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Issues: (i) Whether Look Out Circulars issued at the instance of public sector banks, financial institutions, investigative agencies, or ministries were sustainable where no subsisting cognizable offence, credible material of absconding, or independent application of mind was shown; and (ii) whether petitioners in cases where chargesheets or complaints were already pending before competent courts ought to be relegated to the originating forum for relief instead of obtaining quashing in writ jurisdiction.
Issue (i): Whether Look Out Circulars issued at the instance of public sector banks, financial institutions, investigative agencies, or ministries were sustainable where no subsisting cognizable offence, credible material of absconding, or independent application of mind was shown.
Analysis: The right to travel abroad was treated as part of personal liberty under Article 21 and could be curtailed only by a fair, just and reasonable procedure established by law. The governing LOC regime was held to be an exceptional coercive measure, not a routine debt-recovery or supervisory device. LOCs issued merely because of loan default, status as guarantor or former director, or routine revenue concerns were held unsustainable absent a cognizable offence, specific material of evasion, or a speaking order based on independent scrutiny. The power of public sector banks to seek LOCs was held unavailable, and the economic-interest clause was construed narrowly to cover only grave, systemic or national-level impact. On the facts of the batch, the impugned LOCs in the petitions placed in this category did not satisfy the governing standards and continued mechanically without proper review.
Conclusion: The LOCs challenged in the petitions covered by this category were quashed and set aside, with ancillary travel and intimation conditions in specified cases.
Issue (ii): Whether petitioners in cases where chargesheets or complaints were already pending before competent courts ought to be relegated to the originating forum for relief instead of obtaining quashing in writ jurisdiction.
Analysis: Where investigation had culminated in a chargesheet or complaint and the criminal proceedings were pending before the competent trial court, the appropriate course was to seek modification or cancellation of the LOC before that court or the forum that issued it. The writ court treated this as part of the layered grievance-redressal structure recognised in the LOC jurisprudence and declined to decide those LOCs on merits in writ proceedings.
Conclusion: The petitioners in this category were relegated to the appropriate forum for relief in accordance with law.
Final Conclusion: The batch was disposed of by quashing the LOCs in the petitions found unsustainable on merits, while leaving open and directing recourse to the appropriate forum in the remaining petitions where pending criminal proceedings made that course more suitable.
Ratio Decidendi: An LOC, being a coercive restraint on the fundamental right to travel, can survive only if grounded in law, supported by specific and credible material, issued by a competent authority acting independently, and kept under periodic review; routine commercial defaults or mere association with a defaulting entity are insufficient to justify it.
Look Out Circulars must rest on specific material and lawful authority; routine commercial default alone is insufficient.
Look Out Circulars were described as an exceptional restraint on the right to travel under Article 21 and not a routine debt-recovery or supervisory tool. They were said to require lawful authority, independent application of mind, specific material showing evasion or a cognizable offence, and periodic review; routine loan default, guarantor status, former directorship, or ordinary revenue concerns were stated to be insufficient. The LOC power of public sector banks was treated as unavailable, and the economic-interest ground was construed narrowly to grave systemic impact. Where chargesheets or complaints were already pending before a competent court, the proper course was to seek modification or cancellation before the appropriate forum, rather than writ relief.
Look Out Circular - Right to travel abroad under Article 21 - Bank-initiated travel restraint - Independent application of mind - Periodic review and proportionality - Relegation to trial court for LOC modification - Fair, just and reasonable procedure - Mechanical exercise of power - Independent application of mind - Whether the issuance and continuation of Look Out Circulars (“LOCs”), a coercive executive measure directly imperilling the constitutionally guaranteed right to travel, is legally sustainable in the circumstances evinced in each of these petitions ? Look Out Circular - Bank-initiated travel restraint - Right to travel abroad under Article 21 - Economic interests of India - HELD THAT: - The Court held that an LOC is a coercive executive restraint on the fundamental right to travel and can be sustained only within the limits summarised by the Court from the governing executive instructions and precedents. Public sector banks do not presently possess valid authority to seek issuance of LOCs through their Chairman, Managing Directors or Chief Executive Officers; routine loan default, pending DRT or recovery proceedings, declaration of NPA or even allegation of fraud by the bank, without a live and legally sustainable criminal basis against the individual concerned, does not justify curtailment of travel. The expression concerning detriment to the economic interests of India must be narrowly construed and cannot be invoked for ordinary commercial defaults. The Court further found that, across this category, the LOCs had either been issued solely at the behest of banks, or continued despite the petitioners not being accused, having been discharged, being merely guarantors or former directors, or having repeatedly travelled and returned in compliance with court orders, showing absence of flight risk. The objection to territorial jurisdiction in one matter was rejected, the Court holding that the Bureau of Immigration and the bank connection in Delhi, together with the stage of the proceedings, furnished sufficient cause to entertain the petition. [Paras 88, 89, 90, 91, 92] The bank-initiated LOCs were quashed, subject to the travel-intimation conditions and the additional case-specific safeguards imposed by the Court. Look Out Circular - Independent application of mind - Periodic review and proportionality - Cooperation with investigation - HELD THAT: - Applying the governing principles earlier formulated, the Court held that continuation of LOCs cannot rest on pendency of assessment, search, inquiry or complaint alone. The originating agency must justify necessity, proportionality and legality with specific material, and the restraint cannot continue mechanically or indefinitely. In this category, the Court noted circumstances such as completion of investigation, filing of complaint without cognizance, absence of FIR, absence of the petitioner as an accused, no allegation of non-cooperation, prior revocation of parallel LOCs, attachment of properties securing the agency's interest, and repeated foreign travel with return in accordance with interim permissions. In such situations, the LOC either lacked a valid present basis or had served its purpose, and its continuance became an unjustified restriction on personal liberty. [Paras 137, 138, 139, 140, 141] The LOCs in this category were set aside, with common travel-intimation conditions and the additional disclosure and travel conditions directed in the specified petitions. Relegation to trial court for LOC modification - Pending charge-sheet proceedings - Alternative remedy within LOC framework - HELD THAT: - The Court treated this as a distinct class governed by the principle in Sumer Singh Salkan [2010 (8) TMI 1083 - DELHI HIGH COURT], that a person against whom an LOC is issued may approach the court before which the criminal proceedings are pending, and that such court is competent to modify or rescind the restraint. Since, in these petitions, charge-sheets or complaint proceedings were already pending and the trial courts were seized of the full record, those courts were considered the more appropriate forums to assess necessity and proportionality of the LOC in the first instance. The writ petitions were therefore disposed of without adjudicating the merits of the LOCs themselves. [Paras 155, 156, 157, 158, 159] The petitioners were relegated to the competent courts where the charge-sheet or complaint is pending, with a direction that their applications for relief be considered expeditiously and without prejudice from the present order. Final Conclusion: The Court restated the governing constitutional and legal limits on issuance and continuation of LOCs, quashed the impugned LOCs challenged in the bank and agency/Ministry categories subject to specified safeguards, and relegated the remaining petitioners, in whose cases charge-sheet or complaint proceedings were already pending before competent criminal courts, to seek relief before those forums.