ABDUL RAHIM ISMAIL RAHIMTOOLA v. THE STATE OF BOMBAY

S.C.R. SUPREME COURT REPORTS ABDUL RAHIM ISMAIL RAHIMTOOLA #### _v._ THE STATE OF BOMBAY (JAFElt IMAM and J. L. KAPUR, JJ.) _Criminal Trial-Entry into India without passport-Conviction_ - _Interpretation of statute_ _and_ _rules-Reference_ _to_ _constitutional_ _Bench,_ _if and_ _when necessary-Constitution of India, Art._ _z45(3)-_ _-Indian_ _Passport Rules, z950, rr. 3 and_ _4-Indian_ _Passport Act_ _(34_ _of z9zo),_ _s._ _3._ The appellant an Indian citizen entered India without a passport after and on the basis of the decision of the Supreme Court. The appellant's contention was that s. 3 of the Indian Passport Rules, 1950, were _ultra vires_ the Constitution and that on a proper interpretation, the provisions of the section and rules did not apply to an Indian citizen ; and that when a case involves a constitutional question, it should be referred to a Bench of five Judges, described as "Constitution Bench." _Held:_ Where there is a binding decision of the Constitution Bench of this Court on the question of law as to the interpretation of the Constitution, and if the same question is raised in another matter then it cannot be said that any substantial question of law arises regarding the interpretation of the Constitution and the matter need not be referred to a Constitution Bench. On. a reasonable interpretation of s. 3 of the Act and rr. 3 and 4 of the rules, which say that "persons" entering India shall be in possession of a valid passport, there can be no manner of doubt that the provisions apply to all persons entering India including Indian citizen. The Act of entry into India without a passport was in contravention of the Rules and the appellant was rightly convicted. _Ebrahim Vazir Mavat_ v. _The State of Bombay,_ [1954] S.C.R. 933, followed. CRIMINAL APPELLATE JtrRISDICTION: Criminal Appeal No. 182 of 1957. Appeal from the judgment and order dated July 4, #### 1957, of the Bombay High Court, in Criminal Applica- tion for Revision No. 278 of 1956, arising out of the judgment and order dated the 3rd January, 1956, of the Presidency Magistrate 16 Court, Esplanade, Bombay, in Criminal Case No. 1913/P _6f_ 1955. #### 0. N. Srivastava and J. B. Dadachanji, for the appel lant. #### G. 0. Mathur and R. H. Dhebar, for the respondent. _I959_ _Mayx4._ 286 SUPREME COlJRT REPORTS **[1960(1)]** #### r959 1959. May 14. The Judgment of the Court was delivered by, _**Abdul Rahim**_ _Ismail Rahimtoola_ IMAM J.-The appellant was convicted under r. 6(a) v. of the Indian Passport Rules, 1950, hereinafter referred #### The State of to as the Rules, made under s. 3 of the Indian Pass_Bombay_ port Act, (34of1920), hereinafter referred to as the Act, and was sentenced to pay a fine of Rs. 100. The High _**Imani**_ _]._ Court in exercising its revisional jurisdiction upheld #### the conviction but reduced the sentence to a fine of Rs. 25. It granted a certificate to the appellant that the case was a fit one for appeal to this Court. ### It is beyond dispute now that the appellant is a citizen of India. Admittedly he entered the territories of India without a passport. The sole question for determination is whether his act in so entering the territories of India amounted to an offence punishable under r. 6(a) of the Rules. The Act was passed in 1920 and has been the subject #### of amendment and modification tnereafter. Its preamble states " whereas it is expedient to take power to require passports of persons entering India, it is hereby enacted as follows." "Passport " has been defined as a passport for the time being in force issued or renewed by the prescribed authority and satisfying the condi#### tions prescribed relating to the class of passport to which it belongs. Section 3 states : **(1)** The Central Government may make rules requir ing that persons entering India shall be in possession of passports, and for all matters ancillary or #### incidental tci that purpose. (2) Without prejudice to the generality of the fore go'ing power such rules may #### (a) prohibit the entry into India or any part thereof of any person who has not in his possession a passport issued to him ; (b) prescribe the authorities by whom passports must have been issued or renewed, and the conditions with which they must comply, for the purposes of this Act; and (c) provide for the exemption, either absolutely or on :111y condition, of any person or class of persons from any provision of such rules. #### S.C.li. SUPREME COUH.T HEPOliTS 287 (3) Rules made under this section may provide that _1_ _959_ any contravention.thereof or of any order issued _Abdul Rahim_ under the authority of any such rule shall be _Ismail Rahimtoola_ punishable with imprisonment for a term which v. may extend to three months, or with fine or with _The State of_ both. _Bombay_ (4) All rules made under this section shall be pub lished in the Official Gazette and shall thereupon have effect as if enacted in this Act. Rule 3 of the Rules states: #### "Save as provided in rule 4, no person, proceeding from any place outside India, shall enter, or attempt to enter, India by water, lan_d or air unless he is in possession of a valid passport conforming to the conditions prescribed in rule 5." Rule 4 specifies the persons who shall be exempted from the provisions of r. 3. Clause (b) of r. 4 exempts members o'f the Naval, Military or Air Forces of India on duty, and members of the family of any such person when accompanying such person to India on a Government transport. Clause (c) exempts persons domiciled in India proceeding from any of the :French establishments in India (other than Pondicherry. in Kairakal) or from any of the Portuguese establishments _in India or Pakistan. Clause (f) exempts persons domiciled in India entering India by land or by air over the Napalese or Tibetan ]frontier. Clause (h) exempts bonafide Mohamedan pilgrims returning from Jeddah or Basra and clause (i) exempts other persons or classes of persons specified by general or special orders of the Central Government. The date of the appellant's entry into India is not known. He was certainly arrested on February 26, 1955, and it is his case that he entered India sometime after the decision of this Court in the case of _Ebrahim_ _Vazir Mavat_ v. _The State of Bombay.(_ _[1]_ _)_ The judgment of this Court in tha~ case was delivered on February 15, 1954. On that basis the appellant entered India sometime after February 15, 1954 and before :February 26, #### 1955. It is unnecessary to specify in great detail the _Imam]._ (r) [1954] S.C.R. 933· 288 SUPREME COURT REPORTS [1960(1)] _r959_ moyements of the appellant between November 19, . 1948, when he went to Karachi for the first time, and _Abdul_ R~h•m his arrest on February 26, 1955, as his movements _I smao/ Rahimtoo/a_ d . th. . d t l t . d . . v. urmg is per10 are no re evan m etermmmg _Th•_ _state of_ whether the appellant has committed an offence punish. #### Bombay able under r. 6(a) of the Rules. The case must be _**Imam],**_ ' decidlld on the footing that sometime before his arrest on February 26, 1955, the appellant entered India without a passport. Two contentions were raised on behalf of the appel#### lant (l) that r. 3 of the Rules and s. 3 of the Act were 'l.dtra vires the Constitution in so far as they purported to affect the right of an Indian citizen to enter India without a passport and (2) that on a proper interpre- tation of the provisions of s. 3 of the Act and r. 3 of the Rules, these provisions did not apply to an Indian citizen. They applied only to non-Indian citizens. #### As to the "first contention it was urged that s. 3 of the Act and r. 3 of the Rules in so far as they purported to relate to an Indian citizen were _ultra vires_ the Constitution, as they offended against the provisions #### of Art. 19(l)(d) and (e). Article 19(l)(d) confers the fundamental right on all Indian citizens " to move freely throughout the territory of India" and Art. **19(1)** ### (e) "to reside and settle in any part of the territory #### of India." This fundamental right, however, is subject to reasonable restrictions under clause (5) of Art. 19. In the case of Ebrahim Vazir Mavat v. The State of Bombay (supra)(') the majority judgment of this Court held that an Indian citizen visiting Pakistan for any purpose whatsoever and returning to India may be required to produce a permit or a passport as the case may be before he can be allowed to enter India, and this requirement may well be regarded as a proper #### restriction upon entry. This Court, however, held that it was quite a different matter to .say that if he enters India without a permit he may on conviction for such ### offence be ordered to be removed from India. It was the order directing his removal from India which was held by this Court to be tantamount to taking away his fundamental l"ight guaranteed under Art. 19(1) (c), (1) (1954] S,C,R. 933. # _(_ ## s.c.R. SUPREME COURT REPORTS 289 #### "to reside a.nd settle in a.ny pa.rt of' the territoPy of r959 ~ndia.". It~ clear, therefore, ~ha.t so fa.r a.s this.Court _Abdul Rahim'_ #### is concerned it ha.s a.lrea.dy dE?Cided .. tha.t to reqmre an Ismail Rahimtoola Indian citizen to "produce a passport. before. he ca.n be v. allowed to enter India. may be regarded as· a proper _The Stat• of_ restriction upon entering India. This decision is _Bombay_ #### binding on us and we must follow the decision of this ### Court in the case referred to. It was, however, urged Imam]. #### that as a constitutional question has been raised this _Imam]._ IIJ&tter cannot be decided by judges less tha.n five in #### number. Therefore, the case should be referred to what is described as the Constitution Bench. Article 145(3) · 0f the Constitution . states that the minimum number of Judges who are to ·sit for the purpose of· deciding any case involving a substantial question oflaw #### a.s to the interpretation of the. Constitution or for the purpose of hearing a.ny reference under Article 143 shall ### be five. It is clear that no substantial question of law #### as to the interpretation of the ·Constitution arises in the present case as the very question raised has been decided by a Bench of this Court consistjng of five Judges. As . the question raised before us has been #### already decided by this Court it c~nnot be said that any substantial question of law arises regarding the #### · interpretation of the Constitution. As to the second submissi(>n made we have no hesitation in ~aying that the words used in s. 3 of the Act #### and rr. 3 and 4 of the Rules make it quite clear that they apply to every person including an Indian citizen. #### Under s. 3(1) of the Act the word" Persons" has been stated without any qualification. Under s. 3(2)(a) the #### words employed are "any person" and in i'. 3 the words employed are "no person". Cl~use (b) of r. 4 #### obviously applies to Indian citizens but those mentioned in that clause have been specifically exempted #### from the operation of r. 3. Cle.use (h) of r. 4(1) can apply to Indian citizens who are by religion Mohomedan. They have been exempted. · Therefore, on a reasonable interpretation of s. 3 of the Act and rr. 3 and 4 of the Rules there can be no manner of doubt #### that these provisions apply to all persons includini Indian citizens. ~1 #### 290 SUPREME COURT REPORTS [1960(1)] #### r959 In our opinion, there oan be no manner of doubt that the appellant's entry into India without a pass- Abdul Rahim h" por t was m · con t raven t" ion o r. f 3 f o th e R 1 u es an d _1_ _**smat**_ _.1 R_ _**a**_ _**imooa**_ 1 _1_ . 1 v. therefore pumshable under r. 6(a) at>.d the appel ant _Tiu siatenf_ was rightly convicted. The appeal is accordingly _Bombay_ dismiBBed. _**Imam].**_ _r959_ _**May I4.**_ _v._ #### THE STATE OF' UTTAR PRADESH _Appeal dismissed._ #### S. GANGOLI (and connected appeal) (B. P. SINHA, P. B. GAJENDRAGADKAR and #### K. N. WANCHOO, JJ.) _Prevention of Corruption-Railway Servant under the_ _Govern-_ _ment-If a public servant_ _under the_ _Act-Prevention of Corruption_ _Act, I947_ (II _of I947),_ s. _2-Indian Railways Act, I890_ (9 _of I890),_ s. _I37(4)-lndian Penal Code_ _(45_ _of I86o),_ s. _2I._ The two appellants, who were railway servants under the Government, were put up on trial under s. l20B of the Indian Penal Code and s. 5(2) read with s. 5(1}(c} and 5(1)(d) of the Prevention of Corruption Act, 1947. The Sessions Judge who **tried the case found,** **in** **agreement with the unanimous opinion of** the assessors, the appellants guilty and sentenced appellant No. l to rigorous imprisonment for three years and appellant No. 2 to rigorous imprisonment for two years. The High Court on appeal affirmed the order of conviction and sentences passed on the appellants. It was contended on behalf of the appellants in this court that the order of conviction and the sentences passed on them were illegal as they were not public servants under s. 2 of the Prevention of Corruption Act, 1947. _Held,_ that it was apparent from the words "for any of the purposes of that Code " used by s. 137(4) of the Indian Railways Act, 1890, as it stood prior to its amendment in 1955. that the bar created by that sub-section applied, and was confined, to the purposes of the Indian Penal Code and could not be extended beyond its provisions. In respect of offences other than .those under the Code, therefore, neither sub-s. (1) of s. 137, which applied only to offences under Ch. IX of the Code, nor sub-s .. (4) of that section could apply and the question whether a railway servant charged with offences under the Prevention of Corruption Act, 1947, was a public servant or not must be decided under s. _z_ of that Act.