Holding

A committing magistrate may grant consent under s.321 irrespective of the trial court’s jurisdiction, and the public prosecutor’s discretion to withdraw is valid provided it is exercised independently and not for improper political motives; thus the withdrawals were upheld and the appeals dismissed.

Summary

The Supreme Court examined two matters concerning the withdrawal of criminal prosecutions under Section 321 of the Criminal Procedure Code, 1973. In Criminal Appeal No. 287 of 1979, the Court held that a committing magistrate can grant consent to withdraw even when the offence is exclusively triable by a Court of Session, and that the public prosecutor’s discretion, though possibly influenced by the government, must be exercised independently and for public‑interest reasons. In Special Leave Petition (Criminal) No. 3115 of 1979, the Court found no malafide motive in the withdrawal of cases against Chaudhury Bansi Lal and dismissed the petition. The Court emphasized that the court’s role is supervisory, ensuring the prosecutor acted free of improper pressure, but it need not re‑appreciate the substantive grounds. Both the appeal and the special leave petition were dismissed, upholding the magistrates’ consent to withdrawal.

Issues considered

The jurisdiction of a committing magistrate under the 1973 CrPC to grant consent for withdrawal under s.321 when the offence is exclusively triable by a Court of Session.
Whether the public prosecutor’s discretion to withdraw can be exercised at the behest of the government and whether political considerations invalidate the withdrawal.
Whether the court must examine the substantive grounds for withdrawal or merely ensure the prosecutor acted independently.
The maintainability of a special leave petition under Art.136 without prior High Court proceedings.

Legislation cited

Code of Criminal Procedure, 1973s. 209, s. 321, s. 361, s. 397
Constitution of Indias. 136
Explosives Act, 1884s. 12, s. 5(3)(b)
Explosive Substances Act, 1908s. 7
Indian Penal Code, 1860s. 120-B, s. 121-A

Subjects

withdrawal of prosecutionpublic prosecutor discretionSection 321 CrPCcommitting magistrate jurisdictionpolitical offencesexecutive influenceSupreme Courtcriminal procedurespecial leave petitionArticle 136public interest

Judgment

i." :

982

RAJENDRA KUMAR JAIN ETC.
v.
STATE THROUGH SPECIAL POLICE ESTABLISHMENT
AND ORS. ETC. ETC.
May 2, 1980
B
[V. R. KRISHNA IYER AND 0. CHINNAPPA REDDY, JJ.J
Nolle Prost'iqui-Criminal Procedure Code, 1973 (Act II of 1974), Section
321, scope of-Conditions under which withdrawal from prosecution are permis-
sible-Competency of the Magistrate's Court to permit withdrawal-Public Prose-
cutor in charge of the ca.re, meanin'g of-Political ofJences explained.
C Section 321 of the Code of Criminal Procedure, 1973 which correspond& to
section 494 of the 1898 cod'e provides for the withdtawal from prosecution by
the Public Prosecutor or Assistoot Public Prosecutor incharge of a case with
the consent of the Court at any time before the judgment is pronounced. In
Criminal Appeal No. 287/79, the case instituted against George Mathew
Fernandes & others on 24-9-76 was allowOd to be withdrown on March 26, 1977
on an application under section 321 of the Criminal Procedure Code, 1973 made
D by N. S. Mathur Special Public Prosecutor. The learn'ed Chief Metropolitan
Magistrate expressed his opinion that "it was expedient to accord consent to
withdraw from the prosecution". A revision petition under section 397 of the
Criminal Procedure Code, 1973 challenging the said order granting permission to
. withdraw filed by ihe appellant an advocate in the High Court f:u1ed. The High
Court also held that the appellant had no locus standL

E Special Leave Petition (Cr!.) No. 31iS/79 was filed by one Manohar Lal
directly under Article 136 of the Constitution against the order of the Chief
Judicial Magistrate, Bhiwani, permitting the public prosecutor to withdraw from
tho prosecution in case No. 186-1 filed by the State aaainst Choudhury Bansilal
Ex-Defence Minister, his son Surinder Singh, Ex. M.L.A., R. S. Verma, Ex.
Deputy Commissioner, Bhiwani and several othets officials and non officials for
a hos'.t of' offences.
F In Cr!. Appeal No. 287179, the Contentions were : (a) The Offence for
which the accused persons were to be tried were exclusively triable by a I
~r'·
Court of Session, and therefore, the Committing Magistrate had no jurisdic 8

tion to give consent to the Public Prosecutor to withdraw from the prosecu;..
tions; (b) The PUblic Prosecutor had abdicated his function and had filed the
application at the behest of the Central Government without applying his
mind; (c) The Magistrate was. in error in giving !'ODSent on the ground that.
G it was expedient to do so. Expedience was never for the judiciary; (d) S. N.
Mathur who had filed the application for withdrawal from the prosecution
was not the Public Prosecutor incharge of the case and the application \Vas
therefore incompetent. ' ·

In the special leave (Cr!.) No. 3115179, it was contended : (i) the Pub-
lic Prosecutor filed the application at the behest of Sri Bhajan, Lal, the Chief
B Minister of Haryana and that he never applied his mind to the facts of the•
case; (ii) Sri Bhajan Lal ordered the withdrawal of the Public Prosecutor from
the prosecution because his ministry would not survive without ihe help of
R· K. JAIN V. STATE 983

Chaudhuri Bansi Lal :i:nu (tii) the withdrawal was not based on any public A
policy.
Dismissing the appeal by special leave and the special lec\ve petition, the)
Court . J
HELD : I. The contention that under the new code .of Criminal Procedure,
l 973, the Court of Committing Magistrate had no iJldicial function to perform
in rel:ition to the case which he was required to commit to the Court of Ses-
sion as W<l'S the position under section 494 of the 1898, and since the Court of B
the Committing Magistrate under the new ccxle was not · invested with: the
power of acquitting or discharging the accused, it was not the Court which could
grant its consent to withdraw from the prosecutioii is erroneous. In the fin;t
place there is no warrant for thinking that only tha Court competent to discharge
or acquit the accused under some other provision of the Code can exercise the
power under s. 321 Criminal Procedure· Code. The power conferred by S. 321
is itself a special power conferred on the Court before whom a prosecutiont is c
pending and the exercise of the power is not made dependent upon the power
of the Court to acquit or discharge the accused under some other provision of;
the Code. The power to discharge or acquit the accused under s. 321 is a
special power founded on s. 321 itself, to be exercised by the Court indepen,1
dently ·of its power of Cnquiry inlo the offence or try the accused. Again, tho
expression 'judgment' in the context may be understood to mean the judgment
which may be ultimately pronounced if the case were to be committed to a D
Court of Session. In the second place it may not be accurate to say that the
Committing Magistrate has no judicial function! to perform under the 1973
Code of Crintinal Procedure.· S. 209 of the Criminal Procedure Code 1973
obliges the Magistrate to commit the case to the Court of Session whe11 it
appears to the Magistrate that the offence is triable exclusively by the Court of
Session. Therefore, the Magistrate has to be satisfied that an offence is prima·
facie disclosed and the offence so disclosed is triable exclusively by the Court E·
of Session. If no· offence is disclosed the Magistrate may refuse to take cog-
nizance of the case or if the oftence. disclosed is one not triable exclusively by
the Court of Session he may proceed to deal with it under the other provisions
· of the Code. To that extent the Court of the Committing Magistrate does dis-
charge a judicial function. [991 E-H, 992 A-El
litate of Bihar v. Ram Naresh Pandey, [1957] SC:R 279 followed. F
\ .A.. Venkataramana v. Mudem Sanjeeva Ragudu and 'Ors. (1976) Andhra
~ Law Times Reports 317; over ruled. '
2. The notification dated June 17, 1966 of the Ministry of Home Affairs;
Government of India, shows that the Senior Public Prosecutor,. Public Prosecu·
tor and Assistant Public Prosecutor of the Delhi Special Police Establishment
attached to the Delhi office of the Special Police Establishment were appointm G
as Public Prosecutors under s: 492(1) of the Crimiqal Procedure Code 1898'
to conduct the cases of the Special Police Establishment before the Courts of
Magistrates, Special Judges, and Sessions Judges, in the Union TerritorY ~
Delhi. All notifications issued under the · old Code are deemed to have been
made under the correspQnding provisions of the new Code. Sri S. N. Mathur
is a Public Prosecutor attached to the Special Police E.stablishment at Delhi and
has been functioning right throueh as Public Prosecntoc in the Union Territory B
of Delhi and it was be who was in charge of the case practically throughout
[992 G·H, 993 A-BJ
"" ,;;.,·..

984 SUPREME COURT REPORTS [1980] 3 s.c.R.

A 3. In this country the scheme of the administration of Criminal Justice
places the prime ·responsibility of prosecuting serious offences on the executive
authorities. 1hJ investigation, including collection of the requisite evidence, and
the prosecution .for the offence with reference to such evidence were the func-
tions of the executive, and in that particular segment the power of the Magis-
trate was limited and intended only to prevent abuse. [993 H, 994 A-BJ
From the precedents of this Court, the following propQSitions emerge '
B (i) Under the scheme of the COde prosecotio1' of an offender for a oerieus
offence is primarily the responsibility of the Executive.
(ii) The withdrawal from the prosecution is an executive function of the
,.,.. .
Public Prosecutor.
(iii) The discretion to withdraw from the prosecution is that of the PubliCi
Prosecutor and none else, and so, he cannot surrender that discretion to some--
c one else.
(iv) The Government may suggest to the Public Prosecutor that he maJI'
withdraw from the prosecution but none can compel him to do so.
(v) The Public Prosecutor may withdraw from the prosecution not merely
on the ground of paucity of evidence but on other relevant grounds as well in
order to further broad ends of public justice, public order and peace. The
D broad ends of public justice will certainly include appropriate social, economic
and, political purposes Sans Tammany Hall enterprises.
(vi) The Public Prosecutor is an officer of the Court .and responsible\ WI
the Court. ·
' (vii) The Court porforms a supervisory function in granting its co111ent .to
the withdrawal.
E (viii) The Conrt's duty is not to reappreciaic the grounds which led the
Public Prosecutor to request withdrawal from the prosecution but to consider
whether the Public Prosecutor applied his mind as a free agent, uninlluenced
by irrelevant and extraneous considerations. The Court has a special duty in
this regard as it is the ultimate repository of legislative confidence in granting
Or withholding its consent to withdrawal from the prosecution. [996 B-0]

F It shall be the duty of the Public Prosecutor to inform the Court and it shall
be the duty of the Court to apprise itself of the reasons which prompt Iha
Public Prosecutor to withdraw from the prosecution. The Court has a reo-
I
ponsibility and a stake in the administrallion of criminal justice and so hall the ~r
public Prosecutor, its 'Minister of Justice'. Both have a duty to protect· the
administration of Criminal Justice against possible abuse or misuse by the Ex&o
cutive by resort to the provisions of s. 361 Criminal Procedure COde. The
independence of the judjiciary requires that once the case has travelled to t1io
G
COurt, the COurt and its officers alone must have control over the calie and
decide what is to be done in each case. [996 H, 997 A-BJ
State of Blhar v. Ram Naresh Pandey, [1957J SCR 279; M. N. SaRkara•
narayanan Nair v. P. v.· Balakrishnan and Ors; [1972] 2 SCR 599; State of Orissa

·.~
v. Chandrika Mahapatra and Ors., [1977] 1 SCR 335 at 340; Ba/":ant Single
. and Ors. v. State of Bihar, [1978] 1 SOR 604 @ 605; Subhmh Chander v. Th•
B State (Chandigarh Admn.) and Ors., AIR 1980 SC 423; referred to.
4. Paucity of evidence is not the only ground on which the Public Prooecu·
tor may withdraw from the .prooecution. In the past, it has been fomid e»-

;'':___,- __
R· K. JAIN V. STATE 985 .

pedient and necessary in the public interest that the Public Prosecutor should A
withdraw from prosecutions arising out of mass agitations, communal riot.5,
regional disputes, -industrial conflicts, student unrest etc. Wherever issues -
involve ihe emotions and there is a surcharge of violence iill the atmoiphere it
· has often been found necessary to withdraw from prosecutions in order to .
restore peace, to free the atmosphere from the surcharge of violence, to bring
about a peaceful settlement of issues and to preserve the calm which may follow
the storm. To persist '\\'"ith prosecutions where emotive issues are inVolved in B
the name of vindicating the law may even be utterly counter-productive. An

-. ·elected Government, sensitive and responsive to the feelings and .emotions of
the people, y.-ill be amply justified if for the purpose: of not disturbing a calm
v;hich has descended it decides not to prosecute the offenders involved or not
to proceed further with prosecutions already launched. In such matters, it is
only the Govemnient and nonei else can and should decide in the first instance
.y,·hether it should be baneful or beneficial to launch or continue proseCutions.
[997 B·FJ
c
5. Under the Code of Criminal Procedure it is the Public Prosecutor that
has to \Vithdraw from the prOsecution and it is the Court that has to give its
consent to such '\vithdrawal. Rightly too, because the independence of the
judiciary so requires it. . The Public Prosecutor is an officer of the Court. He
conducts the prosecUtion in the Court for the people. So it is he that is entrusted
with the task of initiating the proceedingJor withdrawal from the prosecution.. D
But, where such large and sensitive issu'es of Public policy are involved, he must~
ifbe· is right ntlnded, seek advice and guidance from the policy-maker. If the
Policy makers themselve'j move in the matter.' in the first instance, as indeed
it is proper that they should "'·here matters of momentus public policy are in-
volved, and if they ad"·ice the Public Prosecutor to withdraw from the prose--
cution, it iS not for the Court to say t!iat the initiative ;came frorµ the Govem1 ·
ment and therefore the PubliC Prosecutor cannot be said to have exercised a
free mind. Nor can there be any quibbling over words. If ill informed but
well meaning bureaucrats choose to use expressions like ..the Public Prosecutor.
is directed" or "the Public Prosecutor is instructed~, the Court will not on that
ground alone stultify the larger issue of Public Policy by refusing its consent
on the ground that the Public Prosecutor did not act as a free agent when he!
sougb.t withdrawal from the prosecution. \Vhat is at stake is not the language
of the tetter or the prestige of the Public Prosecutor but a wider question of F
policy. The Court, in such a situation is to make an effort to elicit the reasons
for withdrawal and satisfy itself that the Public Prosecutor too was satisfied
·that he should '\Vithdraw from ~he prosecution for good and refevant rea-sons.
[997 G-H, 998 A-DJ
Ho\vever, the bureaucrat too should be careful not to use peremtory
language when addressing the Public Prosecutor since it may give rise to an c
impression that be is coercing the Public Prosecutor to move in the matter. !le
must remember -that in addressing the Public Prosecutor be is addressing an
--r
1 '
Officer of the Court and there should be no suspicion of unwholesome pressure
on the Public Prosecutor. ·Any· suspicion of such pressun; on the Public Prose-
cutor may lead the Court to withhold its consent. [998 D-E]
6. It is true that the Indian Penal Code and the Code of Criminal Proce-
H
dure do not recognise offences of a political· nature, as a category of offences;
they cannot, in the ordinary course of things. That does not mean the offences
of ·a· political character are unknown to jurisProdence or that judges must
4-610SCI/80
: >- :--

986 SUPREME COURT REPORTS (1980] 3 S.C.R.

A exhibit such naivette as to feign ignorance about them. In fact International
Law recognises offences of a political character and the Indian Extradition Act
specifically refers to them. [998 F-H]

Briefly, politics are about Government and therefore, a political offencC is
one committed with the object of changing the Government of a State or induc-
ing it to change its policy. 'fhe expression ''po1itical offence" is thus commonly
B used and understood though perhaps "political offence" may escape easy
identification. [998 H, 999 A, C]
To say that an offence is of a political char,acter is not to absolve, the
Qll"enders of the offence. But it will be a valid ground for the Government to
advise the Public Prosecutor to withdravl from the prosecution. The Public Pro.-
secutor. may withdraw from the prosecution of a case not merely on the ground
of paucity of evidence but also in order to further the broad ends of public
c justice and such broad ends of public justice may well include appropriate
social, economic and political purposes. [999 E-F]

If the Government of the day interpreted the result of the elections, es in
the appeal, as a mandate of the people and on the besis of that interpretation,
the Government advised the Public Prosecutor to withdraw from the prosecu-
tion, it cannot be said that the Public Prosecutor was activated by any improper
D motive in withdrawing from the prosecution nor can lt be &trid that the
Magistrate failed to exercise the supervisory function vested in him in giving
. his consent. (999 H, 1000 A-Bl

Observation :
Criminal justice is not a plaything and Criminal Court is not a play-
ground for politicking. Political fervour should not convert the prosecution
into persecution nor political favour reward .wrongdoer by withdrawal from
prosecution. If political fortnnes are allowed to be reflected in the processes
of the Court very soon the credibility of the rule of law will be lost. Courts -·
when moved for permission for withdrawal from prosecution must be vigilant
and inform themselves fully before grsnting consent. While it would be
obnoxious and objectionable for a Public Prosecutor to allow himself to be
F ordered about, he should llppraise himself from the Government and thet't-
after appraise the Court the host of factors relevant to the question of with-
I
drawal from the cases. But under no circumstances should he allow himself
to become anyone's stooge. [1005 E-G]

CRIMINAL APPELLATE JURISDICTION : Crimina~ Appeal No. 287 of
r
1979.
Appeal by special leave from the Judgment ,11ond Order dated
12-10-1967 of the Delhi High Court in Criminal Revision No. 117 of
1977.
WITH
JI SPECIAL LEAVE PETITION (CRIMINAL) No. 3115 of 1979.
From the Judgment and Order dated 21"9-1979 of the Chief Judi-
cial Magistrate Bhiwani in Case No. 1861 of 1978.
R. K. JAIN V. STATE 987

AND A
CRIMINAL MISCELLANEOUS PETITION No. 3890: of 1979.
J.- · An Application for direction under section 15 of the Contempt of
Courts Act 1971 and Rule 3 ( b) of the Rules to regulate proceedings<
• for contempt of Supreme Court, 1975.
Lal Narain Sinha Att. Genl., M. K. Banerjee, Addi. Sol. Ge~!. Miss B
A. Subhashini and R. B. Datar for the Petitioner in Cr!. Misc. Peti-
tion No. 3 890 /79.
U. D. Gour Adv. Genl. Haryana and M. N. Shroff for the Res-
pondent in Cr!. Misc. Petition No. 3890/1979.
P. H. Parekh, Hemani Sharma, Rajan Karanjawala and C. B. c
Singh for the Petitioner in SLP 3115/79.
M. C. Bhandare, Mrs. Sunanda Bhandare and T. Sridharan for
· Respo'ndent No. 1 in SLP 3115/79.
A. N. Kharkhanis for Respondent No. 4 in SLP 3115/79.
D
U. D. Gour Adv. Genl. Haryana and M. N. Shroff for Respondents,
26-27 in SLP 311.5/79.
Lal Narain Sinha, Att. Genl., Miss A. Subhashini and R. B. Datar
for Respondent No. 30 m SLP 3115/79.
Ram Panjwani, Raj Panjwani, Vijay Panjwani and S. K. Bagga, E
for the Petitioner in Cr!. A. 287 /79.
Lal Narain Sinha Att. Genl. and M. K. Banerjee Addi. Sol. Genl.
and Miss. A. Subhashini for Respondent No. 1 in Cr!. A. 297 /79.

Ram lethmalani, Mrs. Sushma Swaraj, A. K. Pande and Mrs,
Hemanlika Wahl for RespO!!ldent No. 2 in Cr!. A 297 /79. F
V. M. Tarkunde, T. U. M_ehta, P. H. Parekh and Mi.is Vii1eeta
Caprihan for Respondent N:o. 5 in Cr!. A. No. 297 of 1979.
Ram lethmalani and Ranjan Dwivedl for Respondent Nos. 2, 11,
... 12, and 13 in Crl. 1A. 287 /79.
G
Ram lethmalani, A. G. Noorani, Miss Rani Jethmalani and Mrs.
Kamini laiswal for Respondent Nos. 3·, 15 and 16 in Crl. A. 287/79.

Ram lethmalani and A. G. Noorani and Miss Rani,Jethmalaiii for
Respondent No. 21 in Cr!. A. 287 /79.
.. D
\J Sushi! Chandra Bhatnagar in persolli (Respondent No. 14. in Cr!.
A. 287/79). '
\

988 SUPREME COURT REPORTS (1980]. 3 S.C.R.

The Judgment of the Court was delivered by
CmNNAPPA REDDY, J.-A cocktail of law and politics, reason and
extravagance is the only way we can describe the S1Jbmissions made ;..__
to us in these two cases. Well known personalities are involved, ~
one case an Ex-Central Minister, the present Governor of a State _and
B some leading journalists, and in the othet an ex-Central Minister, and •
a' host of Government officials. Perhaps that was responsible for the
passion and the tension which appeared to characterise and some-
times mar the arguments in the two cases. ~ "'
We Will first take up for consideration Criminal Appeal No. 287
c of 1979.
In exercise of the powers conferred bys. 196(1) (a) of the Code
of Criminal Procedure 1973, and s. 7 of the Explosive Substances
Act, 1908, the Govermnent of India by its order dated September 6;
* ~-

1976 accorded sanction for the prosecution of George Mathew Fer-
D nandes alias George Fernandes and 24 others for alleged offences
under Ss. 121-A Indian Penal Code, 120-B Indian Penal Code read
with Ss. 4, 5 and 6 of Explosive Snbstances Act, and S. 5 (3) (b) and
S. 12 of the Indian Explosives Act, 1884. The first paragraph of ·~

the order according sanction set ont the subject of the conspiracy in
the following words : '
E
"Whereas, it is alleged that after the issue of the pro-
clamation of Emergency on 25th June, 1975 by the
President of fndia in exercise of the powers conferred by
clause (1) of Article 352 of the Constitution, George
Mathew Fernandes alias George Fernandes, Chairman of
F Socialist Party of India and Chairman of All India Rail-
waymen's Federation sought to arouse resistence against
the said emergency by declaring that the said emergency I
had been "clamped" on the country by the "despotic rule"
of Smt. Indira Gandhi, Prime Minister of India and to
entertain an idea! that a conspiracy be hatched with the! help
T
of the persons of his confidence, to over-awe the Govern- ....
ment a'nd in pursuance of the conspiracy do such acts which
might result in the destruction of public property and vital
installations in the country".
Thereafter the order set out the various acts committed by the
II several accused persons in pursuance! of the objects of the conspiracy.
On September 24, 1976 the Deputy Superintendent of Police, Special
Police Establishment Central Bureau of Investigation, Central Investi-

• lo
R· K.·JAIN v. STATE (Chinnappa Reddy, J.) 989

· gation Unit (A), New Delhi, filed a charge-sheet in the Court of the A
Chief Metropolitan Magistrate, Delhi, against the! said accused per-
sons for the offences mentiOIJled in the order sanctioning . the prose- ·
cution. Two of the accused persons had been tendered pardon.
They had, therefore, to be examined as witnesses in the ~urt of the
Magistrate taking cognivmce of the offences iiotwijhftiihding the fact
that the case was exclusively triable by the! Court of Session. The B
evidence of the approvers was recorded on March 22, 1977 and the
case was adjourned to March 26, 1977 for further proceedings. At
that stage, oil March 26, 1977, N. S. Mathur, Special Public Prose-
cutor filed an application under section 321 of the Criminal Proce-
dure Code 1973, for permission to withdraw from the prosecution.
The application was as follows : c •I

"It is submitted on behalf of the State as under : -
1. That on 24-9-76 the Special Police Establishment
after necessary investigation had filed a charge shee~ in
this Hon'ble Court against Shri George Mathew Fernandes D
and 24 others for offences 11/s. 121 A IPC, 120B IPC
r/w sections 4, 5 and 6 of the Explosive Substances Act,
1908 .and Section 5(3) (b) and 12 of the Indian Explo-
sives Act, 1884 as well as the substantive offences.
2. That besides the accused who were sent up for trial
two accused namely Shri Bharat C. Patel and Rewati Kant E
Sinha were granted pardon by the Hon'ble Court and were
examined as approver u/s. 306( 4) Cr. P.C.
3. That o'ut of 25 accused sent up for trial cited in the
charge sheet, 2 accused namely Ladli Mohan Nigam and
Atul Patel were declared· proclaimed offenders by the 11
Hon'ble Court.
4. That in public interest arid changed circumstances, the
Central Government has desired· to withdraw from the pro-
secutions of all the accused.
5. It is therefore prayed that this Hon'ble Court may G
accord consent to withdraw from 26th March 1977.

Sdb-
(N.· S. Mathur) H
Special Public Prosecutor
for the State, New Delhi".
. •:,-,.;::

990 SUPl,{EME COURT REPORTS [1980] 3 s.c.R.

A On the same day the learned Chief Metropolitan Magistrate,
expressing the opinion that it was "expedient to accord consent to
withdraw from the prosecution", granted his coll8ent for withdrawal ~
from the prosecution.
One Dr. Rajender Kumar Jain, and Advocate, filed a petition in

• the High Court of Delhi, under s. 397 of the' Criminal Procedure Code
for revision of the order of the learned Chief Metropolitan Magistrate
giving his consent to the Special Public Prosecutor to withdraw from
the prosecution. Several grounds were raised all of which were nega-
tived by the High Court. It was also held by the High Court that
the applicant had '.no locus standi. The Revision Petition ·was dis-
c missed. Dr. Rajender Kumar Jain has filed this appeal after obtain-
ing special leave from this Court.
Shri Ram Panjwani, learned counsel for the appellant made the '
following submissions : (1) The offences for which the accused per-
sons were to be trie& ;were exclusively triable by a Court of Session
and, therefore, the Committing Magistrate had no jurisdiction to give
D consent to the Public Prosecl!tor to withdraw from the prosecution,
(2) The Public Prosecutor had abdicated his function and had filed
the application at the behest of the Central Government without
applying his mind. (3) The Magistrate was in error in giving con-
sent on the ground that it was eApedient to do so. Expedience was
never for the judiciary. ( 4) S. N. Mathur who had. filed the appli-
E cation for withdrawal from the prosecution was not the Public Prose-
cutor incharge of the case and the application was therefore, incompe-
tent. The submissions of Shri Ram Panjwani were controverted by
Shri Ram Jethmalani and Shri V. M. Tarkunde, learned counsel for
the respondents. They all;o submitted that the offences with which
F the accused persons were charged were of a political nature and if
the Government of the day thought that the Public Prosecutor should
withdraw from the prosecution on grounds of public policy and
advised the Public Prosecutor to do so, it could not be said that the
Public Prosecutor abdicated his function merely because the proposal
to withdraw from the prosecution emanated from the Government
and he acted upon such preposal. It was also submitted that so far
as the fifth respondent was concerned no prosecution could be launch-
ed or continued against him under Art. 361 (2) as he was the Gover·
nor of a State. Shri Panjwani in his reply submitted !!rut political
offences were unknown to the Municipal law of the land and that in
the instant case the withdrawal from the prosecution was for a purely
B political purpose and not in the public interest at all. It .was said
that the case was withdrawn in order .that Shri George Fernandes
could ,be appointed as a Minister in th~ Central Cabinet.
I
I

R· f· JAIN v. STATE (Chinnappa Reddy, 1.) 991
I

S. 321 of'the Criminal Procedure Code of 1973 which corresponds A
to s. 494 of *1e Code- of Criminal Procedure of 1898 is as fo'llows :
"Wi\hdrawal from prosecution.
321. 1The Public Prosecutor or Assistant Public Prose-
.. cutor in: charge of a case may, with the consent of the Court,
at any time before the judgment is pronounced, withdraw B
from tlje prosecution of any person either generally or in
respect 1of any one or more of the offences for which he is
tried; and, upon such withdrawal,-
(a) if'
it is made before a charge has been framed, the
'accused shall be discharged in respect of such off-
- c
1'ence or offences;
(b) :if it is made after a charge has been framed, or
1when under this Code no charge is required, he
'shall be acquitted in respect of such offence or off-
' ences".
1
D
We have pot extracted the proviso as it is not necessary for the
purpoSt?s of these cases.
i

Under s. 494 of the Criminal Procedure Code 1898, it was held
by this Coj\rt in State of Bihar v. Ram Naresh Pandey,(') that the
Court of the Committing Magistrate before whom a committal pro-
ceeding was pending was "the Court" within the meaning of s. 494 E
which was: competent to give its consent even in the case of offences
exclusively1 triable by the Court of Session. But, it was contended
that after the enactment of the Criminal Procedure Code of 1973, the
situation ~ad changed since bnder the new Code the Court of the Com-
mitting Magistrate had no judicial function to perform in relation to the
case whic~ he was required to commit to the Court of Session. F
Tile ,Subnlission was that the Court contemplated by s. 494 was the
Court capable of pronouncing a judgment, ending the proceeding by
an order pf acquittal or discharge and, since the Court of the Com-
mitting Magistrate under the new Code was not invested with the
power of' acquitting or discharging the ace.used it was not the Court
G
which c~bld grant its consent to withdraw from the prosecution. In
the first place there is no warrant for thinking that only the Court
competeijt to discharge or acquit the accused under some other pro-
vision o~ the Code can exercise the power under s. 321 Criminal
Procedurte Code. The power conferred by s. 321 is itself a special
power crnferred on the Court ,before whom a prosecution is pending B
and the 1exercise of the power is not made dependent upon the power
(!) \1957] SCR 279 .

. .:-:~\ -
992 SUPREME COURT REPORTS (1980] 3 S.C.lt.

A of the Court to acquit or discharge the accused under some other provi-
sion of the Code. 'The power to discharge or acquit the accused undec
s. 321 is·a special power founded on s. 321 itself, to be exercised by
the Court independently of its power of enquiry into the offence or
try the accused. "Again, "the expression 'judgment' in the context may
be understood to mean the judgment which may be ultimately pro-
B nounced if the case were to be cmpmitted to a Court of Session. That
was th~ view expressed in the State· of Bihar v. Ram Naresh Pandey,
(supra) where the Court observed :
v1n any view, even if 'judgment' in this context is to Be under-
stood in a limited sense it does not follow that an application during
c preliminary enquiry-which is necessarily prior to judgment in the
trial-is excluded".

In the second place it may not be accurate to say that the Com-
+ '

mitting Magistrate has no judicial function to perform under tke
1973 Code of Criminal Procedure. S. 209 of the Criminal Proce-
D dure Code 1973 obliges the Magistrate to commit the case to the
Court of Session when it 11ppears to the Magistrate that the offence is
triable exclusively by the Court of Session. Therefore, the Magis-
trate has to be satisfied that an offence is prirna-facie discloseo and the
offence so disclosed'is triable exclusively by the Court of Session.
If no offence is disclosed the Magistrate may refuse to take cogni-
zance of the case or if the offence disclosed is one not triable
exclusively by the Court of Session he may proceed to deal with it
under the other provisions of the Code. To that extent the Court
of the Committing Magistrate does discharge a judicial function. We
therefore, over-rule the first submission of Shri Ram Panjwani. We
do not agree with the view taken by the High Court of Andhra Pra-
.F desh in A. Venkatari:rmana v. Mudem Sanjeeva Ragudu & Ors,,(1)
that the court of the Committing Magistrate is noti competent to give
consent to the Public Prosecutor to withdraw from the prose-
cution.
The fourth submission of Shri Ram Panjwani does not appeal to
G us. The notification dated. June 17, 1966 of the Ministry of Home
Affairs, Government of India, shows that the Senior Public Prosecu-
tor, Public Prosecutor and Assistant Public Prosecutor of the Delhi
Special Police Establishment attached to the Delhi office of t1te Special '•'t-
Police Establishment were appointed as Public Prosecutors under s.
492 (1) of the Criminal Procedure Code 1898 to conduct the cases
r
H of the Special Police Establishment before the Courts of Magistrates,
Special Judges, aud Sessions Judges, in the Union Territory of Delhi.
(!) [1976] Andhra Law Times Reports 317.
R· K. JAIN v. STATE (Chinnappa Reddy, !.) 993

All notifications issued under the old Code are deemed to have been A
made under the corresponding provisions of the new Code. It
· appears that Shri N. S. Mathur is a Public Prosecutor attached to the
Special Police Establishment at Delhi and has been functioning right
through as Public Pro5e~utor in the Union Te~ritory of Delhi.. The
High Court' has also pointed out on a scrutiny of the proceedings of
the Magistrate that it ~as Shri N. S. Mathur who was incharge of the B
case practically throughout.
The second and third submissions of Shri Panjwani ,may be consi-
dzred together. Decisions of this Court have made c:ear the func-
tional dichotomy of the · Public Prosecutor and the Court. In the
State of Bihar v. Ram Naresh Pandey, (supra) the Court while con- c
sidering s. 494 of the old Code explained :'
"The section is an enabling one and veSts in tho Public
Prosecutor ihe discretion to ·apply to· the .Court for its con-
sent to withdraw from the prosecution of any person .
. . . . . . . . The function of the Court, therefore, in granting D
its consent may well be taken to be a judicial function.
It follows that in granting the consent the Court must exer-
cise a judicial discretion. But it does not follow that the
discretion is to be exercis"d only with q:ference to material
gathered by the judicial method. Otherwise the apparently
wide language of s. 494 would become considerably narrow- E
y ed down in its application. In understanding and applying
the section two main features thereof have to be kept in
mind. The initiative is that of the Public Prosecutor and
what the Court has to do is only to give its consent and
not to determine any matter judicially. • •...••• The judi-
cial function .... implicit in the exercise of the judicial F
discretion for granting the consent would normally mean
that the Court has to satisfy itself t]Jat the executive func-
.tiori of the Public Prosecutor has not been. improperly ~xer
cised, or that it is not an attempt to interfere with the nor-

. mal course of justice for illegitimate reasons or purposes.
In the context it is right to remember that the Public Prose- G
'cutor (though an executive · Officer ........ ) is, in a
larger sense, also an officer of. the Court and that he is
bound to assist the Court with tlie fairly-considered view
and the Court is entitled to have the benefit of the fair exer-
cise of his functions".
JI
The Court also appreciated that in this Cou;,try t]Je scheme of
the administration of Criminal Justice places the prime responsibility
994 SUPREME COURT REPORTS [1980] 3 S.C.R.

A of prosecuting serious offences on the executive authorities. The in-
vestigation, including collection of tb,e. requisite evidence, and the
prosecution for the offence with reference to such evidence were the
functions of the executive, and i'n that particular segment the power ,,.l._
of the Magistrate was limited and intended only to prevent abuse.

B In M. N. Sankaranarayanan Nair v. P: v. Balakrishnan &
Ors.( 1 ) the Court while reiterating decision that the Court grant-
ing permission for withdrawal should satisfy itself that the exec.utive
.function of the Public Prosecutor· has not been improperly exercised
and that it is not an attempt to interfere with the normal course of
.justice for illegitimate reasons or purposes, observed that the wide
C and general powers conferred on the Public Prosecutor to withdraw
from the proS"ecution have to be exercised by him "in furtherance of,
i-'
raL'ler than as a hindrance to the object of the law" and that the '
Court while considering the request to grant permissioru should not
do so as "a necessary formality-the grant of it for the mere asking".

D In State of Orissti v. Chandrika Mahapatra & Ors. (2 ) the Court
said :

"We cannot forget that ultimately every offence has a
social or economic cause behind it and if the State feels
that the elimination or eradication of the social or economic
E cause of the crime would be better served by DI)! proceed-
ing with the prosecution, the State should clearly be at
, liberty to withdraw from the prosecution".

In Balwant Singh & Ors. v. State of Bihar('), the independent rok
of the Pnblic Prosecutor in making an application for withdrawal
F from a prosecution was emphasised. It was pointed out that statutory
responsibility for deciding upon withdrawal vested in the Public Pro-
secutor and the sole consideration which should guide the Public Pro-
secutor was the larger factor of the administration of justice and nei-
ther political favour nOlr party pressure or the like. Nor should he
allow himself to be dictated to by his administrative superiors to with-
.G draw from the prosecution. The Court also indicated some instance
Where withdrawal from prosecution might be resorted to independently
of the merits of the case :

"Of course, the interests of public justice being the
paramount consideration they may transcend and overflow
(!) [19721 2 SCR 599.
(2) [19771 1 SCR 335 at 340.
(3) [1978] 1 SCR 604 at 605
R. K. JAIN v. STATE (Chinnappa Reddy, !.) 995

the legal justice of the particular litigation. For instance, A
communal feuds which may have been ainicably settled
should not re-erupt on account of one or two prosecutions
pending. Labour disputes which, might have given rise to
criminal cases, when settled, might probably be another ins-
tance where the interests of public justice in the ·broader
connotation may perhaps warrant withdrawal from the pro- B
secution. Other instance also may be given".

In Subhash Chander v. The State (Chandigarh Admn.) & Ors.(')
the Court once again emphasised the independence of the Public Pro-
secutor in the matter of seeking to withdraw from· the prosecution.
It was observed "Any authority who coerces cir orders or pressures c
a functionary like the Public Prosecutor, in the exclusive province of
his discretionary powers, violates the rule of law, and any Public
Prosecutor who bends before such command betrays the authority of
his office". Howe.ver, it was indicated : .
D
"Maybe,' Government or the District Magistrate will
consider that a prosec!'tion or class of prosecutions deser-
ves to be withdrawn on grounds of policy or reaso·ns of
public interest relevant to law and justice in their larger con-
notation and request the Public Prosecutor to consider whe-
ther the case or cases may not be withdrawn. Thereupon, E
the Prosecutor will give due weight to the material placed,
the policy behind the recommendation and the responsible
position of Government which, in the last analysis; has to
maintain public order and promote public. justice. But the
decision to withdraw must be his. ·
F
_ . A reference was made to some considerations which may justify
withdrawal from prosecution. It was said :

"The fact that broader considerations of public. peace,
larger considerations of public justice and even deeper con- .
siderations of promotion of long-lasting security in a loca-
G
lity, cf order in a disorderly situation or harmony in a fac-
tion milieu, or .halting a false and vexatious prosecution ·m
a court, persuades the Executive, pro bona publico, . sacri-
fice a ponding case for a wider benefit, is not ruled out
although the power must be •pariugly exercised and the statu- ·
tory agency to be satisfied is the public prosecutor, not the
H
District Magistrate. or Minister. The concurrence of the
(I) AIR 1980 SC 423.
996 SUPREME COURT REPORTS [1980] 3 s.c.R.

A court is necessary. The subsequent discovery of a hoax be-
hind the prosecution or false baiis for the criminal proceed-
ing as is alleged in this case, may well be a relevant ground
for withdrawal. For the court should not be misused to con-
tinue 11 case conclusively proved to be a counterfeit. This
statement of the law is not exhaustive but is enough for the ,.
B present purpose and indeed, is well-grounded .on prece-
dents".

Thus, from the precedents of this Court; we gather,
1. Under the scheme of the Code prosecution of an offender for
C a serious offence is primarily the responsibility of the Executive.
2. The withdrawal from the prosecution is an executive function
of the Public Prosecutor.

3. The discretion to withdraw from the prosecution is that of the
Public Prosecutor and none else, and so, he cannot surrender that dis-
D cretion to someone else.
4. The Government may suggest to the Public Prosecutor that he
may withdraw from the prosecution but none can compel him to do
so.
5. The Public Prosecutor may withdraw from the prosecution not
E merely on the ground of paucity of evidence but on other relevant
grounds as well in order to futther the broad ends of public justice, ~
public order and peace. The broad ends of public justice will cer-
tainly include appropriate social, economic and, we add, political pur-
poses Sans Tammany_ Hall enterprise.

F 6. The Public Prosecutor is an officer of the Court and responsible
to the Court.

7. The Court performs a supervisorv function in granting its con-
sent to the Withdrawal.

8. The Court's duty is not to reappreciate the grounds which led
G the Public Prosecutor to request Withdrawal from the prosecution but
to consider whether the Public Prosecutor applied his mind as a free
agent, uninfluenced by irrelevant and . extraneous considerations. The
Court has a special duty in this regard as it is the ultimate repository
of legislative confidence in granting or withholding iis consent to with-
drawal from the prosecution.
H
We may add it shall be the duty of the Public Prosecutor to inform
the Court and it shall be the duty of th" Court to appraise itself of the
R· K. JAIN v. STATE (Chinnappa. Reddy, !.) 997

reasons which prompt the Public Prosecutor to withdraw from' \he A '
prosecution. The Court has a responsibility and a stake in the admi-
nistration of crlmirud justice and so has the Public Prosecutor, its
'Minister of Justice'. Both have a duty to protect the administration
of criminal justice against possible abuse or misuse by the Executive
by resdrt to the provisions of s. 361 Criminal Procedure Code. The
independence of the judiciary requires that once the case has travel- B
led to the Court, the Court and its officers alone must have control
over the case and decide what is to be done in each case.

We have referred to the precedents of this Court where it has been
said that paucity of evidence is not the only ground on which the
Public Prosecutor may withdraw from the .prosecution. In the past c
we ha,ve often known how expedient and necessary it is in the public
interest for the Public Prosecutor to withdraw from prosecutions
arising out of mass agitations, communal riots, regional disputes, in-
dustrial conflicts, student unrest etc. Wherever issues involve the
emotions and there is a surcharge of violence in the atmosphere it has
often been found necessary to withdraw from prosecutions in order to D
restore peace, to free the atmosphere from the surcharge of violence,
to bring about a peaceful settlement of issues and to preserve the calm
which may follow the storm. To persist with prosecutions where emo.-
tive issues are involved in the name of vindicating the law may even
be utterly counter-productive. An elected Government, sensitive and
E
responsive to the feelings and emotions of the people, will be amply
justified if for the purpose of creating an atmosphere of goodwill or
for the purpose of not disturbing a calm which has descended it
decides not to prosecute the offenders involved or not to proceed fur-
ther with prosecutions already launched. In such matters who but
the Government, can and should decide in the first instance, whether F
it should be baneful or beneficial to launch or continul'j prosecutions ..
\ If the Government decides that it would be in the public interest to
·.~··
withdraw from prosecutions, how is the Government to go about this
i task?
I

• Under the Code of Criminal Procedure it is the Public Prosecutor
that has to withdraw from the prosecution and it is the Court that has
G
to give its cons~nt to such withdrawal. Rightly too, because the inde-
pendence of the judiciary so requires it, as we have already mentioned.
Now, the Public Prosecutor is an Officer of the Court. He sets the
criminal Jaw in motion in the Court. He conducts the prosecution in
the Court for the people. So it is he that is entrusted with the task of H
initiating the proceeding for withdrawal from the prosecution. But,
where such large and sensitive issues of public policy are involved, he
998 SUPREME COURT REPORTS [19891 3 s.c.R.
,
A must, if he is right minded, seek advice and guidance from the policy-
. makers. His sources of information and resources are of a very
limited nature unlike those of the policy-makers. If the policy-
makers themselves move in the matter in the first instance, as indeed
it is proper that they should where matters of momentus public policy
are involved, and if they advise the Public Prosecutor to withdraw
B from the prosecution, ii is not for the Court to say that the initiative
came from the Government and therefore the Public Prosecutor can-
not be said to have exercised a free mind. Nor can there be any
quibbling over words. If ill-informed but well-meaning bureaucrats
choose to use expressions like "the Public Prosecutor is directed" or
"the Public Prosecutor is instructed", the Court will not on that ground
c alone stnltify the larger issne of Public Policy by refusing its consent
on the .ground that the Public Prosecutor did not act as a fre~ agent
when he sought withdrawal from the prosecution. What is at stake
is not the language of the letter or the prestige of the Public Prosecu-
tor but a wider question of policy. The Court, in such a situation is to
make an effort to elicit the reasons for withdrawal and satisfy itself,
D that the Public Prosecutor too was satisfied that he should withdraw
from the prosecution for good and relevant reasons.

We, however, issue a note of warning. The bureaucrat too should
be careful not to use peremptory language when addressing the Pub-
lic Prosecutor since it may give rise to an impression that he is coerc-
E ing the Public Prosecutor to move in the matter. He must remember
that in addressing the Public Prosecutor he is addressing an Officer of
the Court and there should be no suspicion of unwholesome pressure
on the Public Prosecutor. Any suspicion of such pressure on the
Public Prosecutor may lead the Court to withhold its consent.
F
We may now consider Shri Ram Panjwani's argument that the
Criminal law of India does not recognise 'political offences' and so
there can not be withdrawal from a pros_ecution on the ground that the
offen,ces involved are 'political offences'. It is true th.at the Indian
Penal Code and the Code of Criminal Procedure do not recognise
,.c; offences of a political nature, as a category of offences. They cannot,
in the ordinary course of things. That does not mean that offeiic:eS
of a political character are unknown .to jurisprudence or that judges
must exhibit such a naivette as to feign ignorance about them.
Offences of a political character are well-known in International Law
and the Law of Extradition. The Indian Extradition Act also refers
;II to offences of a political character. For our present purpose it is
,, really unnecessary to enter into a discussion as to what are political
offences except in a sketchy way. It is sufficient to say that politics
' .
R· K. JAIN v. STATE (Chin11appa Reddy, J.) 999

are about Government and therefore, a political offence is one com- A
mitted with the object of changing the Government of a State or in-
ducing it to change its policy. Mahatma Gandhi, the father of the ·
Nation, was convicted and jailed for offences against the' Municipal
laws; so was his spiritual son and the first Prime Minister of our
ceountry; .so was the present Prime Minister and so were the first' Presi-
.dent and the present President of India. No one would hesitate to B
-say that the offences of which they were convicted were political. Even
.as we are writing this judgment we read in the morning's newspapers
that King Birendra of Nepal has declared a "general amnesty to all
Nepalese accused of political changes''. The expression 'political
.offence' is thus commonly used and understood though perhaps 'poli-
tical offence' may escape easy identification. c
Earlier in the judgment we set out the alleged object of the cons-
-piracy as recited in the order sanctioning the prosecution. It was to
overawe the Government by committing varions acts of destruction
.of public property and vital installations and the motiv~ attributed was
that the accused wanted to change the Government led by Shrimati D
Gandhi. One need not agree with the ends or the means-genuine revo-
lutions have never yet ,been made by acts of senseless terrorism or
wanton destruction, putting innocent lives and public 'property in jeo-
·pardy-but, it is clear that the very order sanctioning the prosecution
· imputes to the offences alleged to have been committed by the accused
'.the character of 'poiitical offences'. E

·To say that an offence is of a political character is not to absolve
·the offender of the offence. But the question is, is it a valid ground
for the Government to advise the Public Prosecutor to Withdraw from
the prosecntion? We mentioned earlier that the Public Prosecutor
F
may withdraw from t~e prosecution of a case not merely on the
ground of paucity of evidence but also in order to further the broad
ends of public justice and that such broad enc!s ~f public justice may
well include appropriate social, economic and political purposes. It
is now a matter of history that the motivating force of the party which
was formed to fight the elections in 1977 was the same as the moti- G
vating force of the criminal conspiracy .as alleged in the order sanc-
tioning the prosecution; only the means were different. The party

i
+- which came to power as a ljji.ult of 1977 elections chose to interpret
the result of the elections as Pbiandate of the people against the poli-
tics and the policy of the party led by Shrimati Gandhi. Subsequent
events leading upto the 1980 elections which reversed the result o~ H
the 1977 elections may cast a doubt whether such interpretation was
~rrect; only history can tell. But, if the ·Government of the day
1000 'SUP.REME COURT REPORTS [1980] 3 s.c.R.

A interpreted the result of the 1977 elections as a mandate of the peo-
ple and' on the basis of that interpretation tl}e Goverumeut advised
the Public Prosecutor to withdraw from the prosecution, one cannot
say that the Public Prosecutor was activated by any improper motive
in withdrawing from the prosecution nor can one say that the Magis-
trate fuileq to exercise the supervisory function vested in him.in giviug
,,
B his consent. We are unable to say that the High Court misdirected
itself in affirming the order of the Magistrate. We also notice that
the learned Attorney General who dis-associated himself from the
legal submissions made by the parties did not withdraw the counter
affidavit filed earlier on behalf of the State. No fresh counter affi-
davit disclosing a change of attitude on the part of the new Govern-
c ment which took office in January this year was filed. Apparently
the 'new Government did not do so as a gesture of grace _and good-
will and to prevent rancour and bitterness. That we appreciate, Crimi-
nal Appeal No. 287 of 1979 is therefore, dismissed.

D Special Leave Petition (Criminal) No. 3115 of 1979 has been
filed by one Manohar Lal, against the order of .the Chief Judicial
Magistrate, Bhiwani, permitting the Public Prosecut<;ir to withdraw
from the prosecution in oase No. 186-1 filed by the State against
Chandhury Bansi Lal, ex-Defence Minister, his son Surinder Singh, ex-
M.L.A., R. S. Verma, Ex. Deputy Commissioner, Bhiwani and several
E other officials and non-officials for a host of offences. The applicant
has come straight to this Court under Art. 136 of the Constitution
witl;lout going to the High Court in the first instance. On that ground
alone t]le petition is liable to be dismissed as we do not ordinarily
entertain such petitions. We refrain from doing .so as the matter
has been fully argued before us.
F

G
On July 13, 1977, Manohar Lal, laid information with the Station
House Officer, Police Station, Bhiwani City, against the several
accused persons. The charge-sheet was filed by the Bhiwani Police
on July 21, 1978 on the basis of information laid with them by
Manohar Lal. The gravamen of the allegation against the accused
persons was that Chaudhury Bansi Lal was annoyed with Manohar Lal
+
and his sons as they failed to transfer two plots of land to his son and a
relative. Chaudhury Bansi Lal, therefor~, induced the Dhiwani Town
Improvement Trnst to include in its sm~ssive schemes land belonging
to Mano'bar Lal and his sons, in Bhiwani Town, on which stood s9me •t
H buildings including two temples. .As Manohar Lal apprehended that his
buildings might be demolished, he filed a Wdt Petition in the Supreme ";1
Court and obtained an order of stay of demolition. However, the stay
..

R- K. JAIN v. STATE (Chinnappa Reddy, J.) 1001

was vacated on December I, 1976 and on the same day, on the instruc- A
tions, by telephone or wireless, of Chaudhury Bansi Lal, R. S. Verma,
the Deputy Commissioner instructed his officers to demolish the build:
ings standing on the land. The Land Acquisition Collector made his
Award of compensation and deposited the amount in a bank. All
"'. this was done in the course of a few hours and the demolition of the
B
building was started forthwith and completed by December 4, 1976.
Tbe chargesheet, as we said, was filed on _July 21, 1978. Chaudhury
I -~ Bansi, Lal filed a petition in this Court for transfer of the case to a
Court outside the States of Punjab and Haryana. This Court issued
notice on the petition for transfer and granted stay of further proceed-
ings in the case before the Chief Judicial Magistrate, Bhiwani. The c
order of stay continued. On September 20, 1979 on the basis of a
letter addressed to him by the District Magistrate, the Public Prose-
cutor filed an application before the Chief Judicial Magistrate for per-
mission to withdraw from the' prosecution. On September 21, 1979
the Court granted its consent to the withdrawal of the Pl]blic Pro-
secutor from the prosecution. It is this order that is questioned in D
the Special Leave Petition,

Shri Parekh, learned counsel for the petitioner urged that the public
t Prosecutor filed the application at the behest of Shri Bhajan Lal, the
Chief Minister of Haryana and that he never applied his mind to the

Iy facts of the case. According to Shri Parekh Shri Bha jan Lal ordered E
the withdrawal of the public Prose_cutor from the prosecution because
his Ministry would not survive without the help of Chaudhury Bansi
Lal. A motion- of no confidence was imminent against Shri Bhajan Lal

\
and was to be considered on September 24, 1979; so he ordered with-
drawal of the cases against Chaudhury Bansi Lal _on September 20,
F
1979, in order to secure the support of his group. It was said that
the withdrawal from the prosecution was not based on any- ground of
~ public policy. Shri Parekh. drew our attention to the wireless message
which was sent by the Government to the District Magistrate. Bhiwani
informing him that the Government had decided to withdraw the four
~ cases mentioned in the message, pending in the Court of Bhiwani and G
that four cases should be withdrawn immediately from the concerned
Courts and the Government informed accordingly. The District Magis-

r-+- trate Bhiwani forwarded a copy of the wireless meS.sage to the District
Attorney, Bhiwani for necessary action directing him to withdraw the
four cases from the concerned courts a• desired by the Government
I and to report compliance to this office.. The District Atterney there- H
after filed an application for permission to withdraw from the pfose-
,
'I cution. On September 21, 1979, he made a statement before the Chief
.. 5-610SCI180
"'
1002 SUPREME COURT REPORTS [1980] 3 S.C.R.

A Judicial :Magistrate that he had made the application on the orders of
District Magistrate, Bhiwani and that the reasons were given in the
application. In answer it was contended by the advocate General of
Haryana who appeareg for the State of Haryana and M. C. Bhandare
who appeared for Chaudhury Bansi Lal, that Surinder Singh, son of
Chaudhury Bansi Lal had petitioned to t)le Chief Minister of Haryana "
B alleging that he, his father and their associates were being harassed
by numerous cases being filed against them without any justification.
He requested the Chief Minister to stop needless harassment. The
Minister constituted a Sub-Committee consisting of himself, the Finance
Minister and the Irrigation and Power Minister to look into the ques-
tion. The Sub-Committee examined the cases in detail and decided
that four out of twenty five cases filed against Chaudhury Bansi Lal
shoul)l be withdrawn as the evidence available was meagre and, in
particular, in the case based on Manohar Lal's information the comp-
lainant had also been suitably and profitably compensated. The de-
cision of the Government was communicated to the District Magis-
trate who in turn asked the Public prosecutor to move the Court ror
consent to withdraw from the prosecution. The Chief Minister and
his colleagues on the Sub-Committee have filed before us affidavits re-
garding the constitution of the Sub-Committee and the decision to with-
draw from the prosecution. They have also denied the allegation that
the case had been withdrawn with a view to gain the support of Chau-
E dhury Bansi Lal against a no-confidence motion which the petitioner
alleged was to be moved against the Chief Minister. It was pointed
out in the affidavits that no no-confidence motion was ever tabled against
· Chief Minister Bhaian Lal and that on the very figures given by the
petitioner regarding the party position in the Haryana Assembly the
support of Chaudhary Bansi Lal and his group would not matter. It
F was also brought out in the counter affidavits filed on behalf of some
of the respondents that the petitioner had himself admitted in the agree- I
ment which he. had entered into with the Bhiwani Town Planning Trust r~
on May 6, 1977, that his land and plots had been duly acquired under
various development schemes, that he desired to withdraw all the peti-
G tions etc. filed by him in various courts and that he would not claim
any damages against the Trust The Town Planning Trust agreed to
release the lands to him with a view to enable him to reconstruct the
buildings. It was expressly recited in the agreement that the Bhiwani
Town Improvement Trust agreed to the terms of the agreement as
it was thought to be "in the best interest of the parties concerned as
H well as in the· good of the residents of the Bhiwani Town to settle the
matter amicably and mutually". The Government of Haryana also.
it was so recited in the agreement, had accorded its approval to the
R· K. JAIN v. STATE (Chinnappa Reddy, J.) 1003

terms of the settlement. It has been mentioned in the counter-affida- A
vits that the agreement between Manohar Lal and the Bhiwani Town
Improvement Trust in which Manohar Lal admitted the title of the
Bhiwani Town Improvement Trust to the land and buildings was never
placed before the Jaganmohan Reddy Commission. In fact it is one
.. of the complaints of Chaudhury Bansi Lal that those that were in charge
B
of producing evidence before the Jaganmohan Reddy Commission took
care to see that nothing in his favour was placed before the Commission.
Chaudhury Bansi Lal filed a counter-affidavit in which he has stated
that the allegation that his son and relative wanted to purchase the land
of Manohar Lal was an allegation which Manohar Lal never made in
any of the objections filed by him against the schemes proposed by the c
Town Improvement Trust. It has also been pointed out that in the
several writ Petitions filed by Manoh.ar Lal against the schemes no
allegations of malafides were made against Bansi Lal. In one Writ
Petition an attempt was made to introduce such an ~llegation by way
of amendment but the High Court held that the allegation was a mere
'after-thought'. The District Attorney has filed a counter-affidavit in D
which he has stated that the evidence i'll the case was of a meagre
nature and he was of the view that it might not be possible to obtain
a conviction in the case. He had brought it to the notice of the District
Magistrate earlier but as important personalities were involved it was
not thought proper and prudent to make an application for withdrawal
from the prosecution. The occurrence which was the subject matter E
of the ~ase was said to have taken place at 10 p.m. A large number
of accused had been named. There were reasons to believe that most
of the names of the accused were included on mere suspicion. In fact
two advocates who had been implicated as accused led unimpeachable
evidence that they were not in Bhiwani at all that night. After he
received advice from the District Magistrate he was convinced that F
an application should be filed for withdrawal from the prosecution and
so he filed the same. Sri Bhaskar Chatterji, the District Magistrate
has also filed an affidavit in which he has· stated that the District Attor-
ney had informed him that some of the cases filed against Chaudhury

. Bansi Lal and his family members were weak in nature. He did not
however, take any action at that time as important personalities were
involved and as there were no directions from the Government Jn that
G

regard. Later he received a wireless message which he forwarded t<~
the District Attorney for action, Shri Kataria, Secretary to Government
of Haryana, Department of Administration of Justice has also filed a
counter-affidavit in which he has mentioned the detailed of the proceed- H
ings of the Cab\net Sub-Committee which took the decision to with-
draw the case on September 20. 1979.
1004 St;PREME COURT REPORTS [1980] 3 s.c.R.

A On a perusal of the allegations and counter-allegations, the facts.
which emerge from the record as beyond dispute are :
(] ) The land of Manohar Lal and his sons on which there
were certain buildings was included in the Bhiwani Town
Improvement Scheme.
B (2) The allegation that Bansilal's son and relative wanted to
purchase the land originally was not made by Manohar
Lal in the original objections and writ Petitions filed by
Manohar Lal.
I (3) The Supreme Court first granted stay of the demolition of
c buildings but later vacated the stay on December 1, 1976.
(4) As soon as stay was vacated, without any loss of time, the
demolition work started and completed. 'oynami!te and
bull-dozers were used and the buildings were demolished.
(5) On May 6, 1977, Manohar Lal and his sons entered into
D an agreement with the Bhiwani Town Improvement Trust
agreeing to withdraw all the cases filed by them against
the improvement Trust and accepting the title of the trust
to the land acquired under the Town Improvement schemes.
In return the Improvement Trust agreed to release the lands
E to Manohar Lal and his sons for the purpose of recons-
tructing the buildings and to receive ,the compensation
assessed for the demolished buildings. It was recited in ·
the agreement that the Town Improvement Trust bad "-·
agreed to this course as -it was thought to be "in the, best
interest of the parties concerned as well as -in the good of
F the residents of the Bhiwani Town".
(6) On Jµly 13, 1977 Mano'har Lal lodged a First Information
I
r
Report with the Police.
(7) On July 21, 1978 the police filed a charge-sheet in the
Court o~ the Chief Judicial Magistrate, Bhiwani.
G (8) The District Attorney had informed the District Magistrate
that the evidence was of a weak na(ure as most of the
accused appeared to have been implicated on merei suspi-
cion and some of the accused were not even present in the
town on the night ·of the occnrrence.
H (9) Surinder Singh, son of Bansi Lal made a representation to
the Govermnent that they were being harassed by innumer-
able cases being filed against them.
R· K. JAIN v. STATE (Chinnappa Reddy, J.) 1005
I
(10) On September 20, 1979, the Cabinet Sub-Committee A
decided that four out of twenty five cases filed against
Bansi Lal and others should be withdrawn. A wireless
··"' message was sent by the Government to the District Magis-
• trate asking him to withdraw the four cases and to report
compliance. The letter was forwarded to the District
Attorney. The District Attorney filed an application for B
withdrawal from the prosecution on the same day.
(l J) Neither before nor after the Cabinet Sub-Committee
took its decision was there a no-confidence motion tabled
against Chief Minister Bhajanlal.
(12) On September 21, 1979, the Court granted its consent to c
the withdrawal of the public Prosecutor (the District
Attorney) from the case.
It is on this material we have to determine whether the wi1hdrawal
from the prosecution could be said to be malafide, that is,1 for irrelevant
or extraneous reasons. We are not satisfied that there is sufficient basis
to come to such a conclusion particularly in view of two outstanding D
circumstances namely that only four out of twenty-five cases have been
withdrawn and the complainant himself had acknowledged the title
of the Town Improvement Trust to the lands and the Trust had not
only returned the lands to the complainant but also paid him compen-
y sation for the demolished buildings in the interest of all parties in E
Bhiwani town. We, therefore, dismiss the Special Leave Petition.
Before bidding farewell to these cases it may be appropriate for
us to say that Criminal justice is not a plaything and a Criminal Court
is not a play-ground for politicking. Political fervour should not con-
vert prosecution into persecution, nor political favour reward wrongdoer
by withdrawal from prosecution. If political fortunes are allowed to F
be reflected in the processes of the Court very soon the credibility of
the rule of law will be lost. So we insist that Courts when moved for
permission for withdrawal from prosecution must be vigilant and in-
form themselves fully before granting consent. While it would be ob-
noxious and objectionable for a Public Prosecutor to allow himself to G
be ordered about, he should appraise himself from the Government and
thereafter appraise the Court the host of factors relevant to the question
<'
I
of withdrawal from the cases. But under no circumstances should he
allow himself to become anyooe's stooge.
No arguments were advanced in Criminal Miscellaneous Petition
H
· No. 3890 o[ 1979. It is, therefore, dismissed.'

S.R. Appeal and Petitions dismissed.