All India Anna
Dravida Munmnetra Kazhaga Vs. L.K.Tripathi & Ors. [2009] INSC 677 (1 April
2009)
Judgment
CIVIL ORIGINAL
JURISDICTION CONTEMPT PETITION (C) NO.262 OF 2007 IN S.L.P. (C) NO.18879 OF
2007 All India Anna Dravida Munnetra Kazhagam ... Petitioner Versus L.K.
Tripathi and others ... Respondents WITH CONTEMPT PETITION (C) NO.327 OF 2007
IN S.L.P. (C) NO.18879 OF 2007
G.S. Singhvi, J.
1. Whether respondent
Nos.1 to 5 have willfully disobeyed order dated 30.9.2007 passed by this Court
in Special Leave Petition (Civil) No.18879 of 2007 and thereby made themselves
liable to be proceeded against under the Contempt of Courts Act, 1971 (for
short `the 1971 Act') read with Article 129 of the Constitution of India and
whether respondent No.6 is guilty of criminal contempt within the meaning of
Section 2(c) of the 1971 Act are the questions which arise for determination in
this petition filed by All India Anna Dravida Munnetra Kazhagam through its
Presidium Chairman Shri E. Madhusudhanan.
2. Background facts:
2.1 In an apparent
bid to pressurize the Central Government to expedite implementation of Sethu
Samudram Project, Democratic Progressive Alliance comprising Dravida Munnetra
Kazhagam, Indian National Congress, Communist Party of India (Marxist),
Communist Party of India and Pattali Makkal Katchi, passed a resolution on
24.9.2007 to resort to total cessation of work and closure of shops on
1.10.2007 and to conduct a general meeting of the leaders of all parties on
30.9.2007 at Chennai. The relevant portions of the resolution are extracted
below:
"... in order to
make understand the fact that the support of the people is only to implement
the Sethu Samudram Project expeditiously to the Central Government, it is
resolved to conduct total cessation of work and closure of shops on the 1st of
October, and to conduct a general meeting of the leaders of all parties on the
30th day of September, at Chennai."
2.2 The petitioner
challenged the afore-mentioned resolution in Writ Petition No.31435 of 2007
filed before Madras High Court and prayed that the call given by the political
parties for organizing bandh in the State of Tamil Nadu either on 1.10.2007 or
any other day may be declared as violative of Articles 19 and 21 and the
Directive Principles of the State Policy and fundamental duties embodied and
enumerated in the Constitution of India. Shri Subramania Swamy of Janta Party,
Shri K.R. Ramaswamy @ Traffic Ramaswamy (founder Chairman of the Tamil Nadu
Social Workers Association, Chennai) and Shri R. Balasubramanian also filed
Writ Petition Nos.31478, 31462 and 31631 of 2007 with similar prayers.
2.3 Along with the
writ petition, the petitioner filed two miscellaneous petitions with the prayer
that a direction be issued to Dravida Munnetra Kazhagam represented by its
President M. Karunanidhi (Respondent No.4 in the contempt petition) to deposit
a sum of Rs.100 crore with the Chief Secretary, Government of Tamil Nadu on or
before 28.9.2007 which could be utilized to compensate the damage caused to the
general public and the five political parties be restrained from proceeding
with the call for bandh in the State in terms of resolution dated 24.9.2007.
2.4 After hearing
counsel for the parties, the High Court admitted the writ petitions and issued
the following directions to the Chief Secretary, Director General of Police,
District Collectors and other officers of the State:
"(i) To ensure
that no political party, organization, association, group or individual can, by
organizing `bandh/ hartal' or by force or intimidate, stop or interfere with
the road and rail traffic or free movement of the citizens in the State of
Tamil Nadu on the day of `Bandh' i.e. 01.10.2007.
(ii) To ensure that
the public transport in the State including the Civil Aviation run smoothly on
the day of the `Bandh' i.e. 1.10.2007.
(iii) To take
appropriate action against the person(s) indulging in stoppage or interference
with the road and rail traffic or free movement of the citizens in the State of
Tamil Nadu.
(iv) Chief Secretary
to the Government shall issue a Press Note to the Print Media and also the
Electronic Media on 29/30.9.2007 informing about the preparation made by the
Police to deal with the `Bandh' and to make people secured."
2.5 Feeling
dissatisfied with the High Court's order, the petitioner filed S.L.P.
(C) No.18879 of 2007
in this Court. The same was heard on 30.9.2007. The counsel representing
respondent nos.1 to 3, who volunteered to appear, also made their submissions.
After considering the respective submissions, this Court passed a detailed
order, the relevant portions of which are reproduced below:
"From a bare
perusal of the aforesaid decision, it would be clear that neither anybody can
give a call for Bandh nor the same can be enforced. The High Court, in the
present case, has recorded a, prima facie, finding that, in the present case,
the call was given for Bandh and not strike/hartal.
Ordinarily, High
Court as well as this Court refrains from passing an interim order the effect
of which would be granting the main relief. But in cases where a party
approaches court without loss of time, there are no laches on its part, it is
not possible to give notices to all the necessary parties and hear them because
of paucity of time and in case interim order is not passed in a case like the
present one, which, prima facie, in the opinion of court is concluded by
judgment of this court, the main case would become infructuous, different
considerations would arise and appropriate interim order should be passed. In
the present case, apart from the State of Tamil Nadu, out of the political
parties, namely, Dravida Munnetra Kazhagam, Indian National Congress, Communist
Party of India (Marxist), Communist Party of India and Pattali Makkal Katchi,
only Dravida Munnetra Kazhagam has appeared before us, whom we have heard at
length.
After taking into
consideration the entire matter, prima facie, we are also of the view that the
call given by the aforesaid political parties is a call for Bandh and not
strike/Hartal. Accordingly, we have no option but to issue notices to the
non-appearing respondents and pass interim order.
Issue notice.
Until further orders,
Respondent Nos.3 to 7 are restrained from proceeding with the call for Bandh in
the State of Tamil Nadu on 1st October, 2007 pursuant to resolution dated 24th
September, 2007 or any other day."
2.6 Even before
filing of writ petition by the petitioner, the then Chief Secretary of the
State - Shri L.K. Tripathi (respondent no.1 herein) directed that the concerned
officers be asked to take steps necessary for maintaining essential services
and for providing protection to important offices and establishments apart from
markets and business places. The instructions given by the Chief Secretary were
circulated vide telefax No.SR.II/50641/2007 dated 27.9.2007, the relevant
portions of which are extracted below:- "1. Essential services like
Telephone and Telecommunication, water supply, milk distribution, power supply,
fire services, newspapers, hospitals, shall be ensured to function and
protection given.
2. Provide adequate
protection to vital installations such as power stations/grids, sub-stations,
important Government buildings, telecommunication and bridges, oil
installations, railway bridges, etc.
3. Arrange open line
patrol with immediate effect.
4. Arrange for
regular supply of milk and other essentials.
5. Provide adequate
protection to the High Court and other Courts.
6. Action to be taken
against anti-social elements and persons indulging in acts of violence and
vandalism.
7. A visible police
presence shall be maintained throughout the city.
8. A visible
bandobast outside railway stations, bus depots, main roads, main junctions,
hospitals, courts, schools and colleges will be maintained.
9. Necessary
protection to market and business places shall be given.
10. All police
control rooms will be fully activated to follow up incident to take proper
stern and timely action.
11. Ensure that the
`Hartal' passes off peacefully.
12. Collectors may
requisition and spare other department vehicles if required by the District
Superintendent of Police.
Any incident of law
and order and other matters of significance should be informed to Chief
Secretary's Control Room Telephone Nos.26571388 and 26570372, followed by
FAX-25677128. Bi- hourly report commencing from 0600 hours on 01.10.2007 about
the `Hartal' should be given to Chief Secretary's Control Room even if there is
no incident. First Report should commence from 0600 hours on 01.10.2007."
2.7 On coming to know
of this Court's order through electronic media, respondent No.1 directed that
telephonic instructions be given to all the Collectors to convene meetings with
the respective Superintendents of Police for ensuring that law and order and
public tranquility are maintained.
2.8 The Court's order
was officially communicated to respondent no.1 on the same day i.e., 30.9.2007
at about 10.30 p.m. by fax. The latter immediately forwarded the same to
respondent no.2 for taking necessary action. In turn, respondent No.2 directed
the concerned police officers that steps should be taken for facilitating
unobstructed movement of public transport and maintenance of essential services
like water and electricity supply, milk distribution, telephone and
telecommunication service, fire service, hospitals and protection be given to
Central Government offices, courts, bus stands, railway stations, banks, market
places, shops, industrial establishments, etc. These directions were conveyed
to Zonal Inspector Generals of Police and Commissioners of Police by Additional
Director General of Police (Law and Order) vide fax dated 1.10.2007 which was
sent between 11.28 p.m. on 30.9.2007 and 6.30 a.m. on 1.10.2007. The contents
of that fax are reproduced below:- Date 30.09.2007 "From ADGP (L&O)
Chennai - 4.
To All Zonal IGPs and
COPs All unit officers are instructed to strictly follow the following
instructions,
1. The Depots
Managers of the State Transport Corporation will decide about running the buses
subject to availability of crew. Sufficient Bandobust must be provided to all
Bus Depots under their jurisdiction.
2. Anyone who obstructs
the movement of Public transport should be picked up.
3. Bandobust should
be provided to all essential services like Hospital, Electricity, Offices, Bus
stands and railway stations etc.
4. Bandobust must be
provided to all Central Government offices, Courts and Banks.
5. Beats and Patrol
should be provided to all market places, shops and industrial establishments.
6. All anti-social
elements should be picked up.
7. Sufficient
Bandobust arrangements should be provided at the places where Hunger strike is
scheduled to be held.
Sd/- D.S.P.C.O.S.R.
For ADGP (L&O)
Chennai-4 30.9.2007 C.No.D1/17566/IGP/NZ/2007 DATED 1.10.2007 COPY COMMUNICATED
TO ALL SsP. AND DIsG. IN NORTH ZONE AND ARE REQUESTED TO TAKE NECESSARY
ACTION AND REPORT
COMPLIANCE.
Sd/- 1.10.2007 For
IGP/NZ/CNI-16"
2.9 The Secretary to
Government, Public (SC) Department also sent fax No.SR.II/5064-5/2007 dated
1.10.2007 to all the District Collectors at 11.25 a.m.
requiring them to
send hourly reports to the Chief Secretary's Control Room regarding the law and
order situation, movement, transport, functioning of essential services,
functioning of schools and colleges, opening of shops, hotels and other public
utilities, attendance in Government offices etc.
3. On 3.10.2007, the
petitioner filed this petition under Article 129 of the Constitution of India
read with the 1971 Act and prayed that the respondents be punished for
violation and disobedience of the Court's order dated 30.9.2007. The gravamen
of the petitioner's allegation is that in complete disregard of the restraint
order passed by this Court, the concerned political parties including Dravida
Munnetra Kazhagam enforced the bandh in the entire State by ensuring that buses
owned by the State Transport Corporation are kept off the road and shops and
other business establishments remain closed; that 45,000 private buses were
also not allowed to ply on that day; that shops and other business
establishments were forcibly closed by the cadres of Dravida Munnetra Kazhagam
party and that the State machinery did not take any action to ensure
functioning of public transport system and opening of the shops etc. It is also
the petitioner's case that even though 50,000 employees of the State Transport
Corporation came forward to carry out their duties but they were prevented from
entering the bus depots by the Depot Managers, Supervisor, etc. on the
instructions of higher authorities and even the main gates of many bus
terminals were closed and locked. To substantiate these allegations, the
petitioner has placed on record the photographs collectively marked as Annexure
P-5 and the telegrams which are said to have been sent by Shri K.K. Madeswaran,
C.
Sengottaiyan and M.A.
Paneerselvam to Tamil Nadu State Road Transport Corporation, representation
made by A.J. Selvaraj, Anna Trade Union Secretary, Radhapuram Taluk. In
paragraph 14 of the Contempt Petition, it has been averred that several workers
of Dravida Munnetra Kazhagam party moved in various vantage areas of the State
with deadly and lethal weapons to ensure that no business or commercial
activity was done on 1.10.2007 and whoever opened the shop was forced to down
the shutters. It has been further averred that in Chennai, a restaurant at
Arterial Mount Road was attacked and looted and many other shops and
restaurants were ransacked and eatables were thrown out and bottles were
broken, but the police remained mute spectators. In support of these averments,
the petitioner placed on record copies of various newspapers. In paragraph 23,
a reference has been made to the speech allegedly made by respondent No.6, Shri
T.R. Balu, Union Minister for Shipping and Surface Transport, at the venue of
the hunger strike on 1.10.2007 and it has been averred that the same was
calculated to scandalize judiciary in general and order dated 30.9.2007 in
particular. The relevant portions of the speech allegedly made by respondent
no.6, which is said to have been published in the newspapers and also telecast
on the television channels are extracted below:- "If we want to conduct a
Bandh in a democratic manner to ensure speedy implementation of this Project,
the Supreme Court is injuncting the same. Are judgments being delivered
correctly in the Courts? If that is so, why are higher courts granting stay of
orders of lower Courts? If judges are not making mistakes why are there
conflicting judgments? Today there are many complaints against many judges.
Corruption charges are appearing everyday. What does that mean? If they were
upright yesterday, does it mean that they are not upright now? When was a
sitting ever held on a Sunday? Unprecedented things are taking place.
We are expressing our
feelings. How many complaints are received against judges? There is provision
in law for impeachment of sitting judges. The MPs' sitting here should also
think about it. Nothing wrong about it. Our MPs, including the ministers should
know about it. Everyone including the ministers can sign it."
4. In paragraph 7 of
the reply affidavit filed by him, respondent no.1 has averred that after
telecast of the news about the restraint order passed by the Court, telephonic
instructions were issued to the District Collectors to maintain law and order
and public peace. In para 8 of the affidavit, respondent no.1 has averred that
immediately on receipt of the Court's order, a copy thereof was sent to
respondent no.2 with suitable instructions to take necessary action and within
the available time the police force was mobilized and bandobust was provided to
all vital installations, State and Central Government offices, educational
institutions, Tamil Nadu State Transport Corporation depots, bus stands,
railway stations, airports, markets, places of worship, hospitals, important
junctions, business areas and other places where people used to congregate and
bandobust was also provided to the industrial establishments for their smooth
functioning and pickets were posted at all sensitive places to avert law and
order problems. According to respondent No.1, effective patrols and mobiles
were organized for ensuring free flow of traffic in the State and open line
patrols were deputed for keeping watch on the railway tracks; all the courts
including the Madras High Court were given sufficient protection; vehicle
checks were organized to prevent the movement of anti-social elements and
trouble mongers and rowdy elements were detained under preventive measures.
Respondent No.1 has claimed that on 1.10.2007 all the Courts functioned
normally and movement of trains and other essential services were maintained
without any obstruction. As regards transport services, respondent no.1 has averred
that less number of Government transport services operated in the early morning
but with the passage of time around 2749 routes were made operational.
5. In his affidavit,
respondent no.2, Shri P. Rajendran, has detailed the steps taken for ensuring presence
of police at various important places for maintaining law and order and
movement of transport services. He has denied that workers of Dravida Munnetra
Kazhagam party had forcibly closed business establishments and shops by
wielding lethal and deadly weapons for the purpose of conveying threats to the
public.
6. In his affidavit,
respondent no.3 - Shri Debendranath Sarangi has given an account of the steps
taken for ensuring normal operation of State Transport Services. In paragraphs
11 of the affidavit, respondent no.3 has averred that senior officers, i.e.,
Branch Managers and Divisional Managers of various State Transport Undertakings
were instructed to ensure normal operation of buses on 1.10.2007.
Respondent No.3 has
then averred that the officers were on duty on 1.10.2007 and adequate police
bandobust was provided at the Depots, but most of the crew did not turn up in
the morning on 1.10.2007 and even those who came did not enter the Depot
premises, did not sign the duty chart and dispersed after holding demonstration
in front of the Depots; that the Branch Managers and Divisional Managers made
efforts to operate the bus services with the help of available crew and with
the passage of time the number of services substantially increased. Respondent
No.3 has denied that the Drivers and Conductors were prevented from carrying
out their duties or that the conductors did not issue tickets or that the main
gates of bus terminals were closed and locked. He has also denied receipt of
any representation or telegram. In para 15 of the affidavit, respondent No.3
has referred to the call given by the trade unions to abstain from work in the
wake of decision taken by the political parties and averred that even though
the latter withdrew the call for cessation of work, there was no corresponding
response from the trade unions due to paucity of time and also due to the fact
that most of the workers had left for outside places taking advantage of the
impending strike and two days' holidays. Respondent No.3 has also stated that
the crew members who did not attend the duty on 01.10.2007 have not been paid
the wages as per the policy "no work no pay". Respondent No.3 has
controverted the petitioner's assertion that daily collection of the Transport
Corporations is over Rs.10 crores. According to him, the average collection of
the Transport Corporations is Rs.7.5 crores per day, which is reduced to half
on any holiday and less than half in the event of continuous holidays for 3-4
days. According to respondent No.3, total collection on 1.10.2007 was Rs.483
lakhs. Lastly, respondent no.3 has averred that in observance of the order of
this Court necessary instructions were given to Managing Directors of all the
State Transport Corporations to ply buses and send reply by Fax.
7. Respondent No.4,
Shri M. Karunanidhi, has come up with the plea that initially he was advised to
adopt the counter affidavits of respondent nos.1 and 2 and a statement to that
effect was made before the Court on 4.8.2008 by the advocate representing the
State of Tamil Nadu but, later on, he decided to file a separate counter
affidavit. In paragraph 3 of the affidavit, respondent no.4 has given the background
in which decision was taken by Democratic Progressive Alliance comprising major
political parties in Tamil Nadu to demonstrate their concern on the delay in
implementation of Sethu Samudram Project by observing cessation of work between
6 a.m. to 6 p.m. on 1.10.2007. Respondent No.4 has then averred that on the
basis of reports appearing in the TV news channels and after verifying the
facts from counsel appearing on behalf of respondent no.3 in the special leave
petition, he gave a call at about 1.30 p.m. for withdrawal of resolution dated
24.9.2007 and this was conveyed to the concerned political parties. According
to respondent no.3, instructions were given to the government officials to
carry out the Court's order and ensure that the bandh did not take place on
1.10.2007 and the fast undertaken by political parties should not, in any way,
affect the general public or hinder their routine life. For the sake of
convenience, paragraph 7 of the affidavit of respondent no.4 is reproduced
below:- "7. The order passed by this Hon'ble Court was communicated to the
Chief Secretary to Government of Tamil Nadu by FAX at 10.30 PM by the Registrar
of this Court on 30.09.2007. Even before the order was officially communicated,
it was flashed in the TV News channels. After verifying with counsel at New
Delhi and without waiting for any formal communication from this Hon'ble Court,
at about 1.30 PM I immediately called for the withdrawal of the resolution
dated 24.09.2007 passed by the Democratic Progressive Alliance for cessation of
work. This was also conveyed to all political parties, which were party to the
said Resolution. However, Democratic Progressive Alliance decided to hold a day
long fast on 1st October, 2007 to draw attention to the importance of the Sethu
Samuthiram Project and for early implementation of the same. I made it clear at
that time that the fast was not against the order of this Hon'ble Court. I
annex an extract from the Hindu newspaper 1st October, 2007 reporting this
(Annexure -R1). I also gave instructions to Government officials to carry out
the order of this Hon'ble Court and to ensure that the Bandh did not take place
on 1st October, 2007, and that the day long fast undertaken by political
parties should not in any way affect the general public or hinder their routine
life."
8. Respondent No.5
has taken the stand that at the time of passing of order by this Court, he was
in his constituency (Trichy) and on receipt of information about the Court's
order, he instructed respondent no.3 to take steps to maintain normalcy in
transport services on 1.10.2007. Respondent No.5 has also stated that he had
been continuously monitoring the operation of transport services from Trichy
and also made efforts to contact the trade unions and instructed them to direct
the workers to report for duty in view of withdrawal of call for cessation of
work given by Democratic Progressive Alliance.
9. In paragraphs 4
and 5 of affidavit dated 26th August, 2008 filed by him, respondent no.6 - Shri
T.R. Baalu has resorted to the rhetoric that he has highest respect for the
judiciary and he is a strong believer in the independence of the judiciary. In
paragraph 7 of the affidavit, respondent no.6 has made a mention of his
electoral achievements and averred that the contempt petition has been filed
with the sole object of tarnishing his political image in the State and
position as Minister in the Central Government. In paragraph 8, respondent no.6
has alleged that by filing petition before this Court, the petitioner which is
the main opposition party in the State is trying to indirectly achieve which it
could not achieve in the political arena.
Respondent No.6 has
then given his own interpretation of the term bandh and averred that he did not
participate in any activity which can be described as a bandh.
In paragraph 11 of
the affidavit, respondent no.6 has averred that nothing in the quoted speech
constitutes participation in bandh or instigating others to do so and whatever
he said was legitimate exercise of freedom of speech. In paragraph 12,
respondent no.6 has claimed that the newspaper report regarding his speech is
not accurate and words have been put in his mouth which were not uttered by
him.
10. Arguments in the
case were heard on 11.11.2008 and concluded on 12.11.2008 qua the alleged
contemnor nos.1 to 5. However, the case was adjourned to 10.12.2008 to enable
the petitioner to file additional affidavit in relation to respondent no.6 with
liberty to the latter to file reply within two weeks. On the next date, i.e.,
10.12.2008, the Court considered an application made on behalf of the
petitioner for summoning the tapes of the speech allegedly made by respondent
no.6 on 1.10.2007 at Chennai and ordered issue of notice to the Resident
Managers of Times Now Channel and Jaya T.V. requiring them to produce the tapes
and original chips of the speech. Notices were also issued to Dhanya Rajendran
and M. Ramasubramanian (reporters) and Manish Dhanani, Y. Jayaprakash and S. Ravikumar
(camera persons of Times Now Channel and Jaya T.V. respectively).
11. In response to
the Court's notice, Shri M. Vasudev Rao, authorised signatory of Times Global
Broadcasting Company Limited, which is running Times Now Channel, sent letter
dated 16th January, 2009 stating therein that the company is unable to provide
the original tapes and news clips of the speech delivered by respondent no.6
because in terms of the Uplinking and Downlinking Guidelines issued by the
Ministry of Information & Broadcasting, Government of India, the company
maintains a record of the contents uplinked and downlinked by its channel for a
period of 90 days from the date of its telecast. After taking note of that
letter, the Court allowed further time to the parties to file affidavits.
12. In furtherance of
the liberty given by the Court, the petitioner filed affidavits of S/Shri M.
Ramasubramanian, S. Ravikumar and R. Thillai, who were working as Reporter,
Assistant Camera Person and Senior Sub-Editor respectively with Jaya T.V. on
1.10.2007. In his affidavit, Shri M. Ramasubramanian has claimed that he was
deputed to cover the hunger strike organized by DMK and other allied parties on
1.10.2007 in front of the State Guest House, Chepauk, Chennai. He has then
averred that he along with Shri Ravikumar (camera person) and Shri Satish (camera
assistant) went to cover the events and that he was present at the venue where
respondent no.6 made speech and Ravikumar recorded the speech which was in
Tamil with sentences/phrases in English. According to Ramasubramanian, speeches
of respondent no.6, Shri D. Raja of C.P.I. and Shri K. Veeramani of Dravida
Kazhagam only were recorded and the original tapes were handed over to Shri R.
Thillai. According to Shri S. Ravikumar, he accompanied by Shri Satish went to
the venue of the hunger strike and recorded the speeches made by three persons
and, thereafter, original tapes were handed over to Shri R. Thillai. In his
affidavit, Shri R. Thillai has stated that Jaya T.V. shoots visuals on cameras
using DV tapes and so far the channel has not shifted to the digital format and
whenever visuals are brought by the reporting team, the same are ingested into
the visual editing system called Avid and, thereafter, the tapes are reused for
recording other events. Paragraphs (d), (e) and (f) of the affidavit of Shri R.
Thillai, contain the following statements:
"d. It may be
noted that the original tapes on which the visuals are recorded upon being
ingested into the avid system as aforesaid and after the necessary visuals are
taken, are re-used for recording other subsequent events. In the process, the
left out visuals of a previous recording are erased since new recordings are
made over the same. The tapes are re-cycled in this manner and not retained in
view of commercial and operational compulsions.
e. Some of the
original recordings are transferred on to separate DV tapes or DVDs for archival
purposes as for example, file shots of certain important events so that they
could be used for future purposes. The news bulletins, as telecast over the
channel, are stored in the DVD format in the library.
f. That the protests
organized by the DMK and its allies on 1.10.2007 by way of the hunger strike at
Chennai was covered by the reporting team of Mr. Ramasubramanian and Mr. S.
Ravikumar and Camera
assistant Satish. They had handed over to me the original tapes containing the
events recorded including the speech made by Mr. T.R. Baalu, Union Minister for
Shipping and of certain other speakers during the afternoon on 1.10.2007.
On my instructions,
the news branch technicians ingested the contents of the original tapes
containing the events covered including the speech of Mr. T.R. Baalu, into the
Avid system.
From this, I selected
the portions in the speech of Mr. Baalu which were most objectionable and found
appropriate to be telecast.
Accordingly, the
portions were selected and telecast in the news bulletin carried by the channel
on 1.10.2007 at 7.30 PM and on 2.10.2007 at 7.30 PM. The portions of the speech
as telecast on the news bulletins clearly show the speech made by Mr. T.R. Baalu
and the objectionable statements made by him, the translations of which read as
follows:
"A Judge is a
judge till yesterday. Today there are allegations against him. Every day a list
of corruption charges are coming out from Delhi. What does that mean? Is a
person who was honest till yesterday dishonest today? The nation has not
forgotten the fact that such people are also judges. When has there been
[hearing] on a Sunday? Something unprecedented is happening. Why is there a
provision for impeachment in the Constitution? Our M.Ps are all sitting here.
We should also think about it. There is nothing wrong about it. Our MPs must
know about it. Including Ministers.
Everybody can sign
it."
The news bulletins as
telecast is submitted before this Hon'ble Court in the form of a DVD which is
filed as Annexure A/1 to this affidavit."
In the last paragraph
of his affidavit which is again marked as (f), Shri R. Thillai has stated as
under:
"f. That I
submit therefore that the original tape containing the speech of Mr. T.R. Baalu
is not available.
Nevertheless, the
news bulletins telecast by the channel containing the objectionable portions of
his speech are presented before this Hon'ble Court."
13. To the above
noted 3 affidavits, respondent no.6 has filed a reply on 21.3.2009. The thrust
of his reply is that Jaya T.V. is controlled by AIADMK party on whose behalf
the contempt petition has been filed and, therefore, it cannot be treated as an
independent media and that failure of the management of Jaya T.V. to produce
tapes and original chip of the speech allegedly made by respondent no.6 should
be treated as sufficient for rejecting the affidavits. In paragraphs 7 to 12 of
the reply, it has been averred that the petitioner has produced before the
Court a truncated, edited and doctored version of the telecast made by Jaya
T.V. channel, and the same is liable to be discarded because the full and
correct version of the speech made by respondent no.6 has been erased and the
original tape containing the speech has not been produced.
14. In the light of 3
affidavits filed on behalf of the petitioner and counter filed by respondent
no.6, further arguments were heard on 25.3.2009 and judgment was reserved.
15. Shri S. Guru
Krishna Kumar, learned counsel for the petitioner in S.L.P. (C) No.18879 of
2007 representing the petitioner in Contempt Petition (C) No.262 of 2007 argued
that in view of the orders passed by the Division Bench of the Madras High
Court and this Court, the call given by Democratic Progressive Alliance for
cessation of work must be treated as call for bandh in the State and even
though respondent no.4 is said to have made a statement on 30.9.2007 at 1.30
p.m. giving an impression that resolution dated 24.9.2007 was withdrawn, no
direction was given by the political establishment to the concerned officers to
ensure that the administration moves on and respondent Nos.1 to 3 did not take
steps to prevent disruption of normal life in the State. He further argued that
the so called withdrawal of the call given by the political parties for cessation
of work must be treated as sham because the workers of the party headed by
respondent No.4 indulged in physical violence and ensured that bandh is
observed throughout the State by forcing closure of shops and commercial/
industrial establishments. Learned counsel relied on the newspaper reports to
buttress his submission that the workers of Dravida Munnetra Kazhagam party
had, by wielding deadly weapons compelled the shop keepers to down the shutters
and general public to remain away from the streets and argued that this should
be treated as sufficient for drawing an inference that respondent no.4 had
deliberately manipulated violation of the Court's order. Shri Guru Krishna
Kumar emphasized that the business, commercial/industrial establishments could
not have remained closed without intimidation and use of force by the outfits
of the political parties and argued that respondent no.4 should be held
responsible for the acts of his party workers. Learned counsel then argued that
by sitting on hunger strike, respondent No.4 and other political parties
deliberately violated the Court's order restraining them to organize bandh
because out of fear the schools, colleges, business, commercial and industrial
establishments were closed and people refrained from carrying out their normal
activities. Learned counsel submitted that if respondent no.4 genuinely wanted
to abide by this Court's order then after making a statement in the afternoon
of 30.9.2007 that there will be no cessation of work, he would have given written
instructions to respondent nos.1 to 3 to ensure that the public life is not
disturbed but instead of doing so respondent no.4 indirectly encouraged the
officers to enforce the bandh else there was no reason why majority of buses
belonging to seven State Transport Corporations did not ply on 1.10.2007
putting the general public to great inconvenience and acute hardship. Learned
counsel referred to the averments contained in paragraphs 10 to 12 of the
contempt petition, to show that even as per the statement made by respondent
no.1 in an interview given to a television channel during the mid day on
1.10.2007, only 61 of the 18641 buses could be operated on the date of bandh
and argued that this should be treated as a clear proof of abject failure of respondent
nos.1 to 3 to ensure that the normal life is not affected and the public is not
inconvenienced. Learned counsel pointed out that due to the bandh organized by
Democratic Progressive Alliance, which was indirectly supported by respondent
nos.1 to 3, State Transport Corporations suffered loss to the tune of Rs.10
crores and submitted that all the respondents should be made to compensate the
State Transport Corporations. Learned counsel submitted that in a cabinet form
of government, the political party in power is responsible for the action and
omissions of the administrative officers and, therefore, respondent no.4 should
be held guilty of committing contempt of Court. As regards respondent no.6,
Shri Guru Krishna Kumar strongly relied on the speech made by the said
respondent on 1.10.2007 and argued that he should be held guilty of committing
criminal contempt within the meaning of Section 2(c) of the 1971 Act and
adequately punished. In support of his arguments, Shri Guru Krishna Kumar
relied upon the judgments of this Court in Mohd. Aslam v. Union of India
[(1994) 6 SCC 442], M. v. Home Officer [(1993) 3 All ER 537], A. Sanjeevi Naidu
v. State of Madras [(1970) 1 SCC 443], Azhar Ali Khan v. Commissioner,
Municipal Corporation of Delhi [(1984) 3 SCC 549], Hoshiar Singh v. Gurbachan
Singh [1962 (Supp) 3 SCR 127], T.N. Godavarman Thirumulpad v. Ashok Khot
[(2006) 5 SCC 1], Aswini Kumar Ghose v. Arabinda Bose [1953 SCR 215] and E.M.
Sankaran Namboodripad v. T. Narayanan Nambiar [(1970) 2 SCC 325].
16. Shri R.
Venkataraman, learned counsel appearing on behalf of the petitioner in Contempt
Petition No.262 of 2007 argued that respondent nos.1 to 5 are guilty of civil
contempt inasmuch as they willfully disobeyed the directions contained in order
dated 30.9.2007 passed in Special Leave Petition (Civil) No.18879 of 2007 and
ensured that total bandh is organized in the State. Learned counsel further
argued that respondent no.6 is guilty of criminal contempt because he
scandalized the Court's order dated 30.9.2007 by making unwarranted remarks
against the judiciary in general and particularly against the Bench which
passed the restraint order.
17. Shri Ashok Desai,
learned senior counsel appearing for respondent nos.1 and 2 argued that his
clients cannot be held guilty of contempt of court because even before formal
receipt of the Court's order at 10.30 p.m. on 30.9.2007, respondent no.1 had
issued detailed instructions to all the officers to ensure that general public
is not inconvenienced and normal life is not disrupted on account of the call
given by the political parties for hartal. Learned senior counsel referred to
the instructions contained in telefax issued as per the directions of
respondent No.1 and fax sent by Additional Director General of Police (Law
& Order) to show that respondent nos.1 and 2 had taken all measures for
protection of hospitals, courts, railways, airports, banks, schools, telecom
installations, transport services, shops and markets, industrial establishments
and for ensuring that essential services like supply of milk and water and
movement of trains are maintained without any obstruction and the police force
was mobilized to protect the lives and property of the people in addition to
Government and private establishments. Shri Desai emphasized that proceedings
under the 1971 Act are quasi criminal and argued that respondent nos.1 and 2
cannot be accused of committing contempt within the meaning of Section 2(b) of
the 1971 Act because the petitioner has not produced any evidence to show that
they willfully disobeyed order dated 30.9.2007. Learned senior counsel
submitted that respondent nos.1 and 2 cannot be held guilty of contempt merely
because leaders of political parties sat on hunger strike on 1.10.2007 and the
business community did not open the shops in view of resolution dated 24.9.2007
passed by Democratic Progressive Alliance for cessation of work. He submitted
that the buses of the State Transport Corporations could not be operated in the
early part of the day on 1.10.2007 because trade unions affiliated to political
parties had decided to abstain from work and large number of employees might
have left their stations in view of the call for cessation of work on 1.10.2007
given by the Democratic Progressive Alliance and the coming holidays on 29th
and 30th September, 2007 and again on 2nd October, 2007.
18. Shri T.R.
Andhyarujina, learned senior counsel appearing for respondent no.4, extensively
referred to affidavit dated 22.8.2008 of his client to show that even before
receipt of the Court's order, he had made a statement for withdrawal of
resolution dated 24.9.2007 and argued that in the absence of any evidence to
show that respondent no.4 had instigated anyone to disrupt the essential
services or cause inconvenience to the general public, he cannot be proceeded
against under the 1971 Act. Learned counsel submitted that telefax dated
30.9.2007 sent at the instance of respondent no.1 also shows that the
administration had taken positive steps to ensure that essential services are
not disturbed due to call given by the political parties for cessation of work
etc. on 1.10.2007 and the police bandobust was provided for all public and
private establishments and effective steps were taken for maintaining transport
services.
19. Dr. A.M. Singhvi,
learned senior counsel appearing for respondent nos.3 and 5, argued that the
concerned Minister and Secretary had made genuine efforts to ensure that
operation of buses by the State Transport Corporations is not jeopardized due
to the call given by the Democratic Progressive Alliance for cessation of work
or for hunger strike on 1.10.2007 and, therefore, they cannot be held guilty of
contempt under Section 2(b) of the 1971 Act. Dr. Singhvi placed before the
Court a compilation of fax messages and circulars issued by respondent no.3 and
statements containing the details of buses operated by seven State Transport
Corporations on 1.10.2007 and collection of revenue to the tune of Rs.4.83
crores and argued that in the absence of any evidence or contemporaneous record
to show that respondent nos.3 and 5 were directly responsible for non-operation
of bus services for some time, they cannot be hauled up on the allegation of
committing contempt of Court. Shri Singhvi emphasized that unless intentional circumspection
of the Court's order or positive attempt to frustrate implementation thereof is
proved, the respondents cannot be proceeded under the 1971 Act.
20. Shri M.N. Rao,
senior advocate argued that newspaper reports of the alleged speech made by respondent
no.6 on 1.10.2007 at Chennai cannot be relied upon for holding him guilty of
contempt of court because the petitioner has not produced primary evidence of
the so-called speech. Shri Rao emphasized that newspaper reports merely
represent the version given by the correspondent on the basis of his
understanding/impression of the speech made by respondent no.6 and the same do
not constitute primary evidence of what was actually stated by respondent no.6
warranting initiation of action for criminal contempt. Shri Rao further argued
that the tape/CD of the telecast of the speech of respondent no.6 does not
represent the true and correct version of what was said and as the original
version has been erased and tape has been reused, the allegation made against
respondent no.6 is liable to be discarded.
21. In his rejoinder
arguments, Shri S. Guru Krishna Kumar highlighted discrepancies in the fax
messages sent by respondent no.3 as also the statement of income produced by
Dr. A.M. Singhvi and submitted that these documents appear to have been
fabricated after issue of notice by this Court. He then argued that these
documents cannot be relied for exonerating respondent nos.1 to 3 of the charge
of highly contumacious conduct which resulted in violation of the Court's
order.
22. We have
considered the submissions/arguments of learned counsel for the parties.
Section 2(b) and (c) of the 1971 Act which define civil and criminal contempt
read as under:
2(b) "civil
contempt" means wilful disobedience to any judgment, decree, direction,
order, writ or other process of a court or wilful breach of an undertaking
given to a court;
2(c) "criminal
contempt" means the publication (whether by words, spoken or written, or
by signs, or by visible representations, or otherwise) of any matter or the
doing of any other act whatsoever which- (i) scandalises or tends to
scandalise, or lowers or tends to lower the authority of, any court ; or (ii)
prejudices, or interferes or tends to interfere with, the due course of any
judicial proceeding; or (iii) interferes or tends to interfere with, or
obstructs or tends to obstruct, the administration of justice in any other
manner."
An analysis of
Section 2(b) shows that willful disobedience to any judgment, decree,
direction, order, writ or other process of a court or willful breach of an
undertaking given to a court constitutes civil contempt. If this definition is
read with Article 129 of the Constitution of India, it becomes clear that being
a Court of record, this Court can punish a person for civil contempt if it is
found that he has willfully disobeyed any judgment etc. or violated undertaking
given to the Court.
23. The term
"wilful" (willfull) has not been defined in the 1971 Act.
Therefore, it will be
useful to notice dictionary meaning of the said term. As per The New Oxford
Illustrated Dictionary (1980 Edition), the term "willful" means
"asserting or disposed to assert one's own will against instruction,
persuasion, etc.
obstinately
self-willed; deliberate, intentional, showing perversity or self-will".
According to Black's
Law Dictionary, Vol.II (8th Edition) - Willful means "voluntary and
intentional, but not necessarily malicious" and willfulness means
"the fact or quality of acting purposely or by design; deliberateness;
intention; willfulness does not necessarily imply malice, but it involves more
than just knowledge; the voluntary, intentional violation or disregard of a
known legal duty." As per the Stroud's Judicial Dictionary, Vol.5 (4th
Edition), wilful disobedience means "the willful disobedience of a SEAMAN
or apprentice is `wilfully disobeying any lawful command DURING the
engagement': `There may be many cases in which desertion or absence without
leave, would not amount to willful disobedience, and in these cases the seaman
would only be liable to the lesser penalty. Where, however, the seaman deserts
or is intentionally absent without leave after the time at which he has been
lawfully ordered to be on board, his desertion or absence may amount to `wilful
disobedience', and, consequently, that he would be liable to imprisonment. The
words `during the engagement' seem to suggest that the contract between the
employer and the employed should be taken into account, and that if, having
regard to that contract, the order was one which the employed was bound to
obey, his disobedience might be dealt with under clause (d)" In Shorter
Oxford English Dictionary, the term "willful" has been defined as,
"asserting or disposed to assert one's own will against persuasion, instruction,
or command; governed by will without regard to reason; obstinately self-willed
or perverse; 2. Willing; consenting; ready to comply with a request, desire, or
requirement - 1598. 3. proceeding from the will;
done or suffered of
one's own free will or choice; voluntary - 1687. 4. Done on purpose or
wittingly; purposed, deliberate, intentional. (Chiefly, now always, in bad
sense of a blameworthy action; freq. implying `perverse, obstinate'.)
24. In Ashok Paper
Kamgar Union v. Dharam Godha and others [(2003) 11 SCC 1], this Court was
called upon to decide whether the respondents, i.e., Shri Dharam Godha,
Chairman, Nouveau Capital & Finance Ltd., Shri S. Jagadeesan, Joint
Secretary, Ministry of Industry, Department of Industrial Policy and Promotion,
Government of India, Shri G.S. Kang, Secretary, Department of Industries,
Government of Bihar, Shri S.N. Khan, Chairman and Managing Director and Shri
R.P. Chabra, Chief General Manager, Rehabilitation Finance Department,
Industrial Development Bank of India were guilty of contempt. The facts of the
case were that by an order dated 8.7.1996, this Court approved the proposal
made by the Government of India for take over of M/s. Ashok Paper Mills by M/s.
Nouveau Capital and Finance Ltd. and disposed of the writ petition filed by
Ashok Paper Kamgar Union. Later on, by an order dated 1.5.1997, all concerned
were directed to participate in implementation of the scheme and the Finance
Secretary, Ministry of Finance, Government of India was directed to ensure that
the legal requirements are fulfilled and the mill is rehabilitated and both
Phases I and II of the Scheme are given effect to. Two more orders were passed
by the court in the matter on 31.7.2000 and 1.9.2000. The petitioner alleged
that the respondents have failed to comply with the directions given by the
Court for implementation of the Scheme and, therefore, they are liable for
contempt of court. This court took cognizance of the fact that M/s.
Nouveau Capital &
Finance Ltd. had failed to pay the consideration of Rs.6 crores;
that IDBI had
disbursed term loan of Rs.15 crores towards Phase I of revival Scheme; that the
Department of Industrial Policy and Promotion, Ministry of Commerce and
Industry, Government of India in cooperation with the Department of Banking
obtained sanction for additional term loan of Rs.11 crores from IDBI and a
working capital of Rs.9.25 crores from United Bank of India; that NCFL had
invested Rs.20 crores towards promotion contribution which was much more than
amount contemplated in Phase I of the Scheme and held that respondents cannot
be held guilty of contempt. Para 17 of the judgment which contains discussion
on the subject reads as under:
"Section 2(b) of
the Contempt of Courts Act defines "civil contempt" and it means
wilful disobedience to any judgment, decree, direction, order, writ or other
process of a court or wilful breach of undertaking given to a court.
"Wilful" means an act or omission which is done voluntarily and
intentionally and with the specific intent to do something the law forbids or
with the specific intent to fail to do something the law requires to be done,
that is to say, with bad purpose either to disobey or to disregard the law. It
signifies a deliberate action done with evil intent or with a bad motive or
purpose. Therefore, in order to constitute contempt the order of the court must
be of such a nature which is capable of execution by the person charged in
normal circumstances. It should not require any extraordinary effort nor should
be dependent, either wholly or in part, upon any act or omission of a third
party for its compliance. This has to be judged having regard to the facts and
circumstances of each case. The facts mentioned above show that none of the
respondents to the petition can be held to be directly responsible if the
Scheme which had been formulated by the Government of India on 28-6-1996 and
had been approved by this Court by the order dated 8-7-1996 could not be
implemented in letter and spirit as many factors have contributed to the same.
The reasons given for non-inclusion of Shri Umadhar Prasad Singh in signing of
the agreement appear to be quite plausible. NCFL has undoubtedly not discharged
its liability of making payment of its entire liability of Rs.6 crores.
However, it has come
out with a case that some additional expenditure has been incurred in running
the unit. It is not possible to get the complete financial picture only on the
basis of the affidavits filed in the present petition. On the material on
record, therefore, it is not possible to hold that the charge of having
committed contempt of court on account of alleged non- compliance with the
orders passed by this Court on 8-7-1996, 1-5- 1997 and 31-7-2000 has been
established against any one of the respondents."
[Emphasis added]
25. In Delhi
Development Authority v. Skipper Construction [(1995) 3 SCC 507], this Court
highlighted distinction between the civil and criminal contempt in the
following words:- "Civil contempt is defined under Section 2(b) of the
Act. Thus, any wilful disobedience to the order of the court to do or abstain
from doing any act is prima facie a civil contempt. Civil contempt arises where
the power of the court is invoked and exercised to enforce obedience to orders
of the court.
On the contrary,
criminal contempts are criminal in nature. It may include outrages on the
Judges in open court, defiant disobedience to the Judges in court, libels on
Judges or courts or interfering with the courts of justice or any act which
tends to prejudice the courts of justice."
26. In Kapildeo
Prasad Sah and others v. State of Bihar and others [(1999) 7 SCC 569], the
Court outlined the object of its contempt jurisdiction in the following words:-
"For holding the respondents to have committed contempt, civil contempt at
that, it has to be shown that there has been wilful disobedience of the
judgment or order of the court. Power to punish for contempt is to be resorted
to when there is clear violation of the court's order. Since notice of contempt
and punishment for contempt is of far-reaching consequence, these powers
should be invoked only when a clear case of wilful disobedience of the court's
order has been made out. Whether disobedience is wilful in a particular case
depends on the facts and circumstances of that case. Judicial orders are to be
properly understood and complied with. Even negligence and carelessness can
amount to disobedience particularly when the attention of the person is drawn
to the court's orders and its implications.
Disobedience of the
court's order strikes at the very root of the rule of law on which our system
of governance is based. Power to punish for contempt is necessary for the
maintenance of effective legal system. It is exercised to prevent perversion of
the course of justice.
No person can defy
the court's order. Wilful would exclude casual, accidental, bona fide or
unintentional acts or genuine inability to comply with the terms of the order.
A petitioner who complains breach of the court's order must allege deliberate
or contumacious disobedience of the court's order."
[Emphasis added]
27. In the light of
the above, we shall now consider whether respondent nos.1 to 5 can be said to
have willfully disobeyed order dated 30.9.2007. At the cost of repetition, we
consider it necessary to point out that while issuing notice in Special Leave
Petition (Civil) No.18879 of 2007, this Court restrained the political parties
from proceeding with the call for bandh in the State of Tamil Nadu on 1.10.2007
pursuant to resolution dated 24.9.2007 or any other day. The language of the
restraint order is unambiguous. The prohibitive injunction contained therein
was explicitly directed against the political parties and not against
respondent nos. 1 to 3.
The Court did not
direct respondent nos. 1 to 3 to act in any particular manner or take certain
specific steps to meet the challenge likely to be posed by implementation of
the call given by Democratic Progressive Alliance. This was so because the
Court could not have presumed that the restraint order passed by it will be
disregarded or flouted by the political parties. Therefore, respondent nos.1 to
3 cannot, per se, be held guilty of disobeying or violating the Court's order
dated 30th September, 2007 and punished for committing contempt of court as
defined in Section 2(b) of the 1971 Act.
28. No doubt, the
petitioners have repeatedly asserted that the buses of State Transport
Corporations and 45000 private buses remained off the road on 1.10.2007 causing
serious inconvenience to the general public and loss of revenue to the tune of
Rs.10 crores, but their assertion is partly belied by the counter affidavits of
respondent nos.1 to 3, wherein all the officers have detailed the reasons for
operation of less number of buses in the initial hours on 1.10.2007 and the
fact that revenue collection of the day was to the tune of Rs.4.83 crores. In
his affidavit, respondent no.1 has categorically averred that during the course
of the day 2749 routes were made operational. The affidavits of the official
respondents also reveal that despite instructions issued to various
functionaries, normal transport services could not be made available on account
of the support extended to resolution dated 24.9.2007 by the trade unions
affiliated to the political parties and the fact that large number of employees
had gone on leave thinking that the services may not operate in the wake of the
call given by the political parties and three holidays. This has not been
controverted by the petitioners. The photographs produced by petitioner - All
India Anna Dravida Munnetra Kazhagam do show empty streets, but the same cannot
be made basis for recording a finding of guilt against respondent nos. 1 to 3,
more so because the petitioners have not produced any evidence to prima facie
establish that the transport services did not at all operate in the State on
1.10.2007 and that too on account of any action or omission on the part of
respondent nos. 1 to 3. This being the position, it is not possible to record a
finding that respondent nos. 1 to 3 or for that reason respondent no.5
deliberately disobeyed or violated the direction given by this Court.
29. The petitioners
have also not placed on record any evidence to show that despite restraint
order passed by the Court on 30.9.2007, the political parties constituting
Democratic Progressive Alliance resorted to strike or bandh. They have not even
disputed that after coming to know about the Court's order, respondent no.4
made a statement at 1.30 p.m. withdrawing resolution dated 24.9.2007 which
contained a call for cessation of work on 1.10.2007. If, despite statement of
respondent no.4, which was made known to the public, the shops and business
establishments remained closed and the private transport operators did not
consider it proper to operate their services on 1.10.2007, respondent nos.1 to
3 cannot be held to have deliberately disobeyed the Court's order.
30. The argument of
Shri S. Guru Krishna Kumar that respondent no.4 should be held guilty of
contempt because the Government did not issue written instructions to the
officers to take steps for maintaining the essential services and to ensure
that public life is not disrupted on account of the call for bandh and the
workers of his party coerced the people to close the commercial and business
establishments is being mentioned only to be rejected. The bald statement
contained in the contempt petitions that violence and coercion was resorted to
by members of the party headed by respondent no.4 has remained unsubstantiated
because except the newspaper reports no material has been produced before the
Court giving the names and other relevant particulars of the persons who are
said to have indulged in forced closure of shops and business establishments on
1.10.2007 and no other evidence has been produced to show that respondent no.4
had, directly or indirectly, encouraged the members of his party to enforce the
call for cessation of work which has been prima facie treated by the Courts as
call for bandh. Therefore, respondent no.4 cannot be accused of having
engineered violation of the Court's order.
31. Insofar as
respondent no.6 is concerned, we find that the only material produced by the
petitioner in Contempt Petition No. 262 of 2007 is in the form of zerox copies
of newspapers and tape of the edited version of speech which is said to have
been telecast on Jaya T.V. on 1.10.2007 and 2.10.2007. The petitioner in
Contempt Petition No. 327 of 2007 has also produced zerox copies of some
newspapers. In his first affidavit, respondent no.6 has claimed that the
newspapers have reported something by putting in his mouth which he did not
speak. In his second affidavit filed in the form of reply to the affidavits of
S/Shri M. Ramasubramanian, S. Ravikumar and R. Thillai, respondent no.6 has
alleged that what was telecast on Jaya T.V. was the doctored version of his
speech. This being the position, the petitioners were duty bound to produce
some primary evidence to prove the contents of the speech made by respondent
no.6 scandalizing judiciary in general and this Court's order dated 30th
September, 2007 in particular. The zerox copies of the newspapers in which the
contents of speech made by respondent no.6 have been published cannot be relied
upon because the petitioners have not filed affidavits of those who covered the
meeting held by the political parties in front of Chepauk Guest House on
1.10.2007 and heard the speech made by respondent no.6. If such affidavits had
been filed, respondent no.6 could have been called upon to explain his
position. Likewise, the original tape containing telecast of the speech made by
respondent no.6 has not been made available to the Court.
32. The law on the
admissibility of tape recorded versions is well settled. In Ram Singh and
others v. Col. Ram Singh [1985 (Supp) SCC 611] Fazal Ali, J with whom
Sabyasachi Mukharji, J. agreed, laid down the following tests for determining
the admissibility of tape recorded version:
1. The voice of the
speaker must be identified by the maker of the record or other persons
recognizing his voice.
Where the maker is
unable to identify the voice, strict proof will be required to determine
whether or not it was the voice of the alleged speaker.
2. The accuracy of
the tape-recorded statement must be proved by the maker of the record by
satisfactory evidence: direct or circumstantial.
3. Possibility of
tampering with, or erasure of any part of, the tape-recorded statement must be
totally excluded.
4. The tape-recorded
statement must be relevant.
5. The recorded
cassette must be sealed and must be kept in safe or official custody.
6. The voice of the
particular speaker must be clearly audible and must not be lost or distorted by
other sounds or disturbances.
33. In Ziyauddin
Burhanuddin Bukhari v. Brijmohan Ramdass Mehra and others [(1976) 2 SCC 17], a
three-Judge Bench while considering the question whether the appellant was
guilty of promoting feeling of enmity between two sections of the society,
examined the question of admissibility of tape recorded speech, referred to the
judgment in R. v. Maqsud Ali [(1965) 2 All ER 464] and observed :
"We think that
the High Court was quite right in holding that the tape-records of speeches
were "documents", as defined by Section 3 of the Evidence Act, which
stood on no different footing than photographs, and that they were admissible
in evidence on satisfying the following conditions:
(a) The voice of the
person alleged to be speaking must be duly identified by the maker of the
record or by others who know it.
(b) Accuracy of what
was actually recorded had to be proved by the maker of the record and
satisfactory evidence, direct or circumstantial, had to be there so as to rule
out possibilities of tampering with the record.
(c) The
subject-matter recorded had to be shown to be relevant according to rules of
relevancy found in the Evidence Act."
34. We may now notice
some judgments in which the Courts have considered the question relating to
burden of proof in contempt cases. In Re, Bramblevale Ltd. [(1969) 3 All ER
1062], Lord Denning observed:
"A contempt of
court is an offence of a criminal character. A man may be sent to prison for
it. It must be satisfactorily proved. To use the time-honoured phrase, it must
be proved beyond reasonable doubt. It is not proved by showing that, when the man
was asked about it, he told lies. There must be some further evidence to
incriminate him. Once some evidence is given, then his lies can be thrown into
the scale against him. But there must be some other evidence. .... Where there
are two equally consistent possibilities open to the court, it is not right to
hold that the offence is proved beyond reasonable doubt."
35. In Mrityunjoy Das
and another v. Sayed Hasibur Rahman and others [(2001) 3 SCC 739], the Court
referred to a number of judicial precedents including the observations made by
Lord Denning in Re, Bramblevale Ltd. and held:
"The common
English phrase "he who asserts must prove" has its due application in
the matter of proof of the allegations said to be constituting the act of
contempt. As regards the "standard of proof", be it noted that a
proceeding under the extraordinary jurisdiction of the court in terms of the
provisions of the Contempt of Courts Act is quasi-criminal, and as such, the
standard of proof required is that of a criminal proceeding and the breach
shall have to be established beyond reasonable doubt."
36. In Chhotu Ram v.
Urvashi Gulati and another [(2001) 7 SCC 530], a two- Judge Bench observed :
"As regards the
burden and standard of proof, the common legal phraseology "he who asserts
must prove" has its due application in the matter of proof of the
allegations said to be constituting the act of contempt. As regards the
"standard of proof", be it noted that a proceeding under the
extraordinary jurisdiction of the court in terms of the provisions of the
Contempt of Courts Act is quasi-criminal, and as such, the standard of proof
required is that of a criminal proceeding and the breach shall have to be
established beyond all reasonable doubt."
37. In Anil Ratan
Sarkar and others v. Hirak Ghosh and others [(2002) 4 SCC 21], the Court
referred to the judgment in Chhotu Ram v. Urvashi Gulati and another (supra)
and observed:
"The Contempt of
Courts Act, 1971 has been introduced in the statute-book for the purposes of
securing a feeling of confidence of the people in general and for due and
proper administration of justice in the country - undoubtedly a powerful weapon
in the hands of the law courts but that by itself operates as a string of
caution and unless thus otherwise satisfied beyond doubt, it would neither be
fair nor reasonable for the law courts to exercise jurisdiction under the
statute."
38. The judgments on
which reliance has been placed by Shri S. Guru Krishna Kumar do not have any
direct bearing on this case. In A. Sanjeevi Naidu's case, the Court interpreted
the provisions of Section 68C of the Motor Vehicles Act, 1939 and held that
when a civil servant takes a decision, he does not do it as a delegate of his
Minister but on behalf of the Government, though it is always open to a
Minister to call for any file in his office and pass order or issue directions
to the officers in his Ministry regarding the disposal of Government business
generally or as regards any specified case. In Azhar Ali Khan's case, the Court
held that compliance of orders or directions given by Court to Government or
its instrumentalities cannot be avoided merely on ground of inability to comply
with its own resolution passed in the face of those clear orders or directions.
In T.N. Godavarman Thirumulpad's case it was found that the Minister and
Principal Secretary, Department of Forests, Government of Maharashtra have
brazenly and willfully flouted the Court's directions and granted permission to
certain sawmills to recommence their operations and, therefore, they were
punished under the 1971 Act.
In Mohd. Aslam's
case, this Court considered the question whether the State and its ministers
can be proceeded against in contempt for failure to obey the judicial
pronouncements. The facts of the case were that during the month of July, 1992,
land measuring 2.77 acres situated in Ayodhya was acquired by the State Government
under Land Acquisition Act, 1894, for developing an amenity for pilgrims at
Ayodhya. Writ Petition No.1000 of 1991 was filed under Article 32 of the
Constitution before this Court questioning the acquisition proceedings. On
15.11.1991, the Court noted that the Chief Minister of the State has made
statements in the meeting of the National Integration Council held on 2.11.1991
against the making of construction at the site and accordingly, resolution was
passed by the National Integration Council and directed that no construction be
made at the site.
However, despite the Court's
order, construction activities were allowed to be undertaken at the site by
Sadhus. It was urged on behalf of the respondents that any coercive/preventive
action in the matter of construction of the platform would have triggered an
adverse reaction endangering the safety of disputed `Ram Janma Bhoomi-Babri
Masjid' structure which was situated in immediate vicinity and for whose
protection Government stood committed and, therefore, the respondent who was
holding the office of the Chief Minister, cannot be held guilty of contempt.
While rejecting the plea, this Court relied upon the observations contained in
William G.
Cooper, Members of
the Board of Directors of the Little Rock v. John Aaron [358 US1 : 3 L Ed 2d 5
: 78 S Ct 1401 (1958)] and observed:- "The use of force to further
obedience to law is in any event a last resort and one not congenial to the
spirit of our Nation. ... Violent resistance to law cannot be made a legal
reason for its suspension without loosening the fabric of our society. What
could this mean but to acknowledge that disorder under the aegis of a State has
moral superiority over the law of the Constitution? The historic phrase `a
Government of laws and not of men' epitomizes the distinguishing character of
our political society.
When John Adams put
that phrase into the Massachusetts Declaration of Rights he was not indulging
in a rhetorical flourish. He was expressing the aim of those who, with him,
framed the Declaration of Independence and founded the Republic.
Compliance with
decisions of this Court, as the constitutional organ of the supreme law of the
land, has often, throughout our history, depended on active support by State
and local authorities.
It presupposes such
support. To withhold it, and indeed to use political power to try to paralyse
the supreme law, precludes the maintenance of our federal system as we have
known and cherished it for one hundred and seventy years.
Lincoln's appeal to
`the better angels of our nature' failed to avert a fratricidal war. But the
compassionate wisdom of Lincoln's First and Second Inaugurals bequeathed to the
Union, cemented with blood, a moral heritage which, when drawn upon in times of
stress and strife, is sure to find specific ways and means to surmount
difficulties that may appear to be insurmountable."
Dicey, in his Law of
the Constitution, (10th Edn., pp.193-94) said:
When we speak of the
`rule of law' as a characteristic of our country, (we mean) not only that with
us no man is above the law, but (what is a different thing) that here every
man, whatever be his rank or condition, is subject to the ordinary law of the
realm and amenable to the jurisdiction of the ordinary tribunals. In England
the idea of legal equality, or of the universal subjection of all classes to
one law administered by the ordinary courts, has been pushed to its utmost
limit. With us every official, from Prime Minister down to a constable or a
collector of taxes, is under the same responsibility for every act done without
legal justification as any other citizen. The reports abound with cases in
which officials have been brought before the courts, and made, in their
personal capacity, liable to punishment, or to the payment of damages for acts
done in their official character but in excess of their lawful authority. A
colonial governor, a secretary of State, a military officer, and all
subordinates though carrying out the commands of their official superiors, are
as responsible for any act which the law does not authorise as is any private
and unofficial person."
39. The Court then
referred to the reports of Chief Engineer, District Magistrate and Senior
Superintendent of Police and proceeded to observe:- "The next question is
whether these activities were carried on by a congregation of Sadhus at the site
and not by the State Government and despite Government's efforts. Apart from a
glib suggestion that any attempt to prevent the work would have created a
violent situation endangering the safety of the "Ram Janma Bhoomi-Babri
Masjid structure" itself, nothing is indicated as to what was sought to be
done at all to prevent constructional material coming in. There is no mention
in any of the affidavits of any of the officers as to what reasonable measures
the Government took to prevent the inflow of constructional material such as
large quantities of cement, mortar, sand, constructional equipment,
water-tankers etc. that were necessary for the work.
The report of the
Expert Committee has indicated that constructional machinery was indispensable
having regard to the nature and magnitude of the work carried out. While it is
understandable that the prevention of the gathering of Sadhus might have
created some resentment, it is un-understandable why large quantities of
building materials were allowed to be brought on the land unless it be -- and
that must be the reasonable presumption -- that the Government itself was not
too anxious to prevent it. It is not merely positive acts of violation but also
surreptitious and indirect aids to circumvention and violation of the orders
that are equally impermissible. If reasonable steps are not taken to prevent
the violation of the orders of the Court, Government cannot be heard to say
that violation of the orders were at the instance of others. The presumption is
that the Government intended not to take such preventive steps. In the facts
and circumstances of the case, we are unable to persuade ourselves to the view
that the Government was helpless and the situation that had developed was in
spite of all reasonable steps taken by the Government. Indeed there is no
indication that the Government bestirred itself to take any steps, reasonable
or otherwise, to prevent large-scale building material getting into the site.
The Chief Minister having given a solemn assurance to the National Integration
Council and permitted the terms of that assurance to be incorporated as his own
undertaking to this Court and allowed an order to be passed in those terms
cannot absolve himself of the responsibility unless he placed before the Court sufficient
material which would justify that he had taken all reasonable steps and
precautions to prevent the occurrence.
Indeed, if such
reasonable steps had been taken he could not be faulted merely because he did
not do the best by the standards of others. In this case, we find no
explanation at all apart from the fact that the Sadhus had congregated in that
place in large number, as to what steps the Government took to prevent the
constructional equipment from getting into site. If any reasonable effort had
been made and evidence of that placed before Court, it might have been possible
for the Court to assess the situation in the light of that explanation to find
out whether such steps had been taken. In the absence, we are constrained to
hold that the Government failed to take steps to prevent the grossest violation
of the order of this Court. We record a finding accordingly."
40. On the question
whether the undertaking furnished by the Chief Minister was a personal
undertaking or was on behalf of the State of U.P., the Court held:
"The last
question is whether the undertaking furnished by the Chief Minister was a
personal undertaking or was on behalf of the State of U.P. It was both.
There is no immunity
for any authority of Government, if a personal element is shown in the act of
disobedience of the order of the Court, from the consequence of an order of the
Court. Even in England where the maxim "Crown can do no wrong" has
had its influence, a distinction is made between the Crown as such and the Executive.
In a recent pronouncement of far-reaching impact, the House of Lords in M. v.
Home Office observed (as per Lord Templeman):
"My Lords,
Parliament makes the law, the executive carry the law into effect and judiciary
enforce the law. The expression `the Crown' has two meanings; namely the
monarch and the executive.
In the seventeenth
century Parliament established its supremacy over the Crown as monarch, over
the executive and over the judiciary. Parliamentary supremacy over the Crown as
monarch stems from the fact that the monarch must accept the advice of a Prime
Minister who is supported by a majority of Parliament.
Parliamentary
supremacy over the Crown as executive stems from the fact that Parliament
maintains in office the Prime Minister who appoints the ministers in charge of
the executive.
Parliamentary
supremacy over the judiciary is only exercisable by statute. The judiciary
enforce the law against individuals, against institutions and against the
executive. The judges cannot enforce the law against the Crown as monarch
because the Crown as monarch can do no wrong but judges enforce the law against
the Crown as executive and against the individuals who from time to time
represent the Crown. A litigant complaining of a breach of the law by the
executive can sue the Crown as executive bringing his action against the
minister who is responsible for the department of State involved, in the
present case the Secretary of State for Home Affairs. To enforce the law the
courts have power to grant remedies including injunctions against a minister in
his official capacity. If the minister has personally broken the law, the
litigant can sue the minister, in this case Mr. Kenneth Baker, in his personal
capacity. For the purpose of enforcing the law against all persons and
institutions, including ministers in their official capacity and in their
personal capacity, the courts are armed with coercive powers exercisable in
proceedings for contempt of court.
* * * My Lords, the
argument that there is no power to enforce the law by injunction or contempt
proceedings against a minister in his official capacity would, if upheld,
establish the proposition that the executive obey the law as a matter of grace
and not as a matter of necessity, a proposition which would reverse the result
of the Civil War. For the reasons given by my noble and learned friend Lord
Woolf and on principle, I am satisfied that injunctions and contempt
proceedings may be brought against the minister in his official capacity and
that in the present case the Home Office for which the Secretary of State was
responsible was in contempt."
In the State of Bihar
v. Rani Sonabati Kumari this Court approved the following view of Chakravartti,
C.J., in Tarafatullah Mandal v. S.N. Maitra:
"I do not say
that in fit cases a writ for contempt may not be asked for against a
corporation itself, or against a Government. In what form, in such a case, any
penal order, if considered necessary, is to be passed and how it is to be
enforced are different matters which do not call for decision in this case. In
England, there is a specific rule providing for sequestration of the corporate
property of the party concerned, where such party is a corporation. I am not
aware of any similar rule obtaining in this country, but I do not consider it
impossible that in a fit case a fine may be imposed and it may be realised by
methods analogous to sequestration which would be a distress warrant directed
against the properties of the Government or the Corporation." (emphasis
supplied) The State Government is, therefore, liable in contempt. A Minister or
Officer of Government is also either in his official capacity or if there is a
personal element contributing to contempt, in his personal capacity, liable in
contempt."
41. In the case
before us fact situation is entirely different. As mentioned above, on coming
to know of the restraint order passed by this Court, respondent no.4 made a
statement for withdrawal of resolution dated 24.9.2007 vide which call was
given by five political parties for cessation of work. It is also borne out
from the affidavit of respondent no.1 that on 24.9.2007 itself the said
respondent had issued instructions to all the officers to ensure that law and
order and essential services are maintained and the general public is not
inconvenienced due to the call given by political parties for cessation of
work. On 30.9.2007, respondent nos.1 to 3 gave detailed instructions to all the
officers to ensure that the public is not put to harassment, the government and
private properties are not damaged, supplies of essential services like water,
electricity, telecom, railways etc. are not disrupted, supply of milk etc. is
maintained and business and other commercial establishments are provided
protection. Efforts were also made to ensure that operation of transport
services is not affected. Respondent no.5 had monitored operation undertaken by
the departmental authorities for restoring normal operation by the State
Transport Corporation. It is, thus, evident that respondent nos. 1 to 5 did not
disobey the restraint order passed by this Court and respondent nos. 1 to 3
took all the steps necessary for preventing any disruption of public services
and inconvenience to the general public. It is a different thing that in the
wake of hunger strike by leaders of political parties, the business community
did not consider it proper to open shops etc. Therefore, the ratio of Mohd.
Aslam's case and other precedents referred to in that judgment cannot be
applied to this case for framing charges against respondent nos.1 to 5 on the
premise that they have committed contempt within the meaning of Section 2(b) of
the 1971 Act.
42. Insofar as
respondent no.6 is concerned, charge cannot be framed against him with
reference to Section 2(c) of 1971 Act because the petitioners have not produced
any legally admissible evidence to prove the contents of the speech allegedly
made by the said respondent. The judgments in Aswini Kumar Ghose v. Arabinda
Bose (supra) and E.M. Sankaran Namboodripad v. T. Narayanan Nambiar (supra) do
not have any bearing on this case and, therefore, we do not consider it
necessary to deal with the same.
43. In the result,
the contempt petitions are dismissed. However, the parties are left to bear
their own costs.
......................J.
[B.N. AGRAWAL]
......................J.
[G.S. SINGHVI]
New
Delhi,
April
01, 2009.
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