Hans Muller of Nurenburg Vs.
Superintendent, Presidency Jail, Calcutta & Ors  INSC 7 (23 February
BOSE, VIVIAN MUKHERJEE, BIJAN KR. (CJ) DAS,
SUDHI RANJAN BHAGWATI, NATWARLAL H.
CITATION: 1955 AIR 367 1955 SCR (1)1284
Constitution of India Arts 14,21 and 22-Entry
9 and entry 10 in Union list of Seventh Schedule to ConstitutionPreventive
Detention Act 1950 (Act V of 1950), s. 3(1)(b)Whether ultra vires
Constitution-Foreigners Act 1946 (Act XXXI of 1946), s. 3(2)(c)--Whether ultra
vires ConstitutionExtradition Act 1870 and Foreigners Act, 1946-Distinction
The petitioner, a West German subject, was
placed under preventive detention by an order of the West Bengal Government
under s. 3(1)(b) of the Preventive Detention Act 1950 on the ground that he was
a foreigner within the meaning of the Foreigners Act 1946 and that it had
become necessary to make arrangements for his expulsion from India and
therefore he was required to be detained until the issue of an appropriate
order from the Central Government.
The questions for determination in the case
were:(i) whether s. 3(1)(b) of the Preventive Detention Act was ultravires the
Constitution inasmuch as it contravenes Arts.
14, 21 and 22 of the Constitution and whether
it was beyond the legislative competence of Parliament to enact such a law;
(ii)whether, in any event, the detention was
invalid as it was made in bad faith.
Held that the impugned portion of the Preventive
Detention Act and s. 3(2)(c) of the Foreigners Act on which it is based are not
ultra vires the Constitution inasmuch as;
(i)in view of Entry 9 and Entry 10 of the
Union list of the Seventh Schedule to the Constitution, the language of which
must be given the widest meaning, the legislative competence of Parliament to
deal with the question of preventive detention of foreigners 1285 is clear and
this covers not only s. 3(1)(b) of the Preventive Detention Act but also the Foreigners
Act, 1946, in so far as it deals with the powers of expulsion and the right of
the Central Government to restrict the movements of foreigners in India and
prescribe the place of their residence and the ambit of their movements in the
(ii)the Preventive Detention Act was a
comprehensive Act dealing with preventive detention and was framed with the
Limitations of Arts. 21 and 22 in view. Section 3(1)(b) of the Preventive
Detention Act was enacted to bring the unrestrained power given by s. 4(1) of
the Foreigners Act into line with the provisions of the Constitution;
(iii)section 3 (1) (b) of the Preventive
Detention Act is reasonably related to the purpose of the Act, namely
preventive detention, inasmuch as the right to expel a foreigner conferred by
s. 3(2) of the Foreigners Act on the Central Government and the right to make
arrangements for expulsion include the right to make arrangements for
preventing any breach or evasion of the order; and the Preventive Detention Act
confers the power to use the means of preventive detention as one of the
methods of achieving this end;
(iv)the State Government is competent to make
an order of detention under the law in anticipation of an order of expulsion
that is about to be made, or which may be made by the Central Government on the
recommendation of the State Government which, though seized with certain powers
of Government is not competent to make an order of expulsion itself. Unless a
State Government has authority to act in anticipation of orders from the Centre
it might be too late to act at all;
(v)the impugned section does not offend Art.
14 of the Constitution inasmuch as differentiation between foreigner and
foreigner as envisaged in s. 2(a) and s. 3(2)(c) of the Foreigners Act 1946 and
s. 3(1)(b) of the Preventive Detention Act is based on a reasonable and
rational classification. There is no individual discrimination, and reasons of
State may make it desirable to classify foreigners into different groups On the
question of good faith, held, that the circumstance of the case did not show
bad faith on the part of the West Bengal Government.
The Foreigners Act 1946 is not governed by
the provisions of the Extradition Act 1870. The two are distinct and neither
impinges on the other. Even if there is a requisition and a good case for
extradition, Government is not bound to accede to the request. It is given an
unfettered right to refuse, vide s. 3(1) of the Extradition Act, and has got an
absolute discretion to choose the less cumbrous procedure of the Foreigners Act
when a foreigner is concerned. As the Government is given the right to choose,
no question of want of good faith can arise merely because it exercises the
right of choice which the law confers.
ORIGINAL JURISDICTION: Petition No. 22 of
Under Article 32 of the Constitution for a
Writ in the nature of habeas corpus.
Sadhan Chandra Gupta (The Petitioner also
present) for the petitioner.
M. C. Setalvad, Attorney-General of India (B.
Sen, and I.
N. Shroff, for P. K. Bose, with him) for the
1955. February 23. The Judgment of the Court
was delivered by BOSE J.-The petitioner, Hans Muller, who is not a citizen of
India, and who is said to be a West German subject, was arrested by the
Calcutta Police on the 18th September, 1954 and was placed under preventive
detention. The order was made by the West Bengal Government under section 3(1)
of the Preventive Detention Act of 1950 (Act IV of 1950) on the ground that his
detention was "with a view to making arrangements for his expulsion from
The grounds were served on the 22nd of
September, 1954. The second ground runs"That you are a foreigner within
the meaning of the Foreigners Act, 1946 (Act XXXI of 1946) and that it has
become necessary to make arrangements for your expulsion from India and for
this purpose you are required to be detained under section 3 (1) (b) of the Preventive
Detention Act, 1950 until the issue of an appropriate order of expulsion from
the Central Government".
On the day after his arrest, namely on the
19th September, 1954 he wrote to the Consul-General of West Germany at Calcutta
saying that he had been arrested and asking for an early interview. This was
On the 21st of September 1954, the petitioner
wrote to the West Bengal Government asking it "to be kind enough to pass
an order for our immediate repatriation from India" 1287 and "to do
the necessary arrangement for our transmission out of India".
On the 9th of October 1954 the Calcutta
Police handed the petitioner's passport over to the West German Consul at the
Consul's request. This passport was issued to the petitioner by the West German
Government at Nurenburg in West Germany on the 27th of November 1953. When the
passport was handed over to the West German Consul it had on it a number of
visas, including an Indian, all of which had on them the condition "while
the passport is valid". When the West German Consul got the passport he
made the following entry on it:
"Valid only for the return voyage to the
Federal Republic of Germany until the 8th January 1955".
The petitioner complains that this
invalidated all the other visas and as, according to this fresh entry, the
passport ceased to be valid after the 8th of January 1955, he now has no
On the same day, the 9th of October 1954, the
West German Government wrote to the West Bengal Government saying that a
warrant of arrest was issued against the petitioner in West Germany in
connection with a number of frauds and that legal proceedings in connection
with those warrants are still pending. The Consul also said that he had
received information that similar charges had been made against the petitioner
in Lebanon and in Egypt and be concluded" The Government of the Federal
Republic of Germany will apply for Muller's extradition through diplomatic channels
whilst at the same time submitting the supporting documents.
As this will require a certain amount of
time, I am directed to give you advance information of this step and hereby
request the Government of West Bengal to issue a provisional warrant of arrest
which ensures Muller's detention up to the date of his extradition to Germany.
This Consulate has already arranged for
Muller's repatriation by the German boat 'KANDELFELS' due to arrive in Calcutta
on the 19th instant. All 165 1288 expenses in connection with Muller's
repatriation will be borne by the Government of the Federal Republic of
On receipt of this letter the Secretary to
the Government of West Bengal recorded the following note:
"I suppose there would be no objection
to our keeping Muller in detention till the 19th instant. We must issue order
of his release as soon as his boat is ready to sail".
The West Bengal Government had no power to
deport the petitioner. Only the Central Government could do that, and up till
the 20th of October the Central Government had not passed any orders. On that
date the petitioner applied to the High Court of Calcutta for a writ in the
nature of habeas corpus under section 491 of the Criminal Procedure Code.
Because of that, and because this matter has been pending in the courts ever
since, no orders have yet been issued for his expulsion from India though we
are told by the learned Attorney-General that they have been made and signed
but are being held in abeyance pending the decision of this petition.
The petitioner contended that his detention
was invalid for the following, among other, reasons:
(1) Because section 3(1)(b) of the Preventive
Detention Act, the section under which the order was. made, is ultra vires the
Constitution on three grounds(a) that it contravenes articles 21 and 22;
(b) that it contravenes article 14, and (c)
that it was beyond the legislative competence of Parliament to enact such a
(2) Because section 3(1) (b) is not a law of
preventive detention within the meaning of article 22(3) and therefore it
contravenes article 22 (1) and (2); and (3) Because, in any event, the order
was made in bad faith.
The High Court decided against the petitioner
on all points and dismissed the petition on 10-12-1954. He thereupon made the
present petition to this Court on the same grounds, presumably under article 32
of the Constitution. It was filed oil 10-1-1955.
1289 We will first consider the vires of
section 3(1) (b). It is in these terms:
"The Central Government or the State
Government may ...............
(b) if satisfied with respect to any person
who is a foreigner within the meaning of the Foreigners Act, 1946 (XXXI of
1946), that with a view to regulating his continued presence in India or with a
view to making arrangements for his expulsion from India, it is necessary so to
do, make an order directing that such person be detained".
The detention order is by a State Government
and not by the Centre. The portion of the section on which the order is based
is the part that gives a State Government power to make an order of detention
against a foreigner, on satisfaction, "with a view to making arrangements
for his expulsion from India".
The competence of the Central Legislature to
enact a law dealing with this aspect of preventive detention is derived from
Entry 9 of the Union List read with Entry 10, The portion of Entry 9 which
concerns us is as follows:
"Preventive detention for reasons
connected with Foreign Affairs The scope of the expression "Foreign
Affairs" is indicated in Entry 10:
"Foreign Affairs; all matters which
bring the Union into relation with any foreign country".
It is well settled that the language of these
Entries must be given the widest scope of which their meaning is fairly capable
because they set up a machinery of Government and are not mere Acts of a
legislature subordinate to the Constitution. Giving Entry 9 its widest range we
find it impossible to hold that legislation that deals with the right of a
State to keep foreigners under preventive detention without trial does not
bring the Union into relation with a foreign country. Every country claims the
right to the allegiance of its subjects wherever they may be and in return guarantees
to them the right of diplomatic 1290 protection when abroad. It is therefore
the privilege, and the anxiety, of every civilised nation to keep vigilant
watch over its subjects abroad and to ensure for them, as far as that is
possible through diplomatic channels, fair play and justice administered along
lines of what is called, broadly for want of a better term, natural justice. A
foreign State has a very direct interest in what is done to its subjects in a
foreign land. Therefore, legislation that confers jurisdiction upon Governments
in this country to deprive foreigners of their liberty cannot but be a matter
that will bring the Union into relation with foreign States, particularly when
there is no public hearing and no trial in the ordinary courts of the land. But
in this particular case, the relation is even more direct, for the provision
here is for detention with a view to making arrangements for a foreigner's
expulsion from India. A foreign State has a very deep interest in knowing where
and how its subjects can be forcibly expelled against their will. The
legislative competence of Parliament to deal with this question is, we think,
clear; and this covers not only section 3(1) (b) of the Preventive Detention
Act but also the Foreigners Act, 1946 (Act XXXI of 1946) in so far as it deals
with the powers of expulsion and the right of the Central Government to
restrict the movements of foreigners in India and prescribe the place of their
residence and the ambit of their movements in the land.
The learned Attorney-General sought to base
the legislative competence upon other Entries as well and claimed that
Parliament is not confined to Entry 9 in List I and Entry 3 in List III (the
only Entries that touch directly on preventive detention). He claimed, for
example, that laws for the preventive detention of foreigners can also be based
upon Entry 17 in List I which relates to aliens and Entry 19 which relates to
expulsion from India; and also upon the portions of Entries 9 in List I and 3
in List III that deal with the "security of India" and the
"security of the State" and the "maintenance of public
order", provided always that they comply with articles 21 and 22 of the
Constitution, We express no opinion 1291 about this as we can uphold the
portion of the Statute that is impugned here on the narrower ground we have set
The next question is whether the limitations
imposed on this power by articles 21 and 22 have been observed.
Article 21 guarantees the protection of
personal liberty to citizen and foreigner alike. No person can be deprived of
his personal liberty "except according to procedure established by
law", and article 22 prescribes the minimum that the procedure established
by law must provide. There can be no arrest or detention without the person
being produced before the nearest magistrate within twenty four hours,
excluding the time necessary for the journey, etc., nor can he be detained
beyond that period without the authority of a magistrate.
The only exceptions are (1) enemy aliens and
(2) "any person who is arrested or detained under any law providing for
There are further limitations, but they were
not invoked except that the learned Attorney-General explained that the
unrestricted power given by section 4(1) of the Foreigners Act, 1946 (a
pre-constitution measure) to confine and detain foreigners became invalid on
the passing of the Constitution because of articles 21 and 22. Therefore, to
bring this part of the law into line with the Constitution, section 3 (1) (b)
of the Preventive Detention Act was enacted. It was more convenient to insert
new provisions about the confinement and detention of foreigners in the Preventive
Detention Act rather than amend the Foreigners Act because the Preventive
Detention Act was a comprehensive Act dealing with preventive detention and was
framed with the limitations of articles 21 and 22 in view.
It was urged on behalf of the petitioner that
section 3(1)(b) of the Preventive Detention Act is'-not reasonably related to
the purpose of the Act, namely, "preventive detention". It was argued
that preventive detention can only be for the purpose of preventing something
and when you seek to make arrangements for a man's expulsion from the country
you are not preventing anything, or trying to, but are facilitating the
performance of a positive act by the State, namely the act of expulsion.
We do not agree and will first examine the
position where an order of expulsion is made before any steps to enforce it are
taken. The right to expel is conferred by section 3(2)(c) of the Foreigners
Act, 1946 on the Central Government and the right to enforce an order of
expulsion and also to prevent any breach of it, and the right to use such force
as may be reasonably necessary "for the effective exercise of such
power" is conferred by section 11(1), also on the Central Government.
There is, therefore, implicit in the right of expulsion a number of ancillary
rights, among them, the right to prevent any breach of the order and the right
to use force and to take effective measures to carry out those purposes. Now
the most effective method of preventing a breach of the order and ensuring that
it is duly obeyed is by arresting and detaining the person ordered to be
expelled until proper arrangements for the expulsion can be made. Therefore,
the right to make arrangements for an expulsion includes the right to make
arrangements for preventing any evasion or breach of the order, and the Preventive
Detention Act confers the power to use the means of preventive detention as one
of the methods of achieving this end. How far it is necessary to take this step
in a given case is a matter that must be left to the discretion of the
Government concerned, but, in any event, when criminal charges for offences
said to have been committed in this country and abroad are levelled against a
person, an apprehension that he is likely to disappear and evade an order of
expulsion cannot be called either unfounded or unreasonable. Detention in such
circumstances is rightly termed preventive and falls within the ambit of the Preventive
Detention Act and is reasonably related to the purpose of the Act.
The next question is whether any steps can be
1293 taken under the law in anticipation of an order that is about to be made,
or which may be made, by the competent authority on the recommendation of
another authority seized with certain powers of Government and yet not
competent to make an order of this kind.
The Foreigners Act confers the right of
expulsion on the Central Government. Therefore, a State Government has no right
either to make an order of expulsion or to expel. It was argued that if a State
Government cannot expel or make an order of expulsion, then it cannot be
permitted to detain "with a view to making arrangements for the
expulsion". It was contended that the only authority that can make such
arrangements, or direct that they should be made, is the Central Government. It
was also argued that until an order of expulsion is made by the proper authority,
no one can start making arrangements for its due execution; the arrangements
contemplated by section 3(1)(b) must follow and not precede the order,
especially as they involve curtailment of a man's personal liberty, for the
order may never be made and it would be wrong to permit an authority not
authorised to decide the question to detain a man of its own motion till
somebody else has time and leisure to consider the matter. That would be
inconsistent with the fundamental right to liberty guaranteed by the
Constitution to citizen and foreigner alike.
Again, we do not agree. The Preventive
Detention Act expressly confers the right to detain '-with a view to making,
arrangements" for the expulsion upon both the State and the Central
Government and the "satisfaction" required by section 3(1)(b) can be
of either Government. The right to satisfy itself that the drastic method of
preventive detention is necessary to enable suitable arrangements for expulsion
to be made is therefore expressly conferred on the State Government and as a
State Government cannot expel, the conferral of the right can only mean that
the State Government is given the power to decide and to satisfy itself whether
expulsion is desirable or necessary, and if it thinks it is, then to detain
until proper arrangements for the expulsion are made, one of them, and an
essential one, being reference to the Central Government for final orders. It
is evident that the authorities must be vested with wide discretion in the
present field where international complications might easily follow in a given
case. Unless a State Government has authority to act in anticipation of orders
from the Centre, it might be too late to act at all.
We now turn to the argument that section 3
(1) (b) is ultra vires because it offends article 14 of the Constitution.
Actually, the attack here is on section 3 (2)
(c) of the Foreigners Act but as section (3) (1) (b) of the Preventive Detention
Act is consequential on that it is also involved.
Section 3(1)(b) permits detention of a
"foreigner" within the meaning of the Foreigners Act, 1946. The
definition of "foreigner" is given in section 2(a) of that Act and is
" `foreigner' means a person who(i)is
not a natural-born British subject as defined in subsections (1) and (2) of
section (1) of the British Nationality and Status of Aliens Act, 1914, or (ii)
has not been granted a certificate of naturalization as a British subject under
any law for the time being in force in India".
The rest of the definition is not material.
The argument is that this differentiates between foreigner and foreigner.
It takes two classes of British subjects who
are now as much foreigners as anyone else not an Indian citizen, out of the
class of foreigners for the purposes of-preventive detention and for the
purposes of expulsion under the Foreigners Act.
This, it was contended, offends article 14
which provides that "The State shall not deny to any person equality
before the law or the equal protection of the laws within the territory of
This argument is easily answered by the
classification rule which has been repeatedly applied in this Court. The
classification of foreigners into those who are British subjects of the kind
set out in the definition, and others, so as to make the former not 1295
foreigners for the purposes of the Foreigners Act and the Preventive Detention
Act, is a reasonable and rational classification and so does not, on the
authority of our previous decisions, offend article 14. There is no individual
discrimination and it is easily understandable that reasons of State may make
it desirable to classify foreigners into different groups. We repel this
It was then said that at any rate there is
differentiation in the same group because the definition discriminates between
classes of British subjects inter se. It was pointed out that the British
Nationality and Status of Aliens Act, 1914 was repealed in 1948 and re-enacted
in another form but as our Act has retained the 1914 definition that is the one
we must consider. We do not intend to examine this contention because, even if
it be true that there is the discrimination alleged, namely between one class
of British subject and another, that will not give the petitioner a right of
challenge on this ground. He is not a British subject and so is not a member of
the only class that could claim to be aggrieved on this score. This Court has
decided in earlier cases that the only persons who can impugn any given piece
of legislation under article 32 are those who are aggrieved thereby. As the
petitioner is not a person aggrieved, so far as this point is concerned, he not
being a British subject, he cannot attack the section on this ground.
We hold that the impugned portions of section
3(1)(b) of the Preventive Detention Act and section 3(2)(c) of the Foreigners
Act, 1946 are intra vires.
We now turn to a wider question that brings
us to the fringe of International law. It arises in this way. The good faith of
the Government of the State of West Bengal in making the order of detention was
challenged on the following, among other, grounds. It was argued that the real
object of Government in continuing the detention was to keep the petitioner in
custody so that it would be in a position to hand him over to the West German
authorities as soon as a suitable German boat arrived. It will be remembered
166 1296 that the West German Government wants the petitioner for offences
which he is alleged to have committed in West Germany and that the West German
Consul at Calcutta wrote to the West Bengal Government on 9-10-1954 asking that
Government to issue a provisional warrant of arrest against the petitioner and
to keep him in custody until the West German Government could initiate
extradition proceedings against him, and added that the West German Consulate
at Calcutta had already arranged for his repatriation on a German boat that was
to arrive on the 19th of October 1954.
On receipt of this letter, the Secretary of
the West Bengal Government recorded a note saying that he supposed there would
be no objection to the West Bengal Government keeping the petitioner in
detention till the 19th. It was said that the connection between the letter,
the expected arrival of the boat on the 19th and the Secretary's proposal to
keep the petitioner till that date, was obvious.
The attack on the good faith of the West
Bengal Government at this point was two-fold. First, it was said that whatever
the original intention of the West Bengal Government may have been, when the
West German Consul's letter was received, the object of the detention was no
longer for the purpose of making arrangements for the petitioner's expulsion
but for keeping him in custody till the West German Government was in a
position to commence extradition proceedings; that, it was said, was an abuse
of the Preventive Detention Act and was not justified by any of its provisions.
The second ground of attack was that, if that
was not the object, then, very clearly, the idea was to hand the petitioner
over to the German authorities on a German boat without the formality of
extradition proceedings and without giving the petitioner a chance to defend
himself and show that be could not be extradited. That, it was said, made the
matter worse than ever. It was denied that the petitioner had committed any
offence in West Germany or anywhere else. He claimed to be a communist and said
that the real object of the West German Government 1297 was to subject him to
political persecution the moment they could lay bands on him. The contention
was that once an order of extradition is asked for, a foreigner cannot be
handed over to the Government seeking his extradition except under the
The learned Attorney-General contended very
Cc strongly that this question was academic and should not be considered
because no order of expulsion had yet been served on the petitioner and no one
knows the terms of the order. We do not think it is in view of what the learned
Attorney-General told us, namely that an order of expulsion has actually been
made and signed but is kept in abeyance pending our decision.
We see no force in the first part of the
petitioner's argument. We are at bottom considering the question of the West
Bengal Government's good faith. The order of detention was made before the West
German Consul wrote his letter, so there was no connection between that letter
and the order.
After that there is no material to indicate
that the West Bengal Government changed its mind and continued the detention
for another purpose. The note referred to is the note of a Secretary to
Government and embodies his suggestion about what should be done. It cannot be
used either as an order of Government itself or as an indication of its mind.
The second point raises a question of wider
import touching the status and rights of foreigners in India, and the question
we have to determine is whether there is any law in India vesting the executive
government with power to expel a foreigner from this land as opposed to
Article 19 of the Constitution confers
certain fundamental rights of freedom on the citizens of India, among them, the
right "to move freely throughout the territory of India" and "to
reside and settle in any part of India", subject only to laws that impose
reasonable restrictions on the exercise of those rights in the interests of the
general public or for the protection of the interests of any Scheduled Tribe.
No cor1298 responding rights are given to foreigners. All that is guaranteed to
them is protection to life and liberty in accordance with the laws of the land.
This is conferred by article 21 which is in the following terms:
"No person shall be deprived of his life
or personal liberty except according to procedure established by law".
Entries 9, 10) 17, 18 and 19 in the Union
List confer wide powers on the Centre to make laws about among other things,
admission into and expulsion from India, about extradition and aliens and about
preventive detention connected with foreign affairs. Therefore, the right to
make laws about the extradition of aliens and about their expulsion from the
land is expressly conferred; also, it is to be observed that extradition and
expulsion are contained in separate, entries indicating that though they may
overlap in certain aspects, they are different and distinct subjects. And that
brings us to the Foreigners Act which deals, among other things, with
expulsion, and the Extradition Act which regulates extradition.
The Foreigners Act confers the power to expel
foreigners from India. It vests the Central Government with absolute and
unfettered discretion and, as there is no provision fettering this discretion
in the Constitution, an unrestricted right to expel remains.
The law of extradition is quite different.
Because of treaty obligations it confers a right on certain countries (not all)
to ask that persons who are alleged to have committed certain specified
offences in their territories, or who have already been convicted of those
offences by their courts, be handed over to them in custody for prosecution or
punishment. But despite that the Government of India is not bound to comply
with the request and has an absolute and unfettered discretion to refuse.
There are important differences between the
two Acts. In the first place, the Extradition Act applies to everybody, citizen
and foreigner alike, and to every class of foreigner, that is to say, even to
foreigners who are not nationals of the country asking for 1299 extradition.
But, as has been seen, because of article 19 no citizen can be expelled (as
opposed to extradition) in the absence of a specific law to that effect; and
there is none; also, the kind of law touching expulsion (as opposed to
extradition) that could be made in the case of a citizen would have to be
restricted in scope. That is not the case where a foreigner is concerned
because article 19 does not apply. But a citizen who has committed certain
kinds of offences abroad can be extradited if the formalities prescribed by the
Extradition Act are observed. A foreigner has no such right and he can be
expelled without any formality beyond the making of an order by the Central Government.
But if he is extradited instead of being expelled, then the formalities of the
Extradition Act must be complied with. The importance of the distinction will
be realised from what follows; and that applies to citizen and foreigner alike.
The Extradition Act is really a special
branch of the law of Criminal Procedure. It deals with criminals and those
accused of certain crimes. The Foreigners Act is not directly concerned with
criminals or crime though the fact that a foreigner has committed offences, or
is suspected of that, may be a good ground for regarding him as undesirable.
Therefore, under the Extradition Act warrants
or a summons must be issued; there must be a magisterial enquiry and when there
is an arrest it is penal in character; and-and this is the most important
distinction of all-when the person to be extradited leaves India he does not
leave the country a free man. The police in India hand him over to the police of
the requisitioning State and he remains in custody throughout.
In the case of expulsion, no idea of
punishment is involved, at any rate, in theory, and if a man is prepared to
leave voluntarily he can ordinarily go as and when he pleases.
But the right is not his. Under the Indian
law, the matter is left to the unfettered discretion of the Union Government
and that Government can prescribe the route and the port or place of departure
and can place him on a particular ship or plane. (See sections 3(2) (b) and 6
of the Foreigners 1300 Act). Whether the Captain of a foreign ship or plane can
be compelled to take a passenger he does not want or to follow a particular
route is a matter that does not arise and we express no opinion on it. But
assuming that he is willing to do so, the right of the Government to make the
order visa-vis the man expelled is absolute.
This may not be the law in all countries.
Oppenheim, for example, says that in England, until December 1919, the British
Government bad "no power to expel even the most dangerous alien without
the recommendation of a court, or without an Act of Parliament making provision
for 'such expulsion, except during war or on an occasion of imminent national
danger or great emergency". (Oppenheim's International Law, Vol. 1, 7th
edition, page 631).
But that is immaterial, for the law in each
country is different and we are concerned with the law as it obtains in our
land. Here the matter of expulsion has to be viewed from three points of view:
(1) does the Constitution permit the making of such a law? (2) does it place
any limits on such laws? and (3) is there in fact any law on this topic in
India and if so, what does it enact? We have already examined the law making
power in this behalf and its scope, and as to the third question the law on
this matter in India is embodied in the Foreigners Act which gives an
unfettered right to the Union Government to expel. But there is this
distinction. If the order is one of expulsion, as opposed to extradition, then
the person expelled leaves India a free man. It is true he may be apprehended
the moment he leaves, by some other power and consequently, in some cases this
would be small consolation to him, but in most cases the distinction is
substantial, for the right of a foreign power to arrest except in its own
territory and on its own boats is not unlimited. But however that may be, so
far as India is concerned, there must be an order of release if he is in
preventive custody and though he may be conducted to the frontier under
detention he must be permitted to leave a free man 1301 and cannot be handed
over under arrest.
In a case of extradition, he does not leave a
free man. He remains under arrest throughout and is merely handed over by one
set of police to the next. But in that event, the formalities of the
Extradition Act must be complied with.
There must be a magisterial enquiry with a
regular hearing and the person C sought to be extradited must be afforded the
right to submit a written statement to the Central Government and to ask, if he
so chooses, for political asylum; also be has the right to defend himself and
the right to consult, and to be defended by, a legal practitioner of his
choice. (Article 22(1) Of course, he can also make a representation against an
order of expulsion and ask for political asylum apart from any Act but those
are not matters of right as under the Extradition Act.
Our conclusion is that the Foreigners Act is
not governed by the provisions of the Extradition Act. The two are distinct and
neither impinges on the other. Even if there is a requisition and a good case
for extradition, Government is not bound to accede to the request. It is given
an unfettered right to refuse. Section 3(1) of the Extradition Act says" the
Central Government may, if it thinks fit".
Therefore, if it chooses not to comply with
the request, the person against whom the request is made cannot insist that it
should. The right is not his; and the fact that a request has been made does
not fetter the discretion of Government to choose the less cumbrous procedure
of the Foreigners Act when a foreigner is concerned, provided always, that in
that event the person concerned leaves India a free man. If no choice had been
left to the Government, the position would have been different but as
Government is given the right to choose, no question of want of good faith can
arise merely because it exercises the right of choice which the law confers.
This line of attack oil the good faith of Government falls to the ground.
The remaining grounds about want of good
faith 1302 that were raised in the petition were not seriously pressed and as
they are of no substance we need not discuss them.
The petition fails and is dismissed.