Holding

Section 24(1)(a) authorises recording information on the commission of organized crime without needing to determine each accused's specific role, and the two‑chargesheet requirement applies only to offences under Section 3(1); therefore the prior approval was valid and the High Court’s quashing of the chargesheet was erroneous.

Summary

The case arose from the murder of journalist Gauri Lankesh, investigated under the Karnataka Control of Organised Crimes Act, 2000 (KCOCA). The Commissioner of Police granted prior approval under Section 24(1)(a) to invoke Section 3 of KCOCA against several accused, including Mohan Nayak, based on material indicating organized‑crime activity. The High Court later quashed that approval and the chargesheet against Nayak, holding that the requirement of two prior chargesheets was not satisfied. On appeal, the Supreme Court held that Section 24(1)(a) only requires a finding that the offence of organized crime exists, not the specific role of each accused, and that the two‑chargesheet rule applies only to offences under Section 3(1). Consequently, the prior approval was valid and the High Court’s order was set aside. The appeals were allowed and the writ petition dismissed.

Issues considered

The validity of the prior approval under Section 24(1)(a) of KCOCA to invoke Section 3.
Whether the High Court erred in quashing the chargesheet against Mohan Nayak under Sections 3(2), 3(3) and 3(4).
The interpretation of the requirement of two prior chargesheets under KCOCA and its applicability to offences under Section 3(1) versus Sections 3(2)‑3(5).
The extent of material assessment required by the competent authority at the stage of granting prior approval.

Legislation cited

Arms Act, 1959s. 25, s. 25(1B), s. 27(1)
Indian Penal Code, 1860s. 114, s. 118, s. 120B, s. 302, s. 35
Karnataka Control of Organised Crimes Act, 2000s. 24, s. 3(1), s. 3(2), s. 3(3), s. 3(4), s. 3(5)

Subjects

organized crimeKCOCASection 24prior approvalchargesheetcontinuing unlawful activityfacilitatorabettornexus

Judgment

[2021] 10 S.C.R. 309

KAVITHA LANKESH
v.
STATE OF KARNATAKA & ORS.
(Criminal Appeal No. 1236 of 2021)
OCTOBER 21, 2021
[A. M. KHANWILKAR, DINESH MAHESHWARI AND
C. T. RAVIKUMAR, JJ.]
Karnataka Control of Organised Crimes Act, 2000: s.24 –
Purport of – The purport of s.24 is that information regarding
commission of an offence of organized crime under the 2000 Act
can be recorded by a police officer only upon obtaining prior
approval of the police officer not below the rank of the Deputy
Inspector General of Police – What is crucial in this provision is
the factum of recording of offence of organized crime and not of
recording of a crime against an offender as such – Thus, only after
registration of FIR, investigation for the concerned offence would
proceed in which the details about the specific role and the identity
of the persons involved in such offence can be unravelled and
referred to in the chargesheet to be filed before the competent Court.
Karnataka Control of Organised Crimes Act, 2000: ss.3(1),
3(2), 3(3), 3(4) – For offence under ss.3(2), 3(3), 3(4), it is not
essential that more than two chargesheets are filed against the person
so named, before a competent court within the preceding period of
ten years and that court has taken cognizance of such offence –
That requirement applies essentially to an offence punishable only
under s.3(1) of the 2000 Act – As regards offences punishable under
ss.3(2), 3(3), 3(4) or 3(5), it can proceed against any person sans
such previous offence registered against him, if there is material to
indicate that he happens to be a member of the organized crime
syndicate who had committed the offences in question and it can be
established that there is material about his nexus with the accused
who is a member of the organized crime syndicate.
Allowing the appeals, the Court
HELD: 1.1 The purport of section 24, upon its textual
construct, posits that information regarding commission of an

309
310 SUPREME COURT REPORTS [2021] 10 S.C.R.

A offence of organized crime under the 2000 Act can be recorded
by a police officer only upon obtaining prior approval of the police
officer not below the rank of the Deputy Inspector General of
Police. That is the quintessence for recording of offence of
organized crime under the Act by a police officer. What is crucial
in this provision is the factum of recording of offence of organized
B
crime and not of recording of a crime against an offender as such.
It is cardinal to observe that only after registration of FIR,
investigation for the concerned offence would proceed — in which
the details about the specific role and the identity of the persons
involved in such offence can be unravelled and referred to in the
C chargesheet to be filed before the competent Court. [Paras 19,
20][323-D-F, H; 324-A]
1.2 Concededly, the original FIR registered in the present
case was for an ordinary crime of murder against unknown
persons. At the relevant time, the material regarding offence
D having been committed by an organized crime syndicate was not
known. That information came to the fore only after investigation
of the offence by the SIT, as has been mentioned in the report
submitted to the Commissioner of Police, Bengaluru City for
seeking his prior approval to invoke Section 3 of the 2000 Act.
Once again, at this stage, the Commissioner of Police had focussed
E only on the factum of information regarding the commission of
organized crime by an organized crime syndicate and on being
prima facie satisfied about the presence of material on record in
that regard, rightly proceeded to accord prior approval for
invoking Section 3 of the 2000 Act. The prior approval was not
F for registering crime against individual offenders as such, but for
recording of information regarding commission of an offence of
organized crime under the 2000 Act. Therefore, the specific role
of the concerned accused is not required to be and is not so
mentioned in the stated prior approval. That aspect would be
unravelled during the investigation, after registration of offence
G of organized crime. Notably, the High Court, without analysing
the material presented along with chargesheet on the basis of
which cognizance has been taken by the competent Court
including against the writ petitioner-M, concerning commission
of organized crime by the organized crime syndicate of which he
H
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 311

is allegedly a member, committed manifest error and exceeded A
its jurisdiction in quashing the chargesheet filed before the
competent Court qua the writ petitioner-M regarding offences
under Section 3(1)(i), 3(2), 3(3) and 3(4) of the 2000 Act.
[Paras 21, 22][324-B-G]
State (NCT of Delhi) v. Brijesh Singh @ Arun Kumar & B
Anr. (2017) 10 SCC 779 : [2017] 11 SCR 899; State of
Maharashtra & Ors. v. Lalit Somdatta Nagpal & Anr.
(2007) 4 SCC 171 : [2007] 2 SCR 473 – distinguished.
2.1 The fact that the Investigating Agency was unable to
collect material during investigation against the writ petitioner- C
M for offence under Section 3(1) of the 2000 Act, does not mean
that the information regarding commission of a crime by him within
the meaning of Section 3(2), 3(3) or 3(4) of the 2000 Act cannot
be recorded and investigated against him as being a member of
the organized crime syndicate and/or having played role of an
abettor, being party to the conspiracy to commit organized crime D
or of being a facilitator, as the case may be. For the latter category
of offence, it is not essential that more than two chargesheets
have been filed against the person so named, before a competent
court within the preceding period of ten years and that court had
taken cognizance of such offence. That requirement applies E
essentially to an offence punishable only under Section 3(1) of
the 2000 Act. [Para 23][325-D-F]
2.2 As regards offences punishable under Section 3(2), 3(3),
3(4) or 3(5), it can proceed against any person sans such previous
offence registered against him, if there is material to indicate F
that he happens to be a member of the organized crime syndicate
who had committed the offences in question and it can be
established that there is material about his nexus with the accused
who is a member of the organized crime syndicate. [Para 24]
[325-G; 326-A]
G
2.3 The High Court in the present case was essentially
concerned with the legality of prior approval granted by the
Commissioner of Police, Bengaluru City dated 14.08.2018 for
invoking Section 3 of the 2000 Act and thus, to allow recording of
information regarding commission of offence of organized crime
under the 2000 Act and to investigate the same. While considering H
312 SUPREME COURT REPORTS [2021] 10 S.C.R.

A the proposal for grant of prior approval under Section 24(1)(a) of
the 2000 Act, what is essential is the satisfaction of the competent
authority that the material placed before him does reveal presence
of credible information regarding commission of an offence of
organized crime by the organized crime syndicate and, therefore,
allow invocation of Section 3 of the 2000 Act. As a consequence
B
of which, investigation of that crime can be taken forward by the
Investigating Agency and chargesheet can be filed before the
concerned Court and upon grant of sanction by the competent
authority under Section 24(2), the competent Court can take
cognizance of the case. [Para 25][326-G; 327-A-C]
C 3.1 At the stage of granting prior approval under Section
24(1)(a) of the 2000 Act, therefore, the competent authority is
not required to wade through the material placed by the
Investigating Agency before him along with the proposal for grant
of prior approval to ascertain the specific role of each accused.
D The competent authority has to focus essentially on the factum
whether the information/material reveals the commission of a
crime which is an organized crime committed by the organized
crime syndicate. In that, the prior approval is qua offence and
not the offender as such. As long as the incidents referred to in
earlier crimes are committed by a group of persons and one
E common individual was involved in all the incidents, the offence
under the 2000 Act can be invoked. [Para 26][327-D-F]
3.2 This Court in Prasad Shrikant Purohit in paragraphs 61
and 98 expounded that at the stage of taking cognizance, the
competent Court takes cognizance of the offence and not the
F offender. This analogy applies even at the stage of grant of prior
approval for invocation of provisions of the 2000 Act. The prior
sanction under Section 24(2), however, may require enquiry into
the specific role of the offender in the commission of organized
crime, namely, he himself singly or jointly or as a member of the
G organized crime syndicate indulged in commission of the stated
offences so as to attract the punishment provided under Section
3(1) of the 2000 Act. However, if the role of the offender is merely
that of a facilitator or of an abettor as referred to in Section 3(2),
3(3), 3(4) or 3(5), the requirement of named person being involved
in more than two chargesheets registered against him in the past
H
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 313

is not relevant. Regardless of that, he can be proceeded under A
the 2000 Act, if the material collected by the Investigating Agency
reveals that he had nexus with the accused who is a member of
the organized crime syndicate or such nexus is related to the
offence in the nature of organized crime. Thus, he need not be a
person who had direct role in the commission of an organized
B
crime as such. [Para 26][327-F-H; 328-A-B]
4. A priori, the conclusion reached by the High Court in
partly allowing the writ petition filed by the writ petitioner-M, is
manifestly wrong and cannot be countenanced. In any case, the
High Court has completely glossed over the crucial fact that the
writ petition was filed only after the sanction was accorded by the C
competent authority under Section 24(2) and more so cognizance
was also taken by the competent Court of the offence of organized
crime committed by the members of organized crime syndicate
including the writ petitioner - to which there was no challenge.
The High Court has not analysed the efficacy of these D
developments as disentitling the writ petitioner belated relief
claimed in respect of prior approval under Section 24(1)(a) of the
2000 Act. Further, the High Court has clearly exceeded its
jurisdiction in quashing the chargesheet filed against the writ
petitioner-M for offences punishable under Section 3(2), 3(3) and
3(4) of the 2000 Act at this stage [of prior approval under Section E
24(1)(a)]. [Para 27][328-C-E]
Ranjitsingh Brahmajeetsing Sharma v. State of
Maharashtra (2005) 5 SCC 294 : [2005] 3 SCR 345
– relied on.
F
Muniraju R. v. State of Karnataka & Ors. Criminal
Petition No. 391 of 2019 decided on 05.02.2019 by
the High Court of Karnataka at Bengaluru; Vinod G.
Asrani v. State of Maharashtra (2007) 3 SCC 633 :
[2007] 2 SCR 1023; John D’Souza v. Assistant
Commissioner of Police Manu/MH/0797/2007; Prasad G
Shrikant Purohit v. State of Maharashtra & Anr.
(2015) 7 SCC 440 : [2015] 8 SCR 575; Govind
Sakharam Ubhe v. State of Maharashtra 2009 SCC
OnLine Bom 770; Digvijay Saroha v. State 2019 SCC
OnLine Del 10324 – referred to. H
314 SUPREME COURT REPORTS [2021] 10 S.C.R.

A Case Law Reference
[2007] 2 SCR 473 distinguished para 8
[2017] 11 SCR 899 distinguished para 8
[2007] 2 SCR 1023 referred to para 9
B [2015] 8 SCR 575 referred to para 9
[2005] 3 SCR 345 relied on para 24
CRIMINAL APPELLATE JURISDICTION: Criminal Appeal
No. 1236 of 2021.
From the Judgment and Order dated 22.04.2021 of the High Court
C
of Karnataka at Bengaluru in W.P. No. 9717 of 2019 (GM-RES).
With
Criminal Appeal No. 1237 of 2021.
Huzefa Ahmedi, Basava Prabhu S. Patil, Sr. Advs., Ms. Aparna
D Bhat, V. N. Raghupathy, Md. Apzal Ansari, Shailesh Madiyal, Sudhanshu
Prakash, Ms. Rakhi M., Vaibhav Sabhrawal, Ms. Sruthi Iyer, Ms. Neha
Jain, Advs. for the Appearing Parties.
The Judgment of the Court was delivered by
A. M. KHANWILKAR, J.
E
1. These appeals emanate from the judgment and order dated
22.04.2021 passed by the High Court of Karnataka at Bengaluru in Writ
Petition No.9717 of 2019 (GM-RES), whereby the High Court partly
allowed the writ petition and quashed the order bearing No.CRM(1)/
KCOCA/01/2018 dated 14.08.2018 issued by the Commissioner of Police,
F Bengaluru City according prior approval to invoke offences under Section
3 of the Karnataka Control of Organised Crimes Act, 2000 1 against
Mohan Nayak.N (private respondent herein)2 being crime registered
with Rajarajeshwari Nagar Police Station as FIR No.221/2017 dated
05.09.2017 and to enquire into the same.
G 2. Shorn of unnecessary details, be it noted that the present appeals
pertain to the incident which had occurred on 05.09.2017 in which one
1
for short, ‘the 2000 Act’
2
Writ Petitioner before the High Court; not named in FIR No.221/2017 and preliminary
chargesheet; shown as accused No.8 in the prior approval and as accused No.11 in the
H additional chargesheet.
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 315
[A. M. KHANWILKAR, J.]

Gauri Lankesh, who was a leading journalist, was shot dead by certain A
unknown assailants near her house at Rajarajeshwari Nagar, Bengaluru.
Her sister-Kavitha Lankesh (appellant herein) rushed to the spot and
after seeing her sister in a precarious condition, immediately lodged a
complaint with the Rajarajeshwari Nagar Police Station, which came to
be registered for offences punishable under Section 302 of the IPC and
B
Section 25 of the Arms Act, 1959 3 being FIR No.221/2017 dated
05.09.2017. The investigation of the crime was thereafter entrusted to
the Special Investigating Team4 on 06.09.2017.
3. In the course of investigation, a preliminary chargesheet came
to be filed against the concerned accused on 29.05.2018. The crime
was then committed to the City Civil and Sessions Judge as CC No.14578 C
of 2018. The Investigating Officer had sought permission of the Magistrate
to file an additional chargesheet under Section 173(8) of the Criminal
Procedure Code as the investigation was still underway. The private
respondent-Mohan Nayak.N came to be arrested on 18.07.2018 in
connection with the stated crime. The further investigation revealed that D
the accused persons in Special CC No.872 of 2018 were involved in
organized crime as a syndicate which attracted the provisions of Section
3 of the 2000 Act. The SIT submitted that report to the Chief Investigating
Officer, who then sought approval of the Commissioner of Police,
Bengaluru City vide proposal dated 07.08.2018, to invoke Section 3 of
the 2000 Act concerning organized crime. E
4. After due consideration of the stated report and the entire
investigation papers and record of evidence collected by the SIT, the
Commissioner of Police, Bengaluru City in exercise of powers under
Section 24(1)(a) of the 2000 Act accordedprior approval for invoking
Section 3 of the 2000 Act in respect of crime being FIR No.221/2017, F
vide communication dated 14.08.2018.
5. After completion of the investigation, the Additional Director
General of Police and Commissioner of Police, Bengaluru City accorded
sanction under Section 24(2) of the 2000 Act. The final police report
then came to be filed on 23.11.2018 before the Special Court at Bengaluru,
for offences punishable under Sections 302, 120B, 114, 118, 109, 201, G
203, 204 and 35 of the IPC. Further charges were also invoked under
Sections 25(1), 25(1B) and 27(1) of the Arms Act and Section 3(1)(i),
3(2), 3(3) and 3(4) of the 2000 Act. The additional chargesheet came to
3
for short, ‘the Arms Act’
4
for short, ‘the SIT’ H
316 SUPREME COURT REPORTS [2021] 10 S.C.R.

A be filed against named accused Nos.1 to 18 before the Principal City
Civil and Sessions Judge Court (CCH-1) in Special C.C.No.872 of 2018
under the stated provisions, in which private respondent-Mohan Nayak.N
was named as accused. The Court then took cognizance on 17.12.2018.
6. It is only after the cognizance was taken by the competent
B Court, the private respondent-Mohan Nayak.N was advised to file Writ
Petition No.9717 of 2019 before the High Court on 25.02.2019, for the
following reliefs:
“PRAYER
WHEREFORE, the Petitioner above named most respectfully
C prays that this Hon’ble Court may be pleased to;
(a) Issue a writ in the nature of certiorari or any other writ or
order or direction, quashing the order dated: 14.08.2018
passed by the third Respondent herein in No.CRM(1)
KCOCA/01/2018 thereby passing an order of approval
D under section 24(1)(a) of the Karnataka Control of
Organised Crimes Act, 2000 (herein after referred to as
KCOCA Act for short) to invoke the section 3 of the said
Act in Crime No.221/2017 registered by the fifth Respondent
herein for the offences punishable under section 302, 120B,
118, 114 read with section 35 of the Indian Penal Code and
E
sections 3 and 25 of the Indian Arms Act and also the
additional charge sheet filed by the fourth Respondent herein
against the Petitioner in so far as section 3(i), 3(ii), 3(iii)
and 3(iv) of the KCOCA Act, which are produced as
ANNEXURES-A & B respectively; and
F
(b) Grant such other and further reliefs as deems fit in the
circumstances of the case in the interest of justice and
equity.”
7. The High Court vide impugned judgment noted that it was called
upon to examine whether the impugned order dated 14.08.2018 issued
G
by the Commissioner of Police, Bengaluru City in exercise of power
under Section 24(1)(a) of the 2000 Act according prior approval to invoke
Section 3 of the 2000 Act for investigation against concerned accused
including writ petitioner-Mohan Nayak.N is legal and valid. In the context
of that relief, the High Court noted the submissions made by the counsel
H for the writ petitioner in the following words:
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 317
[A. M. KHANWILKAR, J.]

“7. Sri Gautham S. Bharadwaj, learned Counsel for the petitioner A
challenges the order Annexure-A granting permission under
Section 24(1)(a) of the Act against the petition on the following
grounds:
(i) The petitioner was not involved in continuing unlawful activity
as contemplated in Section 2(1)(d) of the Act; B
(ii) The charge sheet allegations do not attract organized crime as
contemplated under Section 2(e) of the Act; &
(iii) By such unlawful invocation of Section 24(1)(a) of the Act,
personal liberty of the petitioner is violated, thereby the order
Annexure-A is violative of Article 21 of the Constitution of India, C
1950.”
8. The High Court also adverted to the three decisions pressed
into service by the writ petitioner-Mohan Nayak.N, namely, State of
Maharashtra & Ors. vs. Lalit Somdatta Nagpal & Anr.5, State (NCT
of Delhi) vs. Brijesh Singh @ Arun Kumar & Anr. 6 and Muniraju R. D
vs. State of Karnataka & Ors.7.
9. The High Court then proceeded to note the objections taken by
the prosecution in the following words:
“9. Sri H.S. Chandramouli, learned Special Public Prosecutor
opposes the petition on the following grounds: E
(i) There is no dispute that accused Nos.7 and 10 were involved
in two criminal cases each, accused Nos.9, 1 to 4 were involved
in one criminal case each. The said offences were cognizable
offences and the cognizance was taken in those cases;
F
(ii) If one of the members of the organized crime syndicate is
involved in more than one case and the charge sheet was filed,
Section 2(d) of the Act is attracted. Therefore even if the petitioner
was not involved in other cases, respondent No.3 has rightly
invoked Section 2(d) of the Act;
(iii) Annexure-A shows that the approval was granted for G
investigation on due application of mind;
5
(2007) 4 SCC 171
6
(2017) 10 SCC 779
7
Criminal Petition No.391 of 2019 decided on 05.02.2019 by the High Court of
Karnataka at Bengaluru H
318 SUPREME COURT REPORTS [2021] 10 S.C.R.

A (iv) After the charge sheet was filed, the trial Court has taken
cognizance of the offences and the petitioner has not sought
quashing of the charge sheet or the order taking cognizance,
therefore challenge to Annexure-A is not maintainable;
(v) The petitioner filed Crl.P.No.8325/2018 seeking bail. In that
B petition, he raised the same contentions. This Court while passing
the order rejected the said contention and that order has attained
finality. Therefore it is not open to the petitioner to challenge
Annexure-A on the same grounds;
(vi) The petitioner did not file any application for discharge on the
C same grounds, under such circumstances, Annexure-A is vexatious;
&
(vii) The judgments relied upon by learned counsel for the petitioner
are not applicable.”
The High Court then adverted to the decisions relied upon by the
D prosecution, namely, Vinod G. Asrani vs. State of Maharashtra8, John
D’Souza vs. Assistant Commissioner of Police9, Prasad Shrikant
Purohit vs. State of Maharashtra & Anr.10, Govind Sakharam Ubhe
vs. State of Maharashtra11 , Digvijay Saroha vs. State12 and K.T.
Naveen Kumar @ Naveen vs. State of Karnataka13.
10. After having noted the rival submissions, the High Court posed
E
a question to itself whether Section 3 of the 2000 Act applies to the writ
petitioner-Mohan Nayak.N?
11. The High Court noted the role of the writ petitioner-Mohan
Nayak.N, as imputed by the prosecution, that he had acted on instructions
of co-accused Amol Kale14 to take a house on rent in Tagachukuppe,
F Kumbalgodu in the guise of running an acupressure clinic, which was in
fact meant to accommodate the members of the syndicate and even
after commission of murder of Gauri Lankesh, he harboured the actual
assailants therein. The High Court then noted the fact that accused Nos.3,
8
(2007) 3 SCC 633
G 9
Manu/MH/0797/2007
10
(2015) 7 SCC 440
11
2009 SCC OnLine Bom 770
12
2019 SCC OnLine Del 10324
13
Crl. P.No.5507/2019 decided on 10.01.2020 by the High Court of Karnataka at
Bengaluru
14
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
H No.3 in the prior approval and as accused No.1 in the additional chargesheet.
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 319
[A. M. KHANWILKAR, J.]

5, 7 to 9, 11, 13 to 16 were not chargesheeted in any single case for A
cognizable offences, nor cognizance of such offences had been taken
by a competent court against them as required under Section 2(1)(d) of
the 2000 Act. The High Court then noticing the exposition in Lalit
Somdatta Nagpal15, Brijesh Singh16 and Muniraju R.17, opined that
in absence of at least two chargesheets filed against the writ petitioner-
B
Mohan Nayak.N in respect of specified offences and of which cognizance
had been taken by the competent Court as required to attract the offence
of organized crime, he was not engaged in continuing unlawful activity.
On this finding, the High Court concluded that the writ petitioner-Mohan
Nayak.N cannot be proceeded further and thus, partly allowed the writ
petition by not only quashing the order dated 14.08.2018 of the C
Commissioner of Police, Bengaluru City according approval for invoking
Section 3 of the 2000 Act, but also the chargesheet filed against the writ
petitioner-Mohan Nayak.N for offences punishable under Section 3(1)(i),
3(2), 3(3) and 3(4) of the 2000 Act. As regards the decisions relied upon
by the prosecution, the High Court noted that the same were of no avail
D
to the prosecution.
12. Being aggrieved, the complainant-Kavitha Lankesh as well
as the State of Karnataka have filed separate appeals before this Court
questioning the correctness of the view taken by the High Court. The
arguments as canvassed before the High Court have been reiterated by
both sides including reliance has been placed on the reported decisions E
referred hitherto.
13. We have heard Mr. Huzefa Ahmedi, learned Senior Counsel
appearing for the appellant-Kavitha Lankesh, Mr. V.N. Raghupathy,
learned Counsel for the State of Karnataka and Mr. Basava Prabhu S.
Patil, learned Senior Counsel appearing for the private respondent. F

14. To recapitulate the relevant factual background, be it noted
that FIR under Section 154 of the Criminal Procedure Code was
registered with Rajarajeshwari Nagar Police Station being Crime No.221/
2017 dated 05.09.2017 initially for offences punishable under Section
302 of the IPC and Section 25 of the Arms Act at the instance of the G
appellant-Kavitha Lankesh against unknown persons. Considering the
nature of offence, the Government of Karnataka constituted a SIT vide
15
supra at Footnote No.5
16
supra at Footnote No.6
17
supra at Footnote No.7 H
320 SUPREME COURT REPORTS [2021] 10 S.C.R.

A order dated 06.09.2017 headed by Mr. B.K. Singh, IPS, IGP, Intelligence,
Bengaluru. Mr. M.N. Anucheth, IPS, DCP (West) was nominated as
the Chief Investigating Officer of the SIT. The SIT after taking over the
investigation submitted preliminary chargesheet dated 29.05.2018 against
accused K.T. Naveen Kumar @ Naveen18 before the concerned Court
for offences punishable under Sections 302, 114, 118, 120B and 35 of
B
the IPC read with Sections 3 and 25 of the Arms Act. The preliminary
chargesheet was accompanied with documents and list of witnesses.
On the basis of material collected during further investigation, report
dated 07.08.2018 was submitted by the Chief Investigating Officer of
the SIT to the Commissioner of Police, Bengaluru City for according
C prior approval for invoking provisions of the 2000 Act in respect of crime
already registered. The Commissioner of Police, Bengaluru City after
going through the stated report, entire investigation papers and record of
evidence collected until then, was satisfied that the accused Parshuram
Wagmore19, Amith Baddi20, and Ganesh Miskin21 were involved in more
than two specified offences in the past through their illegal actions of
D
sedition, promoting enmity between two groups of people, inciting
communal violence, assaulting and injuring public servants, damaging
public property and causing grave disturbance to public order. The
Commissioner of Police also recorded his satisfaction that K.T. Naveen
Kumar @ Naveen, Sujith Kumar22, Amol Kale and Amit Degvekar23,
E have jointly committed an offence having punishment of three years or
more within the preceding period of ten years and the chargesheet(s)
had been filed against them before the competent Court and cognizance
thereof has been taken. He then formed an opinion that these accused
had jointly conspired to assassinate one Prof. K.S. Bhagawan for
expressing his views which were inimical to that of their ideology. They
F
intended to instil fear in the hearts and minds of those whose views
18
Not named in FIR No.221/2017; shown as accused No.1 in the preliminary chargesheet
and in prior approval and as accused No.17 in the additional chargesheet.
19
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
No.7 in the prior approval and as accused No.2 in the additional chargesheet.
G 20
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
No.10 in the prior approval and as accused No.4 in the additional chargesheet.
21
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
No.9 in the prior approval and as accused No.3 in the additional chargesheet.
22
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
No.2 in the prior approval and as accused No.13 in the additional chargesheet.
23
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
H No.4 in the prior approval and as accused No.5 in the additional chargesheet.
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 321
[A. M. KHANWILKAR, J.]

were antithesis to their own views and stifle the fundamental right of A
free speech and expression. The Commissioner of Police was also
convinced that the arrested accused Nos.1 to 12 and the absconding
accused No.5 were active members of an organized crime syndicate
and have committed the present offence in furtherance of their organized
crime activity in order to promote insurgency. The Commissioner of
B
Police adverted to the findings in the investigation record revealing that
one Rajesh D. Bangera24 gave training in arms to various members of
the syndicate since 2012 at various places in and around Karnataka and
Maharashtra. After having taken note of these facts, the Commissioner
of Police recorded his satisfaction in the following words:
“Investigation findings have clearly revealed that these members C
of the organized crime syndicate were in constant touch with one
another and actively underwent arms training, arms shooting
practice, crude bomb making and indoctrination. They met,
conspired and trained at various places in and around Karnataka
and Maharashtra with the intention of promoting insurgency. D
Documents seized during the investigation clearly reveal the
intention of the accused to assassinate 8 writers/thinkers of
Karnataka and 26 other writers/thinkers from the rest of the
country.
Documents seized in the course of investigation conducted E
reveal the plans of how the organized crime syndicate intended to
cause grave disturbance to public order during the release of a
movie titled ‘Padmaavat’ by attacking films theatres where the
said movie would have been exhibited by the use of deadly
substances like petrol bombs, acid etc. and cause bodily harm to
the viewers and economically hurt the film distributors. These F
documents further reveal the intention of the syndicate to procure
and use RDX, petrol bombs, acids, poisons and other incendiary
and chemical materials.
Investigation findings have prima facie revealed that these
members of the organized crime syndicate conspired and murdered G
Ms. Gauri Lankesh to further their cause and to promote
insurgency.

24
Not named in FIR No.221/2017 and in the preliminary chargesheet; shown as accused
No.11 in the prior approval and as accused No.8 in the additional chargesheet. H
322 SUPREME COURT REPORTS [2021] 10 S.C.R.

A Thus, on perusal and evaluation of the entire material
brought on record and also taking into consideration the factual
circumstances of the case including the proximity and time gap in
committing the crimes and having applied my mind, I am satisfied
and convinced that the arrested and wanted accused have
committed the offence as defined in section 2(1) of the Karnataka
B
Control of Organized Crimes Act, 2000.
NOW, THEREFORE, in exercise of the powers conferred
upon me by Section 24(1)(a) of the said Act, I, T. Suneel Kumar,
IPS, Additional Director General of Police and Commissioner of
Police, Bengaluru City hereby grant/accord my prior approval to
C invoke Section 3 of The Karnataka Control of Organized Crimes
Act 2000, to Sri M.N. Anucheth, IPS, DCP (Administration),
Bengaluru City and Chief Investigating Officer (Special
Investigation Team) in the Bengaluru City Rajarajeshwari Nagar
Police Station Crime No. 221/217 u/s 302, 120(B), 118, 114 r/w
D 35 of Indian Penal Code and 3, 25 of Indian Arms Act.
Sri M.N. Anucheth, Chief Investigating Officer, shall
scrupulously follow and comply with the provisions of The
Karnataka Control of Organized Crimes Act, 2000.
This order given under my signature and seal today i.e.
E 14th August, 2018.”
15. It is plain that tangible material was placed before the
Commissioner regarding information about the commission of an
organized crime by the members of organized crime syndicate, which
warranted grant of prior approval to invoke Section 3 of the 2000 Act.
F This prior approval was assailed before the High Court by way of writ
petition filed much after the appropriate authority had already accorded
sanction and the competent court had taken cognizance of that crime on
17.12.2018.
16. The High Court opened the judgment by noting that the
challenge is to the order dated 14.08.2018 of the Commissioner of Police,
G
Bengaluru City granting approval to invoke Section 3 of the 2000 Act. In
the latter part of the judgment, however, it posed a wrong question to
itself which was obviously not relevant at this stage — as to whether
Section 3 of the 2000 Act applies to the writ petitioner-Mohan Nayak.N?
Notably, the High Court was not called upon nor has it analysed the
H entire material collected by the Investigating Agency, which had been
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 323
[A. M. KHANWILKAR, J.]

made part of the chargesheet filed before the competent Court and in A
respect of which cognizance is also taken.
17. For the time being for deciding the matter in issue, there is no
need to advert to the contents of the chargesheets and the material
collated during the investigation by the SIT against each of the accused
in respect of which cognizance has already been taken by the competent B
Court.
18. The moot question to be answered in these appeals is about
the purport of Section 24 of the 2000 Act. Section 24(1)(a), which is
crucial for our purpose, reads thus:
“24. Cognizance of and investigation into an offence.-(1) C
Notwithstanding anything contained in the Code, -
(a) No information about the commission of an offence of
organized crime under this Act shall be recorded by a police officer
without the prior approval of the police officer not below the rank
of the Deputy Inspector General of Police; D
…...”
19. The purport of this section, upon its textual construct, posits
that information regarding commission of an offence of organized crime
under the 2000 Act can be recorded by a police officer only upon obtaining
E
prior approval of the police officer not below the rank of the Deputy
Inspector General of Police. That is the quintessence for recording of
offence of organized crime under the Act by a police officer.
20. What is crucial in this provision is the factum of recording of
offence of organized crime and not of recording of a crime against an
F
offender as such. Further, the right question to be posed at this stage is:
whether prior approval accorded by the competent authority under Section
24(1)(a) is valid? In that, whether there was discernible information about
commission of an offence of organized crime by known and unknown
persons as being members of the organized crime syndicate? Resultantly,
what needed to be enquired into by the appropriate authority (in the G
present case, Commissioner of Police) is: whether the factum of
commission of offence of organized crime by an organized crime
syndicate can be culled out from the material placed before him for
grant of prior approval? That alone is the question to be enquired into
even by the Court at this stage. It is cardinal to observe that only after
H
324 SUPREME COURT REPORTS [2021] 10 S.C.R.

A registration of FIR, investigation for the concerned offence would proceed
— in which the details about the specific role and the identity of the
persons involved in such offence can be unravelled and referred to in
the chargesheet to be filed before the competent Court.
21. Concededly, the original FIR registered in the present case
B was for an ordinary crime of murder against unknown persons. At the
relevant time, the material regarding offence having been committed by
an organized crime syndicate was not known. That information came to
the fore only after investigation of the offence by the SIT, as has been
mentioned in the report submitted to the Commissioner of Police,
Bengaluru City for seeking his prior approval to invoke Section 3 of the
C 2000 Act. Once again, at this stage, the Commissioner of Police had
focussed only on the factum of information regarding the commission of
organized crime by an organized crime syndicate and on being prima
facie satisfied about the presence of material on record in that regard,
rightly proceeded to accord prior approval for invoking Section 3 of the
D 2000 Act. The prior approval was not for registering crime against
individual offenders as such, but for recording of information regarding
commission of an offence of organized crime under the 2000 Act.
Therefore, the specific role of the concerned accused is not required to
be and is not so mentioned in the stated prior approval. That aspect
would be unravelled during the investigation, after registration of offence
E of organized crime. The High Court, thus, examined the matter by applying
erroneous scale. The observations made by the High Court in the
impugned judgment clearly reveal that it has glossed over the core and
tangible facts.
22. Notably, the High Court, without analysing the material
F presented along with chargesheet on the basis of which cognizance has
been taken by the competent Court including against the writ petitioner-
Mohan Nayak.N, concerning commission of organized crime by the
organized crime syndicate of which he is allegedly a member, committed
manifest error and exceeded its jurisdiction in quashing the chargesheet
G filed before the competent Court qua the writ petitioner-Mohan Nayak.N
regarding offences under Section 3(1)(i), 3(2), 3(3) and 3(4) of the 2000
Act. The High Court did so being impressed by the exposition of this
Court in Lalit Somdatta Nagpal25,in particular paragraph 63 thereof.
Indeed, that exposition would have bearing only if the entire material
25
H supra at Footnote No.5
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 325
[A. M. KHANWILKAR, J.]

was to be analysed by the High Court to conclude that the facts do not A
disclose justification for application of provisions of the 2000 Act including
qua the writ petitioner-Mohan Nayak.N, provided he was being proceeded
only for offence of organized crime punishable under Section 3(1) of the
2000 Act. For, the reported decision deals with the argument regarding
invocation of provision analogous to Section 3(1) of the 2000 Act. Be it
B
noted that requirement of more than two chargesheets is in reference to
the continuing unlawful activities of the organized crime syndicate and
not qua individual member thereof. Reliance was also placed on Brijesh
Singh26. Even this decision is of no avail to the private respondent-
Mohan Nayak.N for the same reason noted whilst distinguishing Lalit
Somdatta Nagpal27. Further, the questions considered in that case, as C
can be discerned from paragraph 12 of the reported decision, are
regarding jurisdiction of the competent Court to take notice of
chargesheets filed against the accused outside the State. It is not an
authority on the issue under consideration.
23. We may hasten to add that the fact that the Investigating D
Agency was unable to collect material during investigation against the
writ petitioner-Mohan Nayak.N for offence under Section 3(1) of the
2000 Act, does not mean that the information regarding commission of a
crime by him within the meaning of Section 3(2), 3(3) or 3(4) of the 2000
Act cannot be recorded and investigated against him as being a member
of the organized crime syndicate and/or having played role of an abettor, E
being party to the conspiracy to commit organized crime or of being a
facilitator, as the case may be. For the latter category of offence, it is
not essential that more than two chargesheets have been filed against
the person so named, before a competent court within the preceding
period of ten years and that court had taken cognizance of such offence. F
That requirement applies essentially to an offence punishable only under
Section 3(1) of the 2000 Act.
24. As regards offences punishable under Section 3(2), 3(3), 3(4)
or 3(5), it can proceed against any person sans such previous offence
registered against him, if there is material to indicate that he happens to G
be a member of the organized crime syndicate who had committed the
offences in question and it can be established that there is material about
his nexus with the accused who is a member of the organized crime
26
supra at Footnote No.6 (paragraph 25)
27
supra at Footnote No.5 H
326 SUPREME COURT REPORTS [2021] 10 S.C.R.

A syndicate. This position is expounded in the case of Ranjitsingh
Brahmajeetsing Sharma vs. State of Maharashtra28 which has been
quoted with approval in paragraph 85 of the judgment in Prasad Shrikant
Purohit29. The same reads thus:
“85. A reading of para 31 in Ranjitsing Brahmajeetsing Sharma
B case30 shows that in order to invoke Mcoca even if a person
may or may not have any direct role to play as regards the
commission of an organised crime, if a nexus either with an accused
who is a member of an “organised crime syndicate” or with the
offence in the nature of an “organised crime” is established that
would attract the invocation of Section 3(2) of Mcoca. Therefore,
C even if one may not have any direct role to play relating to
the commission of an “organised crime”, but when the
nexus of such person with an accused who is a member of
the “organised crime syndicate” or such nexus is related
to the offence in the nature of “organised crime” is
D established by showing his involvement with the accused
or the offence in the nature of such “organised crime”, that
by itself would attract the provisions of Mcoca. The said
statement of law by this Court, therefore, makes the position clear
as to in what circumstances Mcoca can be applied in respect of a
person depending upon his involvement in an organised crime in
E the manner set out in the said paragraph. In paras 36 and 37, it
was made further clear that such an analysis to be made to
ascertain the invocation of Mcoca against a person need
not necessarily go to the extent for holding a person guilty
of such offence and that even a finding to that extent need
F not be recorded. But such findings have to be necessarily
recorded for the purpose of arriving at an objective finding on the
basis of materials on record only for the limited purpose of grant
of bail and not for any other purpose. Such a requirement is,
therefore, imminent under Section 21(4)(b) of Mcoca.”
G (emphasis supplied)
25. It is not necessary to multiply authorities in this regard. Suffice
it to observe that the High Court in the present case was essentially
28
(2005) 5 SCC 294
29
supra at Footnote No.10
H 30
supra at Footnote No.28
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 327
[A. M. KHANWILKAR, J.]

concerned with the legality of prior approval granted by the Commissioner A
of Police, Bengaluru City dated 14.08.2018 for invoking Section 3 of the
2000 Act and thus, to allow recording of information regarding
commission of offence of organized crime under the 2000 Act and to
investigate the same. As aforesaid, while considering the proposal for
grant of prior approval under Section 24(1)(a) of the 2000 Act, what is
B
essential is the satisfaction of the competent authority that the material
placed before him does reveal presence of credible information regarding
commission of an offence of organized crime by the organized crime
syndicate and, therefore, allow invocation of Section 3 of the 2000 Act.
As a consequence of which, investigation of that crime can be taken
forward by the Investigating Agency and chargesheet can be filed before C
the concerned Court and upon grant of sanction by the competent authority
under Section 24(2), the competent Court can take cognizance of the
case.
26. At the stage of granting prior approval under Section 24(1)(a)
of the 2000 Act, therefore, the competent authority is not required to D
wade through the material placed by the Investigating Agency before
him along with the proposal for grant of prior approval to ascertain the
specific role of each accused. The competent authority has to focus
essentially on the factum whether the information/material reveals the
commission of a crime which is an organized crime committed by the
organized crime syndicate. In that, the prior approval is qua offence and E
not the offender as such. As long as the incidents referred to in earlier
crimes are committed by a group of persons and one common individual
was involved in all the incidents, the offence under the 2000 Act can be
invoked. This Court in Prasad Shrikant Purohit31 in paragraphs 61 and
98 expounded that at the stage of taking cognizance, the competent F
Court takes cognizance of the offence and not the offender. This analogy
applies even at the stage of grant of prior approval for invocation of
provisions of the 2000 Act. The prior sanction under Section 24(2),
however, may require enquiry into the specific role of the offender in the
commission of organized crime, namely, he himself singly or jointly or as
a member of the organized crime syndicate indulged in commission of G
the stated offences so as to attract the punishment provided under Section
3(1) of the 2000 Act. However, if the role of the offender is merely that
of a facilitator or of an abettor as referred to in Section 3(2), 3(3), 3(4)

31
supra at Footnote No.10 H
328 SUPREME COURT REPORTS [2021] 10 S.C.R.

A or 3(5), the requirement of named person being involved in more than
two chargesheets registered against him in the past is not relevant.
Regardless of that, he can be proceeded under the 2000 Act, if the
material collected by the Investigating Agency reveals that he had nexus
with the accused who is a member of the organized crime syndicate or
such nexus is related to the offence in the nature of organized crime.
B
Thus, he need not be a person who had direct role in the commission of
an organized crime as such.
27. A priori, the conclusion reached by the High Court in partly
allowing the writ petition filed by the writ petitioner-Mohan Nayak.N, is
manifestly wrong and cannot be countenanced. In any case, the High
C Court has completely glossed over the crucial fact that the writ petition
was filed only after the sanction was accorded by the competent authority
under Section 24(2) and more so cognizance was also taken by the
competent Court of the offence of organized crime committed by the
members of organized crime syndicate including the writ petitioner — to
D which there was no challenge. The High Court has not analysed the
efficacy of these developments as disentitling the writ petitioner belated
relief claimed in respect of prior approval under Section 24(1)(a) of the
2000 Act. Further, the High Court has clearly exceeded its jurisdiction in
quashing the chargesheet filed against the writ petitioner-Mohan Nayak.N
for offences punishable under Section 3(2), 3(3) and 3(4) of the 2000
E Act at this stage [of prior approval under Section 24(1)(a)].
28. Taking any view of the matter, therefore, these appeals deserve
to be allowed and the impugned judgment and order of the High Court
needs to be set aside.

F 29. While parting, we may clarify that rejection of writ petition
filed by the private respondent-Mohan Nayak.N will not come in his
way in pursuing other remedies as may be available to him and permissible
in law. We may not be understood to have expressed any opinion either
way on the merits of such remedy. In other words, this judgment is
limited to the consideration of question whether prior approval dated
G 14.08.2018 granted by the Commissioner of Police, Bengaluru City, in
connection with offence registered as Crime No.221/2017, is valid or
otherwise. We have held that the same does not suffer from any infirmity
including qua private respondent-Mohan Nayak.N having noted his
intimate nexus with the brain behind the entire event being none other
H than Amol Kale and master arms trainer Rajesh D. Bangera who are
KAVITHA LANKESH v. STATE OF KARNATAKA & ORS. 329
[A. M. KHANWILKAR, J.]

part and parcel of an organized crime syndicate and committed organized A
crimes as such.
30. In view of the above, the appeals are allowed. The impugned
judgment and order dated 22.04.2021 passed by the High Court is set
aside and the writ petition filed by Mohan Nayak.N stands dismissed.
Pending application(s), if any, stands disposed of. B

Devika Gujral Appeals allowed.

C

D

E

F

G

H