house on 26/12/2019.
However, the relatives of the detenue obstructed the police staf
and helped the detenue to abscond. An ofence at CR No. 465 of
2019 under section 225 read with Section 34 of IPC is registered
in that behalf against the mother and relatives of the detenue. In
spite of possible eforts to locate the detenue he could not be
traced. Ultimately, a proclamation order under Section 82 of
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Cr.P.C. was issued by the learned Judicial Magistrate First Class on
14/09/2020. Merely because the detaining authority did not
exercise its powers of issuing proclamation under Section 7, that
itself would not render the proclamation illegal. Fact remains that
proclamation under Section 82 was published against the
petitioner.
16. The petitioner and his three associates were arrested on
08/12/2020 in a robbery case by police ofcials of Neknoor Police
Station, District Beed in C.R. No. 278 of 2020 for the ofences
punishable under Sections 394, 341, read with 34 of IPC and
under Section 4 and 25 of the Arms Act. During the course of
investigation of that crime, it was revealed that two motorcycles
which were used in the crime were stolen from Kalaburgi City,
Karnataka. Therefore, ofence at C.R. No. 89 of 2020 under
Section 379 of IPC was registered at Police Station Roja, Kalaburgi
City and C.R. No. 157 of 2020 under Section 379 of IPC was
registered at Police Station University, Kalaburgi City. Since the
petitioner was in judicial custody, grounds of detention and other
relevant papers were served on the petitioner on 15/12/2020
after obtaining prior permission of the learned Judicial Magistrate,
First Class, Court No.4, Beed. The petitioner was detained in
Aurangabad Central Prison and this fact was intimated to his
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father Advocate Mr. M. A. Latif on 15/12/2020. The petitioner
therefore, cannot take advantage of his own act of absconding
and then claiming that there is delay in execution of the
detention order and therefore, the detention order is liable to be
set aside on that ground.
17. In Vilas Siddhu Jadhav vs. M. N. Singh, 2003 ALL MR
(Cri) 1450, there was delay of 21 days in execution of the
detention order, which was not satisfactorily explained. Therefore,
this Court held that delay was fatal to the detention order. Such
are not the facts in the present case.
18. In Smt. Farzana Salam Nakhawa vs. Shri R. H.
Mendonca and others, 2000 ALL MR(Cri.) 1773, there was a
delay of 2 months and 5 days in execution of the detention order.
Though the detenue was present in the court, the detention order
was not served on him. Therefore, this court quashed the
detention order. In the instant case the grounds of the detention
were served on the petitioner when he was arrested by Neknoor
police authorities. Therefore, there cannot be said to be any delay
in serving the order on the petitioner. In spite of possible eforts,
the petitioner could not be found and arrested. Therefore, as the
petitioner was available after his arrest in crime of Neknoor Police
16 J WP 242-21
Station, the grounds of the detention were served on the
petitioner, in that view of the matter there is no delay in
execution of the detention order.
19. Similarly, we do not fnd any substance in the ground raised
by the petitioner that there is a delay in passing the impugned
order, which is not explained. On 02/12/2019 the proposal of the
detention was initiated and the impugned order is passed on
23/12/2019 i.e. within a period of 21 days from initiation of the
proposal. After following prescribed procedure provided under
Sections 7 to 12, the impugned order is passed and therefore, we
do not fnd any merit in the said submission.
20. Next ground pressed in service by the learned advocate for
the petitioner is that the petitioner cannot be termed as
dangerous person or habitual ofender. By relying on on Vijay
Narain Singh (supra) it is contended that the ofences registered
against the petitioner are not similar ofences and they are not
against the public order or law and order. The ofences committed
by the petitioner did not cause any public nuisance and all the
ofences are individual ofences and are not ofences against
public at large. In this behalf reliance is placed on Vinod Rajbhar
(supra) & Hemchand Somnath Gupta (supra).
17 J WP 242-21
21. The defnition of dangerous person is given in Section
2(a-1), which read thus :
"2 (b-1) : "dangerous person" means a person, who either by himself or as a member or leader of a gang, habitually commits, or attempts to commit or abets the commission of any of the ofences punishable under Chapter XVI or Chapter XVII of the Indian Penal Code or any of the ofences punishable under Chapter V of the Arms Act, 1959".
Defnition of dangerous person is clear which means a
person who either by himself or as a member of a gang habitually
commits or attempts to commit or abets the commission of any of
the ofences punishable under Chapter XVI or Chapter XVII of the
Indian Penal Code or any of the ofences punishable under
Chapter V of the Arms Act. In the instant case, the ofences
committed by the petitioner are admittedly fall under Chapter XVI
and XVII of the Indian Penal Code, the learned advocate for the
petitioner has fairly conceded to this position.
22. In Vijay Narain Singh (supra) the Hon'ble Apex Court was
considering the provisions of Bihar Control of Crimes Act Section
2(d), which defnes habitual ofender. It held as under :
"In both sub-clauses (I) and (iv) of Section 2(d), the word 'habitually' means 'repeatedly' or 'persistently'.
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It implies a thread of continuity stringing together similar repetitive acts. Repeated, persistent and similar, but not isolated, individual and dissimilar acts are necessary to justify an inference of habit. It connotes frequent commission of acts or omissions of the same kind referred to in each of the said sub- clauses or an aggregate of similar acts or omissions. This appears to be clear from the use of the word 'habitually' separately in sub-clause (I), sub-clause (ii) and sub-clause (iv) of Section 2 (d) and not in sub- clauses (iii) and (v) of section 2 (d). Commission of an act or omission referred to in of the sub-clauses (I), (ii) and (iv) and of another act or omission referred to in any other another of the said sub-clauses would not be sufcient to treat a person as an anti-social element'. A single act or omission falling under sub-clause (I) and a single act or omission falling under sub-clause (iv) of Section 2 (d) cannot, therefore, be characterised as a habitual act or omission referred to in either of them. Because the idea of 'habit' involves an element of persistence and a tendency to repeat the acts or omissions of the same class or kind, if the acts or omissions in question are not of the same kind or even if they are of the same kind when they are committed with a long interval of time between them they cannot be treated as habitual ones".
23. In the instant case two ofences at at C.R. No. 56 of 2018
under Sections 307,397of IPC and C.R. No. 359 of 2018 under
Section 307, 294 of IPC and under Section 4 and 25 of the Arms
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Act are registered at Jinsi Police Station, Aurangabad on
28/03/2018 and 23/11/2018 respectively. Considering these two
ofences mentioned in the chart at serial no.1 & 2, it is clear that
the petitioner has indulged in repeated acts of similar ofences in
the year 2018-2019. Therefore, this ruling would not help the
petitioner.
24. Serious ofences punishable under Section 307, 397, 294 of
IPC as well as under Section 435, 326 read with 34 of IPC and
under Sections 4 and 25 of the Arms Act are registered against
the petitioner. Therefore, it cannot be said that the ofences in
which the petitioner is accused are individual ofences and they
are not prejudicial to the public order and they did not cause any
public nuisance. There is no substance in the argument that the
ofences registered against the petitioner are not against public
at large.
25. The reliance by the petitioner in Vinod Ramjiyawan
Rajbhar (supra) is misplaced and misconceived as that judgment
is rendered in diferent facts. A solitary incident of threatening
the supervisor at the construction site and the demand of
Rs.5,000/- and assault on him with fst and blows was considered
and it was held that it did not fall in the category of public order
20 J WP 242-21
and the detention order passed against the detenue on the basis
of the same was set aside by this court. The facts in the present
case are totally diferent.
26. In Hemchand Somnath Gupta (supra) this court while
was considering the defnition of habitual ofender or dangerous
person in para 5 held :
"Two ofences or two incidents on the basis of which two ofences were registered, were sufcient to infer that the detenue was "habitual ofender" and /or a "dangerous person". Merely because those two ofences occurred in the same month within a span of 15 days does not entitle the detenue to contend that he cannot be labelled or treated as a dangerous person. There is no substance in this ground, it is rejected".
In the case in hand, in the year, 2018, two ofences
punishable under Section 307, 397, 294 of IPC and under Section
4 and 25 of the Arms Act are registered against the petitioner in
the year, 2018 and in the year, 2019, two ofences under Section
143, 435, 323, 504, 506 of IPC and 326, 435, 323, 504 read with
34 of the IPC are registered against the petitioner. Those were,
therefore, sufcient to label the petitioner as a dangerous person
in view of the above observations of this court.
21 J WP 242-21
27. We are unable to agree with the submission that there is no
subjective satisfaction reflected in the impugned order. It is
specifcally mentioned in the impugned order that considering the
seriousness of the ofences registered against the petitioner a
confdential inquiry was conducted and it was disclosed that due
to the fear of the petitioner nobody was coming forward to give
statement against him. The documents placed before the
detaining authority revealed that the activities of the petitioner
disturbed the public order. The proceedings initiated against the
petitioner taking preventive measures were found to be futile.
During the course of the proceedings initiated under Section 56(i)
(A)(B), the petitioner indulged into criminal activities, because of
which the said proceedings were required to be dropped and the
present proceedings were initiated. The in-camera statements of
the witnesses reveal that the petitioner had been indulging in
extortion in public place which created terror in the locality. In
the impugned order in paragraphs 10 and 11 the detaining
authority has categorically mentioned that after going through
the material placed before it and after considering the activities
of the petitioner and its efect from all the angles and the gravity
of questionable activities of the petitioner, the authority was
subjectively satisfed that the petitioner is a dangerous person
and he is acting in a manner prejudicial to the maintenance of the
22 J WP 242-21
public order.
28. The detention order was forwarded to the State Government
as per Section 3(3) of the Act and the petitioner was informed
that he has right to make representation against the said order.
The detention order was confrmed by the Home Department on
21/01/2021 under Sub-section (1) of Section 12 of the Act thereby
directing detention of the petition for one year. Perusal of the the
record indicates that the detaining authority has applied its mind
to the record placed before it and it was subjectively satisfed that
the detention order is required to be passed against the
petitioner. The material available with the detaining authority is
sufcient to warrant passing of detention order, which is rightly
passed against the petitioner.
29. The learned APP was right in relying on the ratio in Magar
Pansingh Pimple vs. State of Maharashtra and another
2006(1) Mh.L.J. (Cri.), 28, wherein this court has held that the
scope of writ petition challenging the detention order is limited
and the High Court cannot assume the role of appellate court nor
can it intervene the detention order lightly. Since we have come
to the conclusion that the detention order passed against the
petitioner is justifed in the facts of the case appearing from the
23 J WP 242-21
record and from the nature of activities alleged against the
detenue, we fnd no illegality in the impugned order. All the
necessary compliance of Article 22(5) has been done in the
present case and the learned advocate for the petitioner was not
able to convince us that there is infraction of any fundamental
rights of the petitioner while passing the impugned order. We
fnd no merit in the petition. The petition is therefore dismissed.
30. Rule discharged.
(N. B. SURYAWANSHI, J.) ( SUNIL P. DESHMUKH, J. )
V.S. Maind/
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