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A.F.R.
Judgment Reserved
Delivered on 29.01.2021
Court No. - 29

Case :- CRIMINAL MISC. WRIT PETITION No. - 10974 of 2020

Petitioner :- Jeeshan @ Jaanu And Another
Respondent :- State Of U P And 4 Others
Counsel for Petitioner :- Abou Sofian Usmani,Upendra Upadhyay
Counsel for Respondent :- G.A.
with
Case :- CRIMINAL MISC. WRIT PETITION No. - 13521 of 2020
Petitioner :- Balveer Singh Yadav
Respondent :- State Of U.P. And 2 Others
Counsel for Petitioner :- Siya Ram Verma
Counsel for Respondent :- G.A.
with
Case :- CRIMINAL MISC. WRIT PETITION No. - 14300 of 2020
Petitioner :- Doodh Nath Yadav
Respondent :- State Of U.P. And 3 Others
Counsel for Petitioner :- Amit Kumar Tiwari,Shiv Bahadur Singh
Counsel for Respondent :- G.A.

Hon'ble Pankaj Naqvi,J.

Hon'ble Vivek Agarwal,J.
(Vivek Agarwal,J.)

Heard Sri Upendra Upadhyay, Siya Ram Verma and Sri Shiv
Bahadur Singh, learned counsel for the petitioners, Sri Vinod
Diwaker, learned A.A.G. for the State assisted by Sri Deepak Mishra
and Ms. Manju Thakur, learned A.G.A. and Sri Vinay Saran, learned
Amicus assisted by Sri Saumitra Dwivedi.
These three petitions raise a common issue of violation of Right
to Privacy on account of list of top-10 criminals displayed at different
Police Stations namely, Khuldabad, District-Prayagraj, Police Station-
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Bithoor, District-Kanpur Nagar and at Police Station-Karchhana,

District-Prayagraj.

Brief facts of each petition

1. Petitioners in C.M.W.P. No. 10974 of 2020 are real brothers

engaged in business and claim to be income tax payees. They are
aggrieved with a list published at Police Station-Khuldabad,
showing their names as top-10 criminals for the year 2020.
Petitioner no. 1- Jeeshan @ Jaanu is at serial no. 3 and petitioner
no. 2 at the top of list of top-10 criminals at Police Station-
Khuldabad, (Annexure-2) to the writ petition. Petitioner no. 1 is also
aggrieved with the opening of his history sheet on 20.08.2020.
(1A) Petitioners grievance is that they are relatives of Ex-
Member of Parliament from Allahabad Constituency and due to
political vendetta, they are being harassed by the police authorities
by illegally publishing their names in the list of top-10 criminals of
Police Station-Khuldabad.
(1B) As per the contention of petitioner no. 1, police has
shown nine cases against him, out of which, he has yet not been
charge-sheeted in four cases while two cases are lodged at the
behest of Prayagraj Development Authority regarding irregularities
in the constructions.
(1C) Case of petitioner no. 2 is that in the year 2007, three
cases were registered against him simultaneously at Police
Station-Dhoomanganj, District-Prayagraj.
(1D) Vide order dated 29.10.2013 passed by the Court of
learned Additional Sessions Judge, Court No. 2, Allahabad,
petitioner no. 2 has been acquitted in Case Crime No. 287 of 2007.
In another Case Crime No. 120 of 2007, he is on bail, granted by
the Court of Sessions Judge, Allahabad while in third case, i.e.
Case Crime No. 113 of 2007, he was granted bail by the High
Court.

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(1E) Two new cases have been registered against petitioner

no. 2 in the year 2019 and 2020 purely on political motivation. In
one of the cases, he has been granted anticipatory bail while in
another, police authorities have been restrained from taking any
coercive action against the petitioner. Another fresh case has been
registered against him in 2020 at Police Station-Khuldabad under
Section 27 of the Arms Act.
(1F) It is submitted that only one case is registered against
each of the petitioners at Police Station-Khuldabad and yet on the
basis of a single case their names have been included in the list of
top-10 criminals of Police Station-Khuldabad.
(1G) It is petitioner's contention that the act of the authorities
of State is violative of Article 21 of the Constitution of India
inasmuch as Right to Life includes the right to live with human
dignity. Placing reliance on the judgment of the Hon'ble Supreme
Court in Maneka Gandhi vs. Union of India, AIR 1978 SC 59, it is
pointed out that Right to Life also means that the State cannot
curtail the dignity of a citizen in an arbitrary manner.
(1H) Petitioner's contention is that personal enmity is being
taken to illogical ends, so as to harass them by violating their
fundamental rights and malafidely declaring them to be top-10
criminals of Police Station-Khuldabad, so as to tarnish their image
and dent their dignity in public and harass their entire family. In
above backdrop, a prayer has been made for issuance of a writ,
order or direction in the nature of mandamus directing the
respondents to delete the name of the petitioners from the list of
top-10 criminals of Police Station-Khuldabad, District-Prayagraj
with a further prayer to direct the police authorities to close the
history sheet of petitioner no. 1 and not to harass them.

Brief facts in C.M.W.P. No. 13521of 2020

2. Petitioner claims himself to be an Advocate, practicing at

District-Kanpur Dehat. Petitioner's contention is that he being a

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legal professional, appears for litigants facing criminal prosecution,

as a result of which, police personnel posted at Police Station-
Bithoor, District-Kanpur Nagar have developed enmity. This enmity
became aggravated when petitioner refused to support the brother
of his opponent in the election of Gram Pradhan, Gram Panchayat-
Baikunthpur, District-Kanpur Nagar. On 11.03.2018, an FIR was
registered at the behest of petitioner against his rivals as Case
Crime No. 66 of 2018, in which his opponents have been charge-
sheeted.
(2A). According to the petitioner, he is being falsely implicated
in different cases by including his name in the list of top-10
criminals of Police Station-Bithoor, District-Kanpur Nagar,
(Annexure 1), where his name is mentioned at serial no. 8.
(2B). Petitioner's contention is that he has nothing to do with
criminal activities yet he is being falsely implicated. It is submitted
that in pending Case Crime No. 64 of 2018, under Sections 147,
148, 149, 452, 307, 323, 504, 506 IPC and Section 3(1)(10) of SC/
ST Act, cognizance has already been taken and matter is pending
before the Court of learned IInd Additional Sessions Judge (SC/ST
Act), Kanpur Nagar, yet on the basis of a single case, inclusion of
the petitioner's name in the list of top-10 criminals of Police Station-
Bithoor, District-Kanpur Nagar is arbitrary and illegal.

Brief facts in C.M.W.P. No. 14300 of 2020

3. Petitioner's contention is that he is into the business of a

concrete and sand, his firm is registered, along with GST number.
Petitioner claims to be an income tax payee.
(3A). It is submitted that out of rivalry between two groups,
false FIR was lodged in the year 2011, in which final report was
submitted on 29.08.2011, discharging petitioner and final report
was accepted by the Court. Petitioner's case is that again in the
year 2019, a false case has been registered against him and his
entire family has been roped in under Sections 323, 504, 506 IPC,

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and also under Section 3(1)(da) and 3(1)(dha) of Scheduled

Castes and the Scheduled Tribes (Prevention of Atrocities) Act,
1989 at Police Station-Karchhana, District-Prayagraj. In this case,
Investigating Officer has given a clean chit to the petitioner and
final report too has been accepted by the Court, yet another FIR
was registered against him on 27.05.2020 under Section 379 IPC ,
Sections 4 and 21of Mines and Minerals (Regulation and
Development) Act, 1957 and Rules 3, 57, 7 of U.P. Minor Minerals
(Concession) Rules, 1963.
(3B). It is submitted that High Court has been pleased to
quash the FIR against the petitioner and others in regard to all
offences except offence under Section 379 IPC, as can be verified
from order passed in C.M.W.P. No. 6027 of 2020. Placing reliance
on said judgment, it is submitted that name of the petitioner has
been wrongly included at serial no. 4 in the list of top-10 criminals
pasted at Police Station-Karchhana, District-Prayagraj, a copy of
which is enclosed as Annexure-13, to the petition.
(3C). It is submitted that petitioner had sought information as
to on what grounds his name has been included, but information
sought under Right to Information Act, 2005 has not been provided.
It is submitted that no notice under Section 41 Cr.P.C. has been
issued to the petitioner, yet on account of certain election rivalry
and political affiliations, petitioner has been falsely included in the
list of top-10 criminals.
(3D). Petitioner's case is that from 2011 to 2020, only three
cases have been registered against him, yet in violation of his
fundamental rights, his name is being scandalized and propagated
without following procedure established by law. Petitioner has not
yet been convicted in any of the criminal cases and therefore, a
prayer has been made to remove/delete his name at serial no. 4
from the list of top-10 criminals with a further prayer to take action
against respondent no. 4 directing the authorities to initiate
appropriate proceedings against the Station House Officer for

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arbitrarily and malafidely including his name in the list of top-10

criminals.
(3E). It is submitted that on inquiry, police authorities are not
in a position to disclose as to what is the criteria for preparation of
list of top 10 criminals of a police station or of district and under
what authority of law it is being published.
(3F). A common thread running through all the three petitions
is so called action of the police authorities in displaying names of
the petitioners along with others though they are undertrials, having
different vocations like business, advocacy or politics, but their
image is being tarnished and dignity dented by the police by
canvassing their names as top-10 criminals of the district or the
police station concerned, as the case may be.
(3G). This act of the respondent authorities is assailed on the
ground that publication/displaying/disclosing of the names of
petitioner infringes upon right to privacy and right to live with dignity
which brings disrepute.

4. Learned counsel for the petitioners led by Sri Vinay Saran,

Amicus submits that Right to Privacy is recognized as a sacred
fundamental right under Article 21 of the Constitution of India. He
submits that publication of the name of petitioners as well as their
criminal history is a clear violation of Right to Privacy and the right
to live with human dignity, which is a facet of Article 21 of the
Constitution. He submits that dignity of a citizen is of utmost
importance and police authorities cannot tinker with the same.

5. Learned Amicus places reliance on the order of Allahabad

High Court in case of In re Banners Placed at Roadside in the City
of Lucknow vs. State of U.P. (2020) 4 ADJ 386 , wherein it was held
that without there being any rational nexus between the object and
means adopted to achieve them, there cannot be any violation of
either the Right to Life guaranteed under Article 21 of the
Constitution or the human rights covered under the United Nations
Declaration of Human Rights, and our Municipal Law so also Right

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to Privacy recognized under the International Covenant on Civil

and Political Rights and other International and Regional Treaties.

6. Reliance is also placed on the judgment of the Supreme

Court in case of Mehmood Nayyar Azam vs. State of Chhattisgarh
and Others, (2012) 8 SCC 1, wherein it has been held that

"any form of torture or cruel, inhuman or degrading

treatment would fall within the ambit of Article 21 of the
Constitution, whether it occurs during investigation,
interrogation or otherwise. It is further held that the right
to life of a citizen cannot be put in abeyance on his
arrest. The precious right guaranteed by Article 21 of
the Constitution of India cannot be denied to convicts,
undertrials, detainue and other prisoners in custody,
except according to the procedure established by law by
placing such reasonable restrictions as are permitted by
law. This judgment further deals with the aspects of
inhuman treatment having many a facet. It can cover
such acts which have been inflicted with an intention to
cause physical suffering or severe mental pain. It would
also include a treatment when inflicted causes
humiliation and compels a person to act against his will
or conscience. Torture is not merely physical but may
even consist of mental and psychological torture
calculated to create fright to submit to the demands of
the police. Any treatment meted out to an accused
while he is in custody which causes humiliation and
mental trauma corrodes the concept of human dignity.
The majesty of law protects dignity of a citizen in a
society governed by law."

7. Reliance is also placed on the judgment of the Supreme

Court in R. Rajagopal alias R.R. Gopal and another v. State of
Tamil Nadu (1994) 6 SCC 632 , Jeevan Reddy, J. speaking for the

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Court observed that in recent times right to privacy has acquired

constitutional status. The Apex Court held that
"the right to privacy is implicit in the right to life and
liberty guaranteed to the citizens of this country by
Article 21. It is a "right to be let alone". A citizen has a
right "to safeguard the privacy of his own, his family,
marriage, procreation, motherhood, child-bearing and
education among other matters".

8. Reliance was also placed on the judgment in Bhavesh

Jayanti Lakhani vs. State of Maharashtra and Others, (2009) 9
SCC 551, wherein it was held that:
"right to privacy is a part of the right to 'life' and
'personal liberty' enshrined under Article 21 of the
Constitution. Once the facts in a given case constitute a
right to privacy, Article 21 is attracted. The said right
cannot be curtailed 'except according to the procedure
established by law'."

9. Learned Amicus submits that disclosure of criminal

antecedents and history sheet is governed by U.P. Police
Regulations. Chapter XX of U.P. Police Regulations deals with the
registration and surveillance of bad characters. Regulation 223
states about the village crime note book, which is a confidential
record, kept at police station. Regulation 223 envisages that officer
incharge of the police station is responsible for case study of such
village crime note book. Part V of case crime note book consist of
history sheet, which is again a personal record of a criminal under
surveillance.

10. Regulation 240 deals with history sheet of Class-A 'offenders

considered capable of reform' and Class-B 'offenders considered
incapable of reform' and provides that it may be opened either on
the basis of suspicion, on conviction or acquittal.

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11. It is submitted that Regulation 240 will be applicable to the

facts of the present set of cases where history sheet can be
opened on the basis of suspicion, however, Regulation 250
provides that the list of bad characters in history sheets are
confidential records and it is the responsibility of the Station House
Officer to ensure that persons other than authorized under
Regulation 240 namely, the Station House Officer, the Circle Officer
and the Superintendent of Police/Senior Superintendent of Police
and no other person has access to them.

12. Placing reliance on the judgment of Supreme Court in Malak

Singh and Others vs. State of Punjab and Haryana and Others,
(1981) 1 SCC 420 and the judgment of Allahabad High Court in
Abdul Rahman vs. Abdul Rahim, (1924) ILR 46 (All) 884, it is
submitted that even history sheets and village crime note books
are not public documents, therefore, publishing names of the
petitioners as top-10 criminals is neither envisaged under the U.P.
Police Regulations nor it can be read into the policy of the State
dated 06th July, 2020. It is submitted that there is nothing in the
policy to reveal that even policy envisages publication of any such
list of top-10 criminals on the notice board or flysheet board of a
police station.

13. Placing reliance on the judgment of Supreme Court in

Umesh Kumar vs. State of Andhra Pradesh and Others, (2013) 10
SCC 591, it is submitted that Right to Life includes right to ones
reputation, freedom from defamation. It is submitted that right to
reputation is held to be a personal right protected under Article 21.
It is submitted that

"reputation is a sort of right to enjoy the good opinion of

others and it is a personal right and an injury to
reputation is a personal injury. Thus, slander and
defamation are injurious to reputation. Reputation has
been defined in dictionary as “to have a good name; the

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credit, honor, or character which is derived from a

favourable public opinion or esteem and character by
report”. Personal rights of a human being include the
right of reputation. A good reputation is an element of
personal security and is protected by the Constitution
equally with the right to the enjoyment of life, liberty and
property. International Covenant on Civil and Political
Rights 1966 recognizes the right to have opinions and
the right of freedom of expression under Article 19 is
subject to the right of reputation of others. Reputation is
“not only a salt of life but the purest treasure and the
most precious perfume of life.” Placing reliance on this
judgment, it is submitted that even if the
circular/guidelines issued by the DGP on 06th July, 2020
is taken as it is, then also the guidelines does not permit
publication of names of criminal/accused/history
sheeters on the flysheet board of a police station.

(13A). Placing reliance on the judgment of the

Supreme court in Natural Resources Allocation, in Re,
Special Reference No.1 of 2012 – (2012) 10 SCC 1, it is
submitted that while determining violability of a
legislation or executive action on the touchstone of
Article 14 of the constitution, test that is to be applied is
that State action, to escape the scrutiny of Article 14 has
to be fair, reasonable and non-discriminatory, in pursuit
of promotion of healthy competition and equitable
treatment. State action must conform to norms, which
are rational, informed with reasons and guided by public
interest. Executive action should have clearly defined
limits and should be predictable. Man on the street
should know why a decision has been taken in favour of
a particular person. Lack of transparency in decision
making process would render it arbitrary.

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14. Shri Vinod Diwakar, learned Additional Advocate General for

the State of Uttar Pradesh in turn supports the impugned policy
dt.06.07.2020 and submits that Chapter I Regulation 1 of the Uttar
Pradesh Police Regulations provides that the Inspector General is
the head of the police department and the Adviser of the Governor-
in-Council in all questions of police administration. All orders from
the Governor-in-Council to a member of police force are issued
through him, except in cases of urgency when copies of any orders
issued directly to subordinate officers are sent to him. Thus placing
reliance on such provisions of Regulation 1, it is submitted that
orders passed by the Director General of Police is a valid order and
has a binding force on all the personnel of the police department
subordinate to the Director General of Police.

15. Learned A.A.G. submits that policy/circular even if not law,

yet State can on the basis of intelligible criteria publish names of
the accused. Learned counsel for the State placed reliance on the
judgment of the Supreme Court in the case of Kailash Chandra
Sharma etc. etc. Vs. State of Rajasthan and others as reported in
(2002) 6 SCC 562 specifically drawing attention to para 11 of the
judgment, wherein circular dated 10.06.1998 providing for bonus
marks to residents of the concerned district and the rural areas
within that district was put to test. On the touchstone of Article 14
read with Article 16 of the Constitution it was held that impugned
circular is the product of the policy decision taken by the State
Government. Even then, as rightly pointed out by the High Court,
such decision has to pass the test of Articles 14 and 16 of the Con-
stitution. If the policy decision, which in the present case has un-
doubted effect of deviating from normal and salutary rule of selec-
tion based on merit is subversive of the doctrine of equality, it can-
not sustain. It should be free from the vice of arbitrariness and con-
form to the well-settled norms both positive and negative underly-
ing Articles 14 and 16, which together with Article 15 form part of
the Constitutional code of equality.

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16. Reliance has also been placed on the decision of the Su-
preme Court in Union of India Vs. Navin Jindal and another, (2004)
2 SCC 510, which provides that Flag Code is not a statute and can
not regulate fundamental right to fly national flag, however, the
guidelines as laid down under the Flag Code deserve to be fol-
lowed to the extent it provides for preservation of dignity and re-
spect for the national flag. Reliance is also placed on the decision
of the Supreme Court in Narendra Kumar Maheshwari Vs. Union of
India and others, (1990) SCC Supl. 440, wherein importance of
subordinate and delegated legislation has been discussed and it
has been held that “it has to be borne in mind that State instru-
mentalities should be committed to the endeavours of the constitu-
tional aspiration to secure justice, inter alia, social and economic,
and also under Article 39 (b) & (c) of the Constitution to ensure
that the ownership and control of the material resources of the
community are so distributed as to best subserve the common
good and that the operation of the economic system does not res-
ult in concentration of wealth and means of production to the com-
mon detriment. Yet, every instrumentality and functionary of the
State must fulfill its own role and should not trespass or encroach/
entrench upon the field of others. Progress is ensured and devel-
opment helped if each performs his role in common endeavour.

17. Reliance is also placed on the judgment of the Supreme

Court in Syndicate Bank Vs. Ramchandran Pillai, (2011) 15 SCC
398, wherein it was held that

“If any executive instructions are to have the force of

statutory rules, it must be shown that they were issued
either under the authority conferred on the Central Gov-
ernment or a State Government or other authority by
some Statute or the Constitution. Guidelines or execut-
ive instructions which are not statutory in character, are
not 'laws', and compliance thereof can not be enforced
through courts. Even if there has been any violation or

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breach of such non-statutory guidelines, it will not confer

any right on any member of the public, to seek a direc-
tion in a court of law, for compliance with such
guidelines.” Placing reliance on this judgment of Syndic-
ate Bank (supra), it is submitted that policy or guidelines
are not justiciable and therefore petitioners can not
claim any right claiming violation of the guidelines.

18. Reliance is also placed on the judgment of the Supreme

Court in Navtej Singh Johar and others Vs. Union of India through
Secretary Ministry of Law and justice and other connected matters
– (2018) 10 SCC 1, wherein in para 637.2, twin-test of classifica-
tion under Article 14 has been reiterated which provides that ;

(i) there should be a reasonable classification based on

intelligible differentia; and,
(ii) this classification should have a rational nexus with the
objective sought to be achieved.

19. Learned A.A.G. submits that accused have no right to privacy

as society needs to be aware of the criminals and their ante-
cedents. Dissemination of information to antecedents of criminals
does not amount to any discrimination. He submits that police reg-
ulation 287 provides for a notice board to be set up in a conspicu-
ous place at every police station for displaying proclamation and
public notice. He submits that when Police Regulation 287, itself
provides for a notice board for putting up proclamations and public
notices, then pasting names of top 10 criminals of a police station
or a district can not be faulted with. He further submitted that even
Interpol has a policy of listing top 10 most wanted criminals/fugit-
ives, thus, publishing such a list on the flysheet of a police station
can not be termed as arbitrary or illegal.

20. Learned A.A.G. placed reliance on the concept of dignity as

propounded by Immanuel Kant, to submit that even he accepted

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that human dignity is not an unfettered right and an accused can-

not claim any immunity from publication of his name on the display
board of a police station seeking protection under the cover of dig-
nity.

21. It is submitted that policy/guidelines framed by the State gov-

ernment and circulated on 06.07.2020 demonstrates a resolve of
the State to show zero tolerance to crime. It is submitted that the
Police Act of 1961, permits opening of history sheets and it further
permits display of such history sheets on display board maintained
by each police station. It is submitted that law laid down by Su-
preme court in K.S.Puttaswamy (Retd) Vs. Union of India and oth-
ers as reported in (2019) 1 SCC 1, has its own limitations in regard
to securing right to privacy. Placing reliance on para 98 of the judg-
ment, which quotes from another judgment of Supreme Court in
National Human Rights Commission Vs. State of Arunachal Pra-
desh – (1996) 1 SCC 742, that

“We are a country governed by the Rule of Law. Our

Constitution confers certain rights on every human be-
ing and certain other rights on citizens. Every person is
entitled to equality before the law and equal protection
of the laws.”, it is submitted that if criminals have any
right, then citizens too have their rights; Rights of cit-
izens can not be jeopardized in the name of extending
protection to the criminals.

22. Learned A.A.G. submits that policy can not be quashed

merely for the asking and further as per concept of rule of law pro-
pounded by Dicey, maintenance of law and order is the prime re-
sponsibility of the functionaries of police, therefore, publishing list
of top 10 criminals can not be faulted with. Policy is unquestion-
able, therefore, petitions be dismissed.

23. Having heard learned counsel for the parties and after going
through the records, it is apparent that policy/guidelines issued by

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the Director General of Police is not in the exercise of executive

powers of the Governor conferred under Article 162 of the Constitu-
tion. The policy/guideline is neither issued in the name of or by the
order of Governor nor it has any force of law.

24. However, a close scrutiny of the policy and its aim and object
can be inferred from the opening lines of the circular dated July 6,
2020, which lays down the background in which it has been issued.
Backdrop is a video conference convened by the Chief Minister to
discuss law and order situation especially in the context of loss of
lives of seven police personnel in an ambush between police per-
sonnel and miscreants recently at Village Bikru of Kanpur Nagar.

25. Para 2 of the policy/circular provides for preparation of a list

of top 10 criminals at the level of each police station and district so
to keep it updated to help police in keeping a tab on active
hardened and functional criminals. In fact, most of the provisions in
the circular are in consonance with law laid down by the Supreme
Court in Prakash Singh and others Vs. Union of India and others,
(2006) 8 SCC 1, which extensively dealt with the subject of police
reforms and the exercises which are required to be taken to insu-
late police machinery from political and executive interference so
as to make it more efficient, effective and strengthen rule of law.
Thus, when tested on this touchstone, circular/guidelines/policy of
the State cannot be said to be arbitrary, but any action taken by the
police personnel in excess of the authority bestowed upon them
through the circular/policy/regulations or Police Act is definitely re-
quired to be tested on the touchstone of Articles 14, 15 and 16 of
the Constitution of India.

26. Issues which need to be examined in the present context are

as under :-

(i)Whether policy/circular is ultra vires of the provisions

contained in Constitution of India especially Articles 14,

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15 and 21 of the Constitution, Police Act, 1861 or U.P.

Police Regulations?

(ii) Whether the policy/circular grants right to the police au-

thories to publish names of so called criminals/accused
persons on the flysheet board of the concerned police
station ? and

(iii) Whether publication of names of such accused persons

violates the right to privacy and dignity?

27. Re Question (i) :- As far as challenge to the policy/circular is

concerned, it is well settled that validity of any subordinate legisla-
tion can be challenged on the following four grounds as have been
laid down in Indian Express Newspapers (Bombay) Private Limited
Vs. Union of India, AIR 1986 SC 515 :-

(i) It is possible that the courts might invalidate statutory

instrument on the grounds of unreasonableness or un-
certainty, vagueness or aribitrariness; but the writer's (1)
[1964] 1 Q.B.. 214 view is that for all practical purposes
such instruments must be read as forming part of the
parent statute, subject only to the ultra vires test.

(ii) The courts are prepared to invalidate bye- laws, or

any other form of legislation, emanating from an elected,
representative authority, on the grounds of unreason-
ableness uncertainty or repugnance to the ordinary law;
but they are reluctant to do so and will exercise their
power only in clear cases.

(iii) The courts may be readier to invalidate bye-laws

passed by commercial undertakings under statutory
power, although cases reported during the present cen-
tury suggest that the distinction between elected author-

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ities and commercial undertakings, as explained in

Kruse v. Johnson, might not now be applied so strin-
gently.

(iv) As far as subordinate legislation of non- statutory ori-

gin is concerned, this is virtually obsolete, but it is clear
from In re French Protestant Hospital [1951] ch. 567 that
it would be subject to strict control."

28. A subordinate legislation is amenable to challenge on the

above four grounds besides excessive delegation would be an-
other ground for challenge. It may also be challenged as being
manifestly arbitrary and unreasonable. Besides, it may be chal-
lenged for non- conformity with the parent statute, in reference to
which it is made or any other plenary law.

29. The grounds of challenge to an administrative or quasi judi-

cial action are substantive and procedural ultra vires. It would be a
case of substantive ultra vires if it transgresses the limits set by the
parent statute; is repugnant to its other substantive provisions or its
general purpose or is repugnant to any other plenary statute. It
would suffer from the vice of procedural ultra vires if the procedure
prescribed by publication, consultation, laying or any condition pre-
cedent for enacting it or the manner of performance is not followed.

30. It is trite that all instrumentalities, which have powers and au-
thority conferred on them by the Constitution or the Statute, must
act within the limits of such powers. Otherwise their actions would
be ultra vires i.e. outside their powers and hence invalid. If the au-
thority acts outside or in excess of the authority conferred on it,
then it would be a case of substantive ultra vires.

31. It is seen that many statutes clothe an authority with discre-

tionary powers, however, discretion is to be exercised judiciously
and not whimsically. According to ‘Aharon Barak’, Discretion really

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exists, only when there is a choice between more than one reason-
able and legal alternative. Two reasonable persons can come to
two opposite conclusions without either of them being unreason-
able.

32. As per Tom Bingham, “The Rule of law”, Allen Lane (an im-
print of Penguin Books) 2010, the authority vested with discretion is
expected to exercise the discretion judiciously. It should not abuse
the discretion nor abdicate it. What matters is that decisions should
be based on stated criteria and that they should be amenable to
legal challenge, although a challenge is unlikely to succeed if the
decision was one legally and reasonably open to the decision
maker. The rule of law does not require that official or judicial de-
cision makers should be deprived of all discretions, but it does re-
quire that no discretion should be unconstrained so as to be poten-
tially arbitrary. No discretion may be legally unfettered.

33. Other grounds for annulling an order include fraud, malice or

malafide, non application of mind, promissory estoppel and legitim-
ate expectation.

34. When power is exercised in breach of law, it is a fraud on

power. Malice has two facets, namely; malice in law and malice in
fact. Malice in law, is to do with something not permitted by law
even if it is done with best motives. Malice in fact, is when power is
exercised for an improper motive.

35. In Nawab Khan Abbas Khan Vs. State of Gujarat, AIR 1974
SC 1471, it has been held that when an order encroaches funda-
mental rights without due process of law it is still-born and liable to
be ignored.

36. In view of the aforesaid discussion, when circular/policy

dt.06.07.2020 is considered then policy per se does not appear to
suffer from vice of ultra vires, because the aim and object of the
policy is to keep the police updated of the activities of the criminals

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with a view to keep a better control on law and order situation. No

facet of fraud, malice or non application of mind has been brought
out by the learned counsel’s for the petitioners including learned
Amicus to assail the policy/circular and therefore while answering
Reference Question No.(i) I have no hesitation to hold that policy/
circular in its content or language does not suffer from lack of com-
petence. When tested within the four corners of the law laid down
in the case of Indian Express Newspapers (supra), policy can not
be said to be the arbitrary, illegal or ultra vires of either the Consti-
tution or the Police Act or the Police Regulations.

37. Re Question (ii) : After having held that policy/ circular is not
ultra vires I may hasten to add that there is no provision in the cir-
cular to publish list of identified top 10 criminals and mafia ele-
ments either on the flysheet board of the concerned police station
or anywhere else.

38. When there is no provision in the circular to publish list of

identified top 10 criminals and mafia elements either on the fly-
sheet board of the concerned police station in public domain or
anywhere else, the action of the authorities of the State in publish-
ing such names will fall within the case of substantive ultra vires, as
the action of the functionaries of the State is beyond the powers
and authority conferred on them by the Constitution or the Statute
and their act is even beyond the limits and powers transcribed by
the circular from which respondent State functionaries claim to
draw their authority to make such publication.

39. As has been discussed above, quoting Lord Bingham, “All of-
ficials at all levels must exercise the powers conferred on them in
good faith, fairly, for the purpose for which the powers are con-
ferred, without exceeding the limit of such powers and not unreas-
onably. This is indeed fundamental and lies at the very heart of the
rule of law.

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40. Lord Diplock in Council of Civil Services Union Vs. Minister

for the Civil Service, (1984) 3 All ER 935, propounded principles of
judicial review of administrative action. They are, illegality which is
the main substantive areas of ultra vires, where law is breached; ir-
rationality which is succinctly referred to as Wednesbury unreason-
ableness, it applies to a decision which is so outrageous in its defi-
ance of logic and procedural impropriety which is failure to follow
the prescribed statutory procedure or rules of natural justice.

41. As per the law laid down by the Constitution Bench in Natural
Resources Allocation (supra), it has been held that Article 14 of the
constitution mandates that the State action, be it legislative or ex-
ecutive has to be fair, reasonable, non-discriminatory, transparent,
non-capricious, unbiased, without favouritism or nepotism. State
action must conform to the norms, which are rational, informed with
reasons and guided by public interest. Executive action should
have clearly defined limits and should be predictable. The man on
the street should know why the decision has been taken in favour
of a particular person. Lack of transparency in decision making pro-
cess would render it arbitrary. Fundamental principle of executive
governance is based on realisation that sovereignty rests in the
people. Every limb of the constitutional machinery is obliged to be
people oriented. Every holder of public office is accountable to the
People. Question of unfettered discretion in the executive just does
not arise. Public authorities are ordained to act reasonably and in
good faith and upon lawful and relevant grounds of public interest.

42. Though, it is argued that publication of names of criminals on

the flysheet board of the concerned police station is permissible in
the case of proclaimed offenders and even police regulation au-
thorizes preparation of different registers which have been men-
tioned in the policy/circular issued by the Director General of Po-
lice, issued on April, 10, 2011 and it is further submitted that State
can publish names of proclaimed offenders or persons under sur-
veillance, but there is no provision for displaying such names in

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public domain except that of proclaimed offenders on the flysheet

board of the concerned police station. Chapter XX of the Police
Regulations deals with the aspect of registration and surveillance
of bad characters, Regulation 223 provides for maintenance of, ‘Vil-
lage crime book’, terming it to be a confidential record to be kept at
every police station containing information about the crime and
criminals of each village in the circle.

43. Regulation 228 deals with the history sheets and deals with
Class A and Class B history sheets. It specifically provides that his-
tory sheets are personal records of criminals under surveillance.
Regulation 250 provides that history sheets are confidential re-
cords and though they are kept in the village crime note book, the
Station House Officer is directed to see that unauthorized persons
do not obtain access to them.

44. Regulation 215 deals with the procedure in case of ab-

sconded offenders and the purpose of maintaining register of ab-
sconded offenders Regulation 218 provides that at every police
stastion a register shall be maintained in form No.214 is to bring
the names and full particulars of all absconded offenders only.

45. Regulation 287, on which lot of emphasis has been placed by

Learned AAG, provides for a notice board but makes it clear that
this notice board shall be set up in a conspicuous place at every
police station for proclamations and public notices. It reads as un-
der :-

“287.Notice Board - A notice board shall be set up in

a conspicuous place at every police station for pro-
clamation and public notices. Officer in charge shall
remove or renew notices as occasion arises. If any of
the sections of the Gambling Act except Section 13
and 17, have been extended to any place within the
limits of the station circle, a notice stating the bound-

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aries of the place should be kept on the board and re-

newed as often as it becomes illegible.”

46. Thus, Regulation 287 authorises publication of proclamations

and public notices only on the notice board.

47. Section 82 (1) of the Code of Criminal Procedure 1973 as

amended up to date provides for the conditions in which a proclam-
ation can be issued by any court for an absconding person and fur-
ther sub section (2) of Section 82 gives statutory mandate to pub-
lication of a proclamation in the manner provided under sub section
(2) of Section 82 Cr.P.C.

48. “Accused” is a person against whom an allegation is made

that he has committed an offence or who is charged with an of-
fence, whereas a convict is a person found guilty of an offence.
Both these definitions have been extracted from the Legal Gloss-
ary, published by the Government of India by the Department of
Law, Justice and Company Affairs and Department of Legislature
and Rajbhasha.

49. Two things emanates from this discussion, namely; Police

Regulation 287 does not authorize publication of anything other
than a proclamation issued under authority of a judicial officer au-
thorized to issue such proclamation besides public notices only. It
does not authorize publication of anything else other than what has
been provided under Police Regulation 287. Therefore, publication
of top 10 list is not permissible even on a careful and liberal consid-
eration of Police Regulation 287. Thus, referring to Question No.(ii)
in Reference, it is held that neither the policy/circular nor any of the
provisions contained in police regulation, Police Act or Cr.P.C., au-
thorizes authorities of the police to publish names of so called crim-
inals/accused persons on the flysheet board of concerned police
station, unless a proclamation is obtained against them following
the procedure established by law.

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50. Re Question (iii) “Epictetus”, a Greek Philosopher, born in 50

AD in Turkey famously quoted that “Men are disturbed not by
things but by the view which we take of them”, has succinctly dealt
with concept of desire in the following words :

Our desires and aversions are mercurial rulers. They

demand to be pleased. Desire commands us to run off
and get what we want. Aversion insists that we must
avoid the things that repel us. Typically when we don’t
get what we want, we are disappointed, and when we
get what we don’t’ want, we are distressed.

51. This quote extracted from the book, “The Art of Living” by
Sharon Lebell, reflects the dilemma of the authorities of the State
reflecting their desire to name and shame certain individuals owing
to their aversions towards them.

52. Hon’ble Supreme Court in K.S.Puttaswamy (supra), has high-

lighted the pivotal position of an individual as a focal point of the
constitution. Fundamental rights are ‘basic’ and act as protective
wall against State power. This judgment focusing on an aspect of
privacy as a right to life has in fact insulated an individual from ex-
ercise of authority either by the legislation or the State so to pre-
vent a person being made an object of ridicule or scorn. There can
not be any hostile discrimination. Preamble of our constitution
deals with the concept of fraternity assuring the dignity of indi-
vidual and the unity and integrity of the nation.

53. The sanctity of privacy, lies in its functional relationship with

dignity. This judgment lays down that privacy of an individual is an
essential aspect of dignity. Privacy represents the core of the hu-
man personality, which is part of broader concept of liberty. Dignity
is an entitlement of a constitutionally protected interest in itself.
Dignity and freedom are intertwined and facilitate each other.

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54. Concept of privacy is not new to us. The Supreme Court de-
veloped various rights – interests, similar to privacy, i.e. right of free
enjoyment, right to sleep, right to human dignity, right to have
justice etc. enlarging the concept of personal liberty under Article
21 of the constitution. In Kharak Singh Vs. State of U.P., AIR 1963
SC 1295, for the first time, Supreme Court considered the right to
privacy in a case of police surveillance and domiciliary visits at
night by the police personnel.
55. In Francis Coralie Mullin Vs. The Administrator, Union
Territory of Delhi and others, AIR 1981 SC 746 , the Supreme Court
referred to the views of judges of the Supreme Court of U.S. to
conclude that fundamental rights of a person continue to embed in
him despite detention and hence, a convict is also entitled to the
rights guaranteed under Article 21. It held that fundamental right to
life is the most precious human right and hence be interpreted in
an expansive spirit that will intensify its significance by enhancing
the dignity and worth of individual and his life. The Court went to
the extent of analyzing the meaning of ‘life’ to determine what
entails the right to life. The Court recommended it to be not merely
restricted to animal existence but meaning more than just physical
survival. It is inclusive of all those limbs and faculties by which life
is enjoyed. The Court held that even partial damage to such limb or
faculty as a deprivation, whether it be permanent or temporary or
continuing would be the invasion of his life/liberty. It also held that
the right to life includes the right to live with human dignity and to
fulfil the bare necessities of life. This interpretation encompassing
the right to protection against torture or cruel, inhuman or
degrading treatment which is enunciated in Article 5 of the
Universal Declaration of Human Rights and also guaranteed
by Article 7 of the International Covenant on Civil and Political
Rights is implicit in Article 21 of the Constitution.
56. In this context, it is held that right to life being an undeniable
right can only be abridged according to the procedure established
by law and therefore a detenu cannot move freely outside the jail

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however would be entitled to have interviews with family members

and friends and no procedure curtailing this right can stand the test
of reasonable, fair and just under Article 14 and 21 of the
Constitution.

57. This judgment is a polite reminder to the law enforcing agen-

cies that even convicts and detenu are not to be relegated to an-
imal existence. Thus, ratio of judgment is that when fundamental
rights of detenu and convict is intact, then there is no question of it
being curtailed for an accused by naming and shaming him, so to
relegate him to animal existence.

58. This again bring us to the question of what is human dignity?

Answering this question, Author Gaymon Bennett dealt with the as-
pect of human dignity as figures in the universal declaration of hu-
man rights, in his book titled, “Technicians of Human Dignity”, Book
Subtitle: “Bodies, Souls and the Making of Intrinsic Worth”, Book
Author(s): Gaymon Bennett, published by Fordham University
Press (Page 142), as under :-

“What is human dignity then? Whatever else it

may be, human dignity is that which is inherent and it is
that which can be, and must be, recognized. It is the
kind of thing that one can have faith in. It does not
need to account for itself by pointing beyond itself to a
feature of human nature, reason, or the divine. It is not
derivative of these features, nor is it cultivated or pro-
duced. It is, rather, what defines humans as part of the
human family. Moreover, and in addition to all this, it is
the source of political goods. The recognition of dignity
issues in freedom, justice, and peace, and its violation
brings with it outrage and disunity.

A number of years ago, legal scholar Klaus Dicke

published an essay that, among other things, offers a
meditation on the significance of the fact that human

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dignity in these passages is set forth in a strictly formal

manner. This formalism, Dicke suggested, was elabor-
ated in a threefold manner. First, dignity was figured as
a given. Second, it was figured without explicit sub-
stantive definition—at least insofar as the question of
origins is concerned. Third, it was figured as the source
and guarantee of human good. Human dignity, as a
given, is also a moral mandate and places an absolute
obligation on conscience and thereby political action.
However, in the course of the declaration, human dig-
nity does not remain a matter of pure form. Where ex-
plicit substantive definition might be lacking, tacit and
operational definition quickly fills in. It fills in by way of
something like retrodiction. In the declaration, human
dignity is declaimed as the ground for human rights.
What proves to be the case, however, is that human
rights, which are subsequently elaborated, effectively
define the substance of human dignity. Dignity is only a
guarantee of goods to the extent that the rights that ad-
here in it are assured. Dignity and rights share a mutu-
ally formative and constraining relation, and that rela-
tion defines what it means to be human, politically
speaking. Among other things, all of this means that, in
the declaration, a heterogeneous and novel anthropo-
logy is synthesized.

Several aspects about this anthropology are par-

ticularly crucial. First, the human is that being whose
dignity is immanent and inherent. It is immanent in that
dignity does not point beyond itself to another source.
It is inherent in that dignity is coincident with being hu-
man, per se, and is therefore an essential truth about
human being. And insofar as it is coincident with the
actuality of being human, dignity is self-referential. I do

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not mean to say that the delegates to the CHR pro-

claimed dignity to be self-referential; the debate over
sources indicates that most delegates conceived of
dignity as grounded in origins of one sort or another. In
the course of these debates dignity was not taken to be
self-referential. Nevertheless, human dignity, as formu-
lated in the declaration, simply refers to itself; it is self-
grounding. This is a first crucial anthropological artifact
of the pragmatic and procedural solution to the prob-
lem of origins: self-referentiality and self-grounding.

The second artifact concerns the mode of reason-

ing proper to a self-referential dignity. Terms such as
“recognition,” “faith,” and of course “declaration” are
not incidental but rather indicate that the speech-acts
that can be taken to be true about human dignity are
those produced and authorized in a declamatory fash-
ion. I think it is reasonable to suggest that this concep-
tion of the human, this immanent form of dignity, would
not have been put in play and would not have come to
be commonplace in discussions of human rights if any
of the alternatives in the debate over the question of
the source of dignity had been found acceptable:
reason, God, nature, or the like. Neither these terms
nor the modes of reasoning recommending them car-
ried the day. Instead, human dignity was simply de-
claimed. Consequently, the human was enshrined as
that being whose truth could be conceived through a
mode of reasoning that was neither theological nor sci-
entific, neither demonstrative nor verificational, but de-
clamatory. The second anthropological artifact of the
declaration is that the human is that being whose dig-
nity must simply be declaimed.

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The third artifact concerns the mode of jurisdiction

appropriate to, even prescribed by, human dignity. The
declaration states that human dignity is inherent, and,
as inherent, it is the guarantee of human goods. It is
morally non-negotiable. As a guarantee of human
goods it functions as both absolute and transcendental.
It is therefore inviolable: violations of dignity result in
outrageous and barbarous acts. It is also demanding:
given the fact of past barbarism and the constant threat
of further outrage, human dignity prescribes what must
be done. And what is it that must be done? Insofar as
human dignity is inherent and absolute, it is not sus-
ceptible to the play of minimization and maximization. It
does not derive from a capacity or a characteristic that
could be variable or cultivated. Human dignity does not
require the daily conduct of conduct either toward the
governmental ends of wealth and security or toward
ethical ends of virtue and justice (although dignity will
certain provide the metric according to which gov-
ernance and ethics might be rightly aligned). Rather,
dignity requires protection, reorientation, and redress.
Dignity must be protected against violation. Dignity
must reorient those practices that threaten to violate it.
And dignity commands us to redress those situations
where dignity has been compromised.”

59. In 1890, Samuel Warren and Louis D.Brandies in an art-

icle published in Harward Law Review, titled “the Right to Privacy”,
4 HLR 193-220 (1890) defined right to privacy as right to be let
alone as under :-

“Thus, in very early times, the law gave a remedy

only for physical interference with life and property,
for trespass vi et armis. Then the “right to life”
severed only to protect the subject from battery in its

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various forms; liberty meant freedom from actual re-

strain; and the right to property secured to the indi-
vidual his lands and his cattle. Later there came re-
cognition of man’s spiritual nature, of his feelings and
his intellect. Gradually the scope of these legal rights
broadened; and now the right to life has come to
mean the right to enjoy life – the right to be let
alone….”

60. According to Alan Furman Westin, a Professor of Public Law

and Government Emeritus, Columbia University, “Privacy and
Freedom”, (1970) New York, at 7, privacy is the claim of individu-
als, groups or institutions to determine for themselves when, how
and to what extent information about them is communicated to oth-
ers. Privacy is the voluntary and temporary withdrawal of a person
from the general society through physical or psychological means,
either in a state of solitude or small-group intimacy or, when among
larger groups, in a condition of anonymity or reserve.

61. John Rawls in his celebrated book “Justice as fairness : A

Restatement” has enumerated three basic points under Chapter –
Principles of Justice. First basic point is that justice as fairness is
framed for a democratic society. A democratic society not only pro-
fess but wants to take seriously the idea that citizens are free and
equal and tries to realize that in its main institutions. The second
point is that primary subject of political justice is taken as the basic
structure of society i.e. political and social institutions are viewed
from an angle as to how they fit together into one united system of
cooperation. The third point is that justice as fairness is a form of
political liberalism. These three basic tenets presupposes two prin-
ciples of justice :-

(i) Each person has the same indefeasible claim to a

fully adequate scheme of equal basic liberties, which scheme
is compatible with the same scheme of liberties for all; and

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(ii) Social and economic inequalities are to satisfy two

conditions :

(a) They are to be attached to offices and positions

open to all under conditions of fair equality of op-
portunity;
(b) They are to be the greatest benefit of the least-
advantaged members of society.

62. From this point of view, when I view privacy and dignity, then
in K.S.Puttaswamy (supra), in para 109 referring to the earlier judg-
ment of K.S.Puttaswamy (Retd.) Vs. Union of India – (2017) 10
SCC 1, it has been held :

109. A close reading of this judgment brings about the

following features:

109.1. Privacy has always been a natural right: The cor-

rect position in this behalf has been established by a
number of judgments starting from Gobind Vs. State of
M.P. Various opinions conclude that:

109.1.1. Privacy is a concomitant of the right of the indi-

vidual to exercise control over his or her personality.

109.1.2. Privacy is the necessary condition precedent to

the enjoyment of any of the guarantees in Part III.

109.1.3. The fundamental right to privacy would cover at

least three aspects –

(i) intrusion with an individual’s physical body,

ii) informational privacy, and

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(iii) privacy of choice.

109.1.4. One aspect of privacy is the right to control the

dissemination of personal information. And that every in-
dividual should have a right to be able to control exer-
cise over his/her own life and image as portrayed in the
world and to control commercial use of his/her identity.”

508.13. In view of the above, the Court discussed the

contours of right to privacy, as laid down in K.S. Put-
taswamy, principle of human dignity and doctrine of pro-
portionality. After taking note of the discussion contained
in different opinions of six Hon’ble Judges, it stands es-
tablished, without any pale of doubt, that privacy has
now been treated as part of fundamental right. The
Court has held that, in no uncertain terms, that privacy
has always been a natural right which given an indi-
vidual freedom to exercise control over his or her per-
sonality. The judgment further affirms three aspects of
the fundamental right to privacy, namely:
(i) intrusion with an individual’s physical body,
(ii) informational privacy and
(iii) privacy of choice.

508.17…………….Insofar as principles of human dignity

are concerned, the Court, after taking note of various
judgments where this principle is adopted and elabor-
ated, summed up the essential ingredients of dignity jur-
isprudence by noticing that the basic principle of dignity
and freedom of the individual is an attribute of natural
law which becomes the right of all individuals in a consti-
tutional democracy. Dignity has a central normative role
as well as constitutional value. This normative role is
performed in three ways:

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508.17.1. it becomes basis for constitutional rights;

508.17.2. it serves as an interpretative principle for de-

termining the scope of constitutional rights; and,

508.17.3. it determines the proportionality of a statute

limiting a constitutional right. Thus, if an enactment puts
limitation on a constitutional right and such limitation is
disproportionate, such a statute can be held to be un-
constitutional by applying the doctrine of proportionality.

508.18. As per Dworkin, there are two principles about

the concept of human dignity, First principle regards an
‘intrinsic value’ of every person, namely, every person
has a special objective value which value is not only im-
portant to that person alone but success or failure of the
lives of every person is important to all of us. It can also
be described as self respect which represents the free
will of the person, her capacity to think for herself and to
control her own life. The second principle is that of ‘per-
sonal responsibility’, which means every person has the
responsibility for success in her own life and, therefore,
she must use her discretion regarding the way of life that
will be successful from her point of view.

508.19. Sum total of this exposition can be defined by

explaining that as per the aforesaid view dignity is to be
treated as ‘empowerment’ which makes a triple demand
in the name of ‘respect’ for human dignity, namely:

508.19.1. respect for one's capacity as an agent to make

one's own free choices;
508.19.2. respect for the choices so made; and

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508.19.3. respect for one's need to have a context and

conditions in which one can operate as a source of free
and informed choice.

63. In the above context some paragraphs from the judgment of

the Supreme Court in State of Maharashtra Vs. Saeed Sohail
Sheikh – (2012) 13 SCC 192 are worth reproducing, which are as
under :

39. In a country governed by the rule of law police ex-

cesses whether inside or outside the jail cannot be
countenanced in the name of maintaining discipline or
dealing with anti-national elements. Accountability is one
of the facets of the rule of law. If anyone is found to have
acted in breach of law or abused his position while exer-
cising powers that must be exercised only within the
parameters of law, the breach and the abuse can be
punished. That is especially so when the abuse is al-
leged to have been committed under the cover of au-
thority exercised by people in uniform. Any such action
is also open to critical scrutiny and examination by the
Courts. 40. Having said that we cannot ignore the fact
that the country today faces challenges and threats from
extremist elements operating from within and outside In-
dia. Those dealing with such elements have at times to
pay a heavy price by sacrificing their lives in the dis-
charge of their duties. The glory of the constitutional
democracy that we have adopted, however, is that
whatever be the challenges posed by such dark forces,
the country’s commitment to the Rule of Law remains
steadfast. Courts in this country have protected and
would continue to protect the ideals of the rights of the
citizen being inviolable except in accordance with the
procedure established by law.”

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The word “goodfaith” is defined in Section 52 of IPC as

under:-

“Good faith”.—Nothing is said to be done or believed in

“good faith” which is done or believed without due care
and attention.

64. The authorities of the police are required to act in goodfaith

and not negligently and motivatingly.

65. In Bhim Singh Vs. State of Jammu and Kashmir – (1985) 4

SCC 677, Supreme Court has held that

“Police Officers who are the custodians of law and order

should have the greatest respect for the personal liberty
of citizens and should not flout the laws by stooping to
such bizarre acts of lawlessness. Custodians of law and
order should not become depredators of civil liberties.
Their duty is to protect and not to abduct.”

66. Supreme Court in Sandeep Kumar Bafna Vs. State of Ma-

hashtra as reported in (2014) 16 SCC 623 has laid down the law as
under :-

7. Article 21 of the Constitution states that no person

shall be deprived of his life or personal liberty except ac-
cording to procedure established by law. We are imme-
diately reminded of three sentences from the Constitu-
tion Bench decision in P.S.R. Sadhanantham vs Ar-
unachalam (1980) 3 SCC 141, which we appreciate as
poetry in prose - “Article 21, in its sublime brevity, guards
human liberty by insisting on the prescription of proced-
ure established by law, not fiat as sine qua non for

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deprivation of personal freedom. And those procedures

so established must be fair, not fanciful, nor formal nor
flimsy, as laid down in Maneka Gandhi case. So, it is ax-
iomatic that our Constitutional jurisprudence mandates
the State not to deprive a person of his personal liberty
without adherence to fair procedure laid down by law.”

67. Starting from Gayman Bennett to Samuel Warren and

Louis D.Brandies and other scholars throughout have emphas-
ized on the aspect of dignity as an inherent guarantee to hu-
man beings. It being non-negotiable and fundamental. This
has been accepted by not only authors of erudition and has
been imbibed to be an integral part of Article 21 of the Consti-
tution. K.S. Puttaswamy also treats it as a natural right. It ac-
cepts that right to privacy cannot be impinged without a just,
fair and reasonable law. It has to fulfill the test of proportional-
ity i.e., (i) existence of a law, (ii) must serve a legitimate State
aim and (iii) should be proportionate. But when these tests are
applied to the present facts situation, then it is apparent that
State has failed to respect both the aspects of privacy and dig-
nity while trying to display their weller or tact in displaying the
names of so called top 10 criminals under a police station or of
a district.

68. Submission of learned Additional Advocate General Gen-

eral to the effect that even Immanuel Kant accepted that hu-
man dignity is not an unfettered right, it is only a quote out of
context. Kant’s ethics theory is organised around the motion of
a “categorical imperative”, which is a universal ethical principle
stating that one would always respect the humanity in others,
and that one should only act in accordance with rules that
could hold for everyone. Even George Wilhelm Friedrich Hegel
propounded hegelianism, which is the philosophy of G.W.F.

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Hegel and can be summed up in one line namely, “the rational

alone is real”.

69. Hegel was greatly influenced by Immanuel Kant and in this

backdrop, when submission of the Learned AAG is examined, then
in fact the judgments on which he relied, all support the view that
State or its instrumentalities are to respect fundamental rights,
pass the test of Articles 14 and 16 of the Constitution and the ob-
ject of any subordinate or delegated legislation cannot be but to
make an endeavour to secure justice. Simultaneously, all the ac-
tions of the State should be fair, reasonable, non-discriminatory,
transparent, non-capricious, unbiased, without favoritism or nepot-
ism in pursuit of promotion of healthy competition and equitable
treatment. Thus, there is no quarrel to the proposition that no act of
the State unless authorized by a statute or clothed with any consti-
tutional provisions takes away the right to privacy and dignity in any
manner whatsoever.

70. In the above backdrop, it is apparent that neither socially nor

politically it is desirable to curtail human dignity, which is infringed
when names of accused persons are displayed on the flysheet
board of the police station concerned or anywhere else without
there being any proclamation issued against them under Section
82 Cr.P.C. Thus, this practice of putting the names on the flysheet
board is derogatory to the concept of human dignity and privacy
and therefore Reference Question No. iii is answered in affirmative
that publication of names of accused persons violates their right to
privacy and dignity.

71. Once it is held that the act of the authorities of the police is il-
legal, a logical question arises as to whether petitioners need to be
compensated by the State for flagrant violation of their right to pri-
vacy and dignity. In my opinion, Yes, they do need to be com-

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pensated and the State can not go scot-free. Merely, saying that it
is discharging its sovereign functions of governance by making so-
ciety aware about crime and criminals, they cannot escape their re-
sponsibility for their failure to learn to understand constitutionally
sanctified protections extended to individuals to preserve their fun-
damental right of privacy and dignity. The immediate question
which arises next is, as to what should be the quantum of com-
pensation. I would have proceeded to determine the compensation
but as this aspect has neither been argued nor raised but has been
putforth as a corollary to the discussion made holding that publica-
tion of names of the petitioners amounts to violation of right to pri-
vacy and dignity, I leave it to the petitioners to approach competent
court in appropriate proceedings to claim compensation for the
wrongs done by the State.

72. Before parting, I would like to place on record my appreciation

for valuable services rendered by Sri Vinay Saran, learned Amicus
assisted by Sri Saumitra Dwivedi.

73. The petitions are allowed. The Court grant the following re-
liefs:-

(i) The policy/circular dated 06.07.2020 is intra vires Art-

icles 14, 15 and 21 of the Constitution.

(ii) The DGP, UP is directed to forthwith remove the

names/identities of Top-10 criminals along with their criminal
antecedents from the flysheet board from all the police sta-
tions. He is also directed to ensure that a circular in the light
of this judgment is sent to all the police heads of the districts
so as to ensure strict compliance.

(iii) The circular shall also provide that any violation of

this judgment would not only invite disciplinary action but also

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criminal prosecution under appropriate provisions including

payment of compensation from the erring official.

(iv) The benefit of this judgment will not be available to pro-

claimed offenders and fugitives in law.

Order Date :-29.01.2021

Vikram/-

(VIVEK AGARWAL,J.) (PANKAJ NAQVI, J.)

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