STATE OF H.P.versusM.P. GUPTA

                            STATE OF H.P.                                A
                                  v.
                             M.P. GUPTA

                         DECEMBER 9, 2003

        [DORAISWAMY RAJU AND ARlJIT PASAYAT, JJ.]                        B

      Criminal Procedure Code, 1973-Section 197-Penal Code, 1860-
Sections 120-B, 420, 511, 467, 4.58 and 471-Criminal proceedings
initiated against Public Servant for commission of offences-Necessity of
requisite sanction of an appropriate authority-Held, Section 197 Cr. PC C
does not extend its protective cover to every act or omission done by a
public servant in service but restricts its scope of operation to only those
acts or omissions which are done by a public servant in discharge of
official duty-Official duty implies that the act or omission must have been
done by the public servant in the course of his service and such act or D
omission must have been performed as part ofduty which further must have
been official in nature-Jn the absence of the above, previous sanction
under section 197 Cr.PC not required-Prev~ntion ?f Corruption Act,
1947-Section 5 (2) (I) (d)-Prevention of Corruption Act, 1988-Section
13(1)(d).
                                                                          E
     Respondent-Chief Conservator of Forests was alleged to have
committed serious irregularities in certain purchases by the forest
department. State Government ordered an Enquiry against the re-
spondent on receipt of complaints against the respondent. The Enquiry
revealed commission of serious irregularities by the respondent. Two F
separate charges were framed against the respondent (1) for offences
under Sections 120-B and 420 read with 511 IPC and Section 5 (2) (1)
(d) of the Prevention of Corruption Act, 1947 (Old Act) corresponding
to Section 13(1)(d) of the Prevention of Corruption Act, 1988 (New
Act) and (2) for the offences under Sections 467, 468, 471, 420 and 120- G
B IPC and Section 5(2)(l)(d) of the Old Act corresponding to Section
13(l)(d) uf the New Act for prosecution before the Special Judge
(Forests). The. respondent raised a preliminary objection contending
that the proceedings initiated against him are non est in the absence
of the requisite sanctions under section 197 Cr.PC. The trial Judge H
                                   541
    542                SUPREME COURT REPORTS [2003) SUPP. 6 S.C.R.
A dismissed the preliminary objection of the respondent. The High
    . Court, in appeal by the respondent held that in the absence of requisite
      sanction in terms of Section 197 Cr.PC, the proceedings initiated
      against the respondent cannot proceed. Hence the appeal before this
      Court by the State.
B
          The respondent contended that the alleged acts were a part of the
    official duties and therefore a sanction was mandatory under section
    197 Cr.PC.

          Allowing the appeal, the Court
c
        HELD : 1.1. The.protection given under Section 197 Cr.PC is to
  protect responsible public servants against the institution of possibly
  vexatious criminal proceedings for offences alleged to have been com-
  mitted by them while they· are acting or purporting to act as public
D servants. The policy of the legislature is to afford adequate protection
  to public servants to ensure that they are not prosecuted for anything
  done by them in the discharge of their official duties without reasonable
  cause, and if sanction is granted, to confer on the Government, if they
  choose to exercise it, cQmplete control of the prosecution. This protection
E has certain limits and is available only when the alleged act done by the
  public servant is reasonably connected with the discharge of his official
  duty and is not merely a cloak for doing the objectionable act. If, in
  doing his official duty, ht acted in excess of his duty, but there is a
  reasonable connection between the act and the performance of the
  official duty, the excess will not be a sufficient ground to deprive the
F public servant from the protection. The question is not as to the nature
  of the om.~nce such as whether the alleged offence contained an element
  necessarily dependent upon the offender being a public servant, .but
  whether it-was committed by, a pub~ic servant acting or purporting to
  act as such in the discharge of his official capacity. Before Section 197
G Cr.PC can be invoked, it must be shown that the official concerned was
  accused of an offence alleged to have been .committed by him while
  acting or purporting to act in the discharge of his official duties. It is not
  the duty which requires examination so much as the act, because the
  official act can be performed both in the discharg~ of t_!ie official duty
H as well as in dereliction of it. The act must fall within the scope and
                    STATE OF H.P. v. M.P. GUPTA                       543
range of the official duties of the public servant concerned. It is the A
quality of the act which is important and the protection of this section
is, available ifthe act falls within the scope and range of his official duty.
There cannot be any universal rule to determine whether there is a
reasonable connection between the act done and the official duty, nor
is it possible to lay down any such rule. One safe and sure test in this B
regard would he to consider ifthe omission or neglect on the part of the
public servant to, commit the act complained of cou.ld have made him
answerable for a charge of dereliction of his official duty, if the answer
to his question is in the affirmative, it may be said that such act was
committed by the public servant while acting in the discharge of his C
official. duty and there was every connection with the act complained
of and the official duty of the public servant. This aspect makes it clear
that the concept of Section 197 Cr.PC does not get immediately attracted
on institution of the complaint case. [548-G-H; 549-A-G]

     Bakshish Singh Brar v. Smt. Gurmej Kaur & Anr., AIR (1988) SC D
257 and P. Arulswami v. State of Madras, AIR (1967) SC 776, referred
to.

     1.2. Use of the words, 'no' and 'shall' in section 197 Cr.PC make
it abundantly clear that the bar on the exercise of power by the Court E
to take cognisance of any offence is absolute and complete. Very
cognisance is barred. That is the complaint cannot be taken notice of.
A Court, therefore, is precluded from entertaining a complaint or
taking notice of it or exercising jurisdiction if it is in respect of a public
servant .who is· accused of, an offence alleged to have been committed F
during discharge of his official duty. [551-F-H; 552-A]

     1.3. Use of the expression, 'official duty' in section 197 Cr.PC
implies that the act or omission must have been done by the public in the
course of his service and that it should have been in discharge of his
duty. The Section does not extend its protective cover to every act or G
omission done by a public servant in service bu~ restricts its scope of
operation to only those acts or omissions which are done by a public
servant in discharge of official duty. It has been widened further by
extending protection to even those acts or omissions which are done in
purported exercise of official duty. That is under the colour of office. H
    544               SUPREME COURT REPORTS [2003) SUPP. 6 S.C.R.

A Official duty, therefore, implies that the act or omission must have been
    done by· the public servant in course of his service and such act or
    omission must have been performed as part of duty which further must
    have been official in nature. The Section has, thus, to be construed
    strictly, while determining its applicability to any act or omission in
B   course of service. Its operation has to be limited to those duties which
    are discharged in course of duty. But once any_ act or omission has been
    found to have been committed by a public servant in discharge of his
    duty, then it must be given liberal and wide construction so far its
    official nature is concerned. Otherwise the entire purpose of affording
    protection to a public servant without sanction shall stand frustrated. If
C   on facts, therefore, it is prima facie found that the act or omission for
    which the accused was charged had reasonable connection with discharge
    of his duty then it must be held to official to which applicability of
    Section 197 Cr.PC cannot be disputed. [552-F-H; 553-A-B; C-D; G-H)

D        B. Saha & Ors. v. MS. Kochar, [1979) 4 SCC 177; Matajog Dobey
    v. H C. Bhari, AIR (1956) SC 44; S.A. Venkataraman v. The State, AIR
    (1958) SC 107; C.R. Bansi v. The State of Maharashtra, [1970) 3 SCC
    537; State of Maharashtra v. Dr. Budhikota Subbarao, (1993) 3 SCC 339;
    Kalicharan Mahapatra v. State of Orissa, [1.998] 6 SCC 411, referred to.

E         Black's Law Dictionary, Law Com~ission [4lst Report), referred
    to.

          1.4. The contention of the respondent that for offences under
    sections 406 and 409 read with section 1208 IPC, sanction under section
F   197 Cr.PC is a condition precedent for launching the prosecution is
    equally fallacious. Sections 467, 468 and 471 IPC relate to forgery of
    valuable securities, will etc. forgery for purpose of cheating and using as
    genuine a forged document respectively. It is no part of the duty of a
    public servant while discharging his official duties to commit forgery of
    the type covered by the aforesaid offences. Want of sanction under
G   section 197 Cr.PC is, therefore, no bar. [555-F-G; 556~D-E)

         Shreekantiah Ramayya Munipalli v. The State of Bombay, [1955) I
    SCR 1177; Amrik Singh "· The State of Pepsu, [1955] 1 SCR 1302;
    Harihar Prasad etc. v. State ofBihar, [1972) 3 SCC 89 and State ofKera/a
H   v. Padmanabhan Nair, (1999) 5 sec 690, referred to.
              STATE OF H.P. v. M.P. GUPTA [PASAYAT, J.]                545

        CRIMINAL APPELLATE JURISDICTION.: Criminal Appeal No.                 A
.. 339 of 1997.

       From the Judgment and Order dated 5.6.96 of the Himachal Pradesh
  High Court in Crl. R. No. 105 of 1995.

                                   WITH                                       B
       Crl. A. No. 351 of 1997

       J.S. Attri and Pramod Kumar Yadav for the Appellant.

       0.8. Vohra, S.K. Sabharwal, Jetendra Singh for the Respondent.         C
       The Judgment of the Court was delivered by

       ARIJIT PASAYAT, J. These two appeals are interlinked as the point
   involved revolves round the scope and ambit of Section 197 of the Code
  of Criminal Procedure, 1973 (for sho1t the 'Code'). The Himachal Pradesh D
   High Court by the impugned judgment held that in the absence of requisite
  sanction in terms of Section 197 of the Code proceedings initiated against
  the respondent (hereinafter referred to as the 'Accused') cannot proceed.
  Two proceedings were initiated against the accused, one was for alleged
  commission of offences punishable under Section 120-8, Section 420 read E
  with Section 511 of the Indian Penal Code, 1860 (for short the 'IPC'),
   Section 5(2) (1) (d) of the Prevention of Corruption Act, 1947 (for short
  the 'Old Act') corresponding to Section 13(l)(d) of the Prevention of
  Corruption Act, 1988 (for short the 'New Act'). The Special Judge
  (Forests), Shimla, directed the accused to be charged accordingly by his F
  order dated 5.8.1995. In the other case charges were framed against the
  accused on 15.11.1995 for the offence punishable under Sections 467, 4{)8,
  471, 420, 120-B IPC and Section 5(2) (1) (d) of the Old Act corresponding
  to Section 13 (l)(d) of the New Act.· ·

       Sheaving out unnecessary details, the accusations leading to the G
  framing of charges are as under:-

       The Controller of Stores, Himachal Pradesh had approved a rate
  contract for the purchase of galvanized steel barbed wires for fencing at
  the ex factory rate of Rs.8400 per M.T. This rate contract was valid up to H
    546                SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A the period ending 30.9.1985. No rate contract was approved in respect of
    this item for the period beginning l.I0.1985. On 20.10.1985, the Chief
    Sales Officer and the Executive Officer of H.P. Agro Industries Corpora-
    tion wrote two identical letters to the Chief Conservator of Forests (T),
    Himachal ·Pradesh offering to supply barbed wire/GI wire and U staples
B   to the forest department. The rates quoted were Rs. I 0,500 per M.T. for
    barbed wire (Hot dip) and Rs.10,000 per M.T. for electroplated barbed
    wire. A request was made to the Chief Conservator of Forests to direct all
    the field officers working under his control to buy their requirements of
    the above-mentioned items by placing their supply orders with the H.P.
    Agro Industries Corporation. The petitioner, who was then the Chief
C   Conservator of Forests, on 30.10.1985 issued a circular letter to all the
    Conservator of forests working under him advising them to work out their
    requirements of GI and barbed wires and in the absence of a rate contract
    to place 9rders for the supply thereof with the H.P. Agro Industries
    Corporation, who had offered to make the necessary supply of both these ·
D   items immediately. Consequent upon such instructions having been issued
    by the petitioner, various forests circles placed the supply orders to the
    extent of about 1200 M.T. of barbed wire with the H.P. Agro Industries
    Corporation within a period of less than one month. All these orders were
    booked through Mis. Gupta Pipes, Industrial Area, Dharampur, District
E   Solan, who had been appointed as the booking agent by the H.P. Agro
    Industries Corporation on 25.10.1985 for the purpose of procuring the
    supply orders from various indenting officers. The H.P. Agro Industries
    Corporation, vide its letter dated 6.11.1985 had intimated to all Conser-
    vators of Forest in Himachal Pradesh about the firm Mis. Gupta Pipes
F   having been appointed as their authorized booking agent. They were also
    intimated that a representative of the said firm would be visiting their
    offices for collecting the necessary supply orders for and on behalf of the
    H.P. Agro Industries Corporation.

          In the meanwhile, some of the local units manufacturing barbed wires
G submitted a complaint to the Minister of State for Forests complaining
    against the procurement of barbed wire by the forest department from the
    H.P. Agro Industries Corporation in violation of the normal procedure and
    without obtaining the requisite non-availability certificate from the Con-
    troller of Stores. It was also complained that the sources adopted by  the
H   H.P. Agro Industries Corporation for procuring the barbed wire for supply
            STATE OF H.P. v. M.P. GUPTA [PASAYAT, J.]                 547

to the forest department were from the units located at Dharampur. This A
complaint was forwarded by the Minister to the accused in his capacity as
Chief Conservator of Forests on 20.11.1985 for his comments. The
Additional Controller of Stores on 26.11.1985 also took an objection to the
purchases having been effected by the forest depa1tment from the H.P.
Agro Industries Corporation without obtaining the requisite non-availabil- B
ity certificate from the Controller of Stores. It was also suggested that the
supply orders already placed with the said Corporation may be can·celled
forthwith. Some reports also appeared in the press alleging serious
irregularities in the purchase of barbed wire by the forest department.
Instructions were also issued by the State Government through its Secretary C
in the forest department to all the Conservator of Forests in Himachal
Pradesh to cancel all the supply orders in respect of barbed wire/Gl wire
placed with the H.P. Agro Industries Corporation. Consequently, against
the supply order of I 200 M.T. placed with H.P. Agro Industries Corpo-
ration, supply of only 17.64 M.T. was actually effected through the
Corporation, before the cancellation could be intimated to the suppliers. D

       An enquiry committee was appointed by the State Government. The
 then Divisional Commissioner who conducted the enquiry reported that
 apparent irregularities were committed with the apparent intention to help
 M/s. Gupta Pipes. Acting on the recommendations of the Divisional E
 Commissioner, cases for alleged commission of offences as noted supra
 were registered with the Enforcement Branch, South Lane, Simla. One of
 the cases was instituted on the basis of informations which surfaced during
 investigation. At the time of framing charge, legality of the proceedings
 was questioned by the accused. It is to be noted that sanction was accorded F
 on 13 .6.1990 which though was stated to be unnecessary and inconsequen-
 tial by the State, in view of its specific stand that Section 197 of the Code
 has no application.

        Accused took the stand that the absence of sanctions as contemplated
  under Section 197 of the Code and Section 6 of the Old Act (corresponding G
  to Section 19 of the New Act) the proceedings were non est. The trial Judge
  negatived the stand. Accused moved the High Court for interference. By
  the impugned judgments dated 5.6.1996 in Criminal Revision Nos. 105 and
· 106 of 1995 learned Single Judge ofthe High Court held that the charge
framed against the accused for the offence under Sections 467, 468 and H
    548                SUPREME COURT REPORTS [2003) SUPP. 6 S.C.R.

A 4 71 IPC were to be set aside and quashed. The charge in respect of other
    offences, namely, Sections 420, 120-B IPC and under the Old Act read with
    the New Act were to be continued. However, no opinion was expressed
    about validity of sanction dated 13.6.1990.

          In suppo1t of the appeals, learned counsel for the appellant-State
B submitted that the scope and ambit of Section 197 has been misconstrued
    by the High Court. Per contra, learned counsel for the accused submitted
    that the alleged acts were a pa1t of the official duties and, therefore, a
    sanction was mandatory for the purpose of proceeding in the matter and
    in the absence thereof at the threshold the proceedings were not maintain-
c   able. Strong reliance was placed on certain observations of this Court in
    Shreekantiah Ramayya Munipalli v. The State of Bombay, [1955) I SCR
    1177 and Amrik Singh v. The State of Pepsu, [1955) I SCR 1302.

         The pivotal issue needs careful consideration, In Bakhshish Singh
D   Brar v. Smt: Gurmej Kaur and Anr., AIR (1988) SC 257, this Court while
    emphasizing on the balance between protection to the officers and the
    protection to the citizens observed as follows:-

                   "It is necessary to protect the public servants in the discharge
             of their duties. In the facts and circumstances of each case
E            protection of public officers and public servants functioning in
             discharge of official duties and protection of private citizens have
             to be balanced by finding out as to what extent and how far is
             a public servant working in discharge of his duties or purported
             discharge of his duties, and whether the public servant has
             exceeded his limit. It is true that s. 196 states that no cognizance
F
             can be taken and even after cognizance having been taken if facts
             come to light that the acts complained of were done in the
             discharge of the official duties then the trial may have to be stayed
             unless sanction is obtained. But at the same time it has to be
             emphasised that criminal trials should not be stayed in all cases
G            at the preliminary stage because that will cause great damage to
             the evidence."

         The protection given under Section 197 is to protect responsible
    public servants against the institution of possibly vexatious criminal
H   proceedings for offences alleged to have been committed by them while ·
            ST ATE OF H.P. v. M.P. GUPTA [PASAYA T, J.]                 549

they are acting or purporting to act as public servants. The policy of the A
legislature is to afford adequate protection to public servants to ensure that
they are not prosecuted for anything done by them in the discharge of their
official duties without reasonable cause, and if sanction is granted, to
confer on the Government, if they choose to exercise it, complete control
of the prosecution. This protection has certain limits and is available only B
when the alleged act done by the public servant is reasonably connected
with the discharge of his official duty and is not merely a cloak for doing
the objectionable act.· It in doing his official duty, he acted in excess of
his duty, but there is a reasonable connection between the act and the
performance of the official duty, the excess will not be a sufficient ground
to deprive the public servant from the protection. The question is not as     c
to the nature of the offence such as whether the alleged offence contained
an element necessarily dependent upon the offender being a public servant,
but whether it was committed by a public servant acting or purp01ting to
act as such in the discharge of his official capacity. Before Section 197 can
be invoked, it must be shown that the official concerned was accused of D
an offence alleged to have been committed by him while acting or
purporting to act in the discharge of his official duties. It is not the duty
which requires examination so much as the act, because the official act can
be performed both in the. discharge of the official duty as well as in
dereliction ofit. The act must fall within the scope and range of the official E
duties of the public servant concerned. It is the quality of the act which
 is important and the protection of this section is available if the act falls
 within the scope and range of his official duty. There cannot be any
 universal rule to determine whether there is a reasonable connection
 between the act done and the official duty, nor is it possible to lay down F
any such rule. One safe and sure test in this regard would be to consider
if the omission or neglect on the part of the public servant to commit the
act complained of could have made him answerable for a charge of
dereliction of his official duty, if the answer to his question is in the
affirmative, it may be said that such act was committed by the public
servant while acting in the discharge of his official duty and there was G
every connection with the act complained of and the official duty of the
public servant. This aspect makes it clear that the concept of Section 197
does not get immediately attracted on institution of the complaint case.

     At this juncture, we may refer to P. Arulswami v. State of Madras,       H
    550                SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A AIR (1967) SC 776, wherein this Court held as under:.
            " ... It is not therefore every offence committed by a public servant
            that requires sanction for prosecution under Section 197(1) of the
            Criminal Procedure Code; nor even every act done by him while
            he is actually engaged in the performance of his official duties;
B           but if the act complained of is directly concerned with his official
            duties so that, if questioned, it could be claimed to have been done
            by virtue of the office, then sanction would be necessary. It is
            quality of the act that is important and if it falls within the scope
            and range of his official duties the protection contemplated by
c           Section 197 of the Criminal Procedure Code ~ill be attracted. An
            offence may be entirely unconnected with the official duty as such
            or it may be committed within the scope of the official duty.
            Where it is unconnected with the official duty there can be no
            protection. It is only when it is either within the scope of the
D           official duty or in excess of it that the protection is claimable."

          Prior to examining if the Courts below committed any error of Jaw
    in discharging the accU3ed it may not be out of place to examine the nature
    of power exercised by the Co1.1rt under Section 197 of the Code and the
    extent of protection it affords to public servant, who apart, from vario~s
E   hazards in discharge of their duties, in absence of a provision like the one
    may be exposed to vexatious prosecutions. Section 197(1) and (2) of the
    Code reads as under :

             "197. (1) When any person who is or was a Judge or Magistrate
F            or a public servant not removable from his office save by or with
             the sanction of the Government is accused of any offence alleged
             to have been committed by him while acting or purporting to act
             in the discharge of his official duty, no Court shall take cogni-
             zance of such offence except with the previous sanction -

G            (a) in the case of person who is employed or, as the case may be,
             was at the time of commission of the alleged offence employed,
             in connection with the affairs of the Union, of the Central
             Government;

H            (b) in the case of a person who is employed or, as the case may
             STATE OF H.P. v. M.P. GUPTA [PASAYAT, J.]                 551

         be, was at the time of commission of the alleged offence A .
         employed, in connection with the affairs of a State, of the State
         Government.

         *              *                    *
         (2) No Court shall take cognizance of any offence alleged to have B
         been committed by any member of the Armed Forces of the Union
         while acting or purp01ting to act in the discharge of his official
         duty, except with the previous sanction of the Central Govern-
         ment."
                                                                             c
The section falls m the chapter dealing with conditions requisite for
initiation of proceedings. That is if the conditions mentioned are not made
out or are absent then no prosecution can be set in motion. For instance
no prosecution can be initiated in a .Court of Sessions under Section 193,
as it cannot take cognizance, as a court of original jurisdiction, of any D
offence unless the case has been committed to it by a Magistrate or the
Code expressly provides for it. And the jurisdiction of a Magistrate to take
cognizanc_e of any offence is provided by Section 190 of the Code, either
on receipt of a complaint, or upon a police report or upon information
received from any person other than police officer, or upon his knowledge E
that such offence has been committed. So far public servants are concerned
the cognizance of any offence, by any court, is barred by Section 197 of
the Code unless sanction is obtained from the appropriate authority, ifthe
offence, alleged to have been committed, was in discharge of the official
duty. The section not only specifies the persons to whom the protection
 is afforded but it also specifies the conditions and circumstances in which F
 it shall be available and the effect in law ifthe conditions are satisfied. The
mandatory character of the protection afforded to a public servant is
brought out by the expression, 'no comt shall take cognizance of such
offence except with the previous sanction'. Use of the words, 'no' and
'shall' make it abundantly clear that the bar on the exercise power of the G
court to take cognizance of any offence is absolute and complete. Very
cognizance is barred. That is the complaint cannot be taken notice of.
According to Black's Law Dictionary the word 'cognizance' means
'jurisdiction' or 'the exercise of jurisdiction' or 'power to try and determine
causes'. In common parlance it .means taking notice of. A court, therefore, H
    552                 SUPREME COURT REPORTS [2003) SUPP. 6 S.C.R.

A   is precluded from ente11aining a complaint or taking notice of it or
    exercising jurisdiction if it is in respect of a public servant who is accused
    of an offence alleged to have committed during discharge of his official
    duty.

B         Such being the nature of the provision the question is how should the
    expression, 'any offence alleged to have been committed by him while
    acting or purporting to act in the discharge of his official duty', be
    understood? What does it mean? 'Official' according to dictionary, means
    pertaining to an office, and official act or official duty means an act or duty
C   done by an officer in his official capacity. In B. Saha and Ors. v. M S.
    Kochar, [ 1979) 4 SCC 177 it was held : (SCC pp. 184-85, para 17)

             "The words 'any offence alleged to have been committed by him
             while acting or purporting to act in the discharge of his official
             duty' employed in Section 197( 1) of the Code, are capable of a
D            narrow as well as a wide interpretation. If these words are
             construed too narrowly, the section will be rendered altogether
             sterile, for, 'it is no part of an official duty to commit an offence,
             and never can be'. In the wider sense, these words will take under
             their umbrella every act constituting an offence, committed in the
E            course of the same transaction in which the official duty is
             performed or purports to be performed. The right approach to the
             import of these words lies between two extremes. While on the
             one hand, it is not eve1y offence committed by a public servant
             while engaged in the performance of his official duty, which is
             entitled to the protection of Section 197 (l ), an Act constituting
F
             an offence, directly and reasonably connected with his official
             duty will require sanction for prosecution and the said provision."

    Use of the expressior., 'official duty' implies that the act or omission must
    have been done by the public in the course of his service and that it should
G   have been in discharge of his duty. The Section does not extend its
    protective cover to every act or omission done by a public servant in service
    but restricts its scope of operation to only those acts or omissions which
    are done by a public servant in di.;charge of official duty.

H         It bas been widened fu11her by extending protection to even those acts
            STATE OF H.P. v. M.P. GUPTA [PASA YAT, J~]                   553

or omissions which are done in purported exercise of official duty. That A
is under the colour of office. Official duty therefore implies that the act
or omission must have been done by the public servant in course of his
service and such act or omission must have been performed as part of duty
which further must have been official in nature. The Section has, thus, to
be construed strictly, while determining its applicability to any. act or B
omission in course of service: I~s operation has to be limited to those duties
which are discharged in course of duty. But once any act or omission has
been found to have been committed by a public servant in discharge of
his duty then it must be given liberal and wide construction so far its official
nature is concerned. For instance a public servant is not entitled to indulge C
in criminal activities. To that extent the Section has to be construed
narrowly and in a restricted manner. But once it is established that act or
omission was done by the public servant while discharging his duty then
the scope of its being official should be construed so as to advance the
objective of the Section in favour of the public servant. Otherwise the entire
purpose of affording protection to a public servant without sanction shall D
stand frustrated. For instance a police officer in discharge of duty may have
to use force which may be an offence for the prosecution of which the
sanction may be necessary. But ifthe same officer commits tl.'1 act in course
of service but not in discharge of his duty then the bar under Section 197
of the Code is not attracted. To what extent an act or omission performed E
by a public servant in discharge of his duty can be deemed to be official
was explained by this Court in Matajog Dobey v. H C. Bhari, AIR (1956)
SC 44 thus :

         "The offence aileged to have been committed (by the accused)
         must have something to do, or must be related in some manner F
         with the discharge of official duty ... there must be a reasonable
         connection between the act and the discharge of official duty; the
         act must bear such relation to the duty that the accused could lay
         a reasonable (claim) but not a pretended or fanciful claim, that he
         did it in the course of the performance of his duty."               G
     If on facts, therefore, it is prima facie found that the act or omission
for which the accused was charged had reasonable connection with
discharge of his duty then it must be held to official to which applicability
of Section t 97 of the Code cannot be disputed.                                 H
    554                SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A        In S.A. Venkataraman v. The State, AIR (1958) SC !07) and in C.
    R. Bansi v. The State of Maharashtra, [1970] 3 SCC 537 this Court has
    held that :

             "There is nothing in the words used in Section 6(1) to even
             remotely suggest that previous sanction was necessary before a
             court could take cognizance of the offences mentioned therein in
             the case of a person who had ceased to be a public servant at the
             time the court was asked to take cognizance, although he had been
             such a person at the time the offence was committed."

C        The above position was illuminatingly highlighted in State of
    Maharashtra v. Dr. Budhikota Subb·:irao, [1993] 3 SCC 339.

          When the newly-worded section appeared in the Code (Section 197)
    with the words "when any person who is or was a public servant" (as
D   against the truncated expression in the corresponding provision of the old
    Code of Criminal Procedure, 1898) a contention was raised before this
    Court in Kalicharan Mahapatra v. State of Orissa, [1998] 6 SCC 411 that
    the legal position must be treated as changed even in regard to offences
    under the Old Act and New Act also. The said contention was, however,
    repelled by this Court wherein a two-Judge Bench has held thus :
E
             "A public servant who committed an offence mentioned in the
             Act, while he was a public servant, can be prosecuted with the
             sa!lction contemplated in Section 19 of the Act if he continues to
             be a public servant when the cpmt takes cognizance of the
F            offence. But if he ceases to be a public servant by that time, the
             court can take cognizance of the offence without any . such
             sanction."

          The correct ,legal posttlon, therefore, is that ari accused facing
G prosecution for offences under the Old Act or New Act cannot claim any
    immunity on the· ground of want of sanction, if he ceased to be a public
    servant on the date when the court took cognizance of the said offences.
    But the position is different in (;ases where Section 197 of the Code has
    application.

H         Section 197(1) provides that when any person who is or was a public
               STATE OF H.P. v. M.P. GUPTA [PASAYAT, J.]                 555

    servant not removable from his office save by or with the sanction of the A
    Government is accused of any offence alleged to have been committed by
    him while acting on purporting to act in the discharge of his official duty,
    no Cou1t shall take cognizance of such offence except with the previous
    sanction (a) in the case of a person who is employed or, as the case may
    be, was at the time of commission of the alleged offence employed, in B
    connection with the affairs of the Union, of the Central Government and
    (b) in the case of a person who is employed or, as the case may be, was
    at the time of commission of the alleged offence employed, in connection
    with the affairs of a State, of the State Government.

          We may mention that the Law Commission in its 41st Report in C
    paragraph 15.123 while dealing with Section 197, as it then stood, observed
    "it appears to us that protection under the section is needed as much after
    retirement of the public servant as before retirement. The protection
    afforded by the section would be rendered illusory if it were open to a
    private person harbouring a grievance to wait until the public servant D
    ceased to hold his official position, and then to lodge a complaint. The
    ultimate justification for the protection conferred by Section 197 is the
    public interest in seeing that official acts do not lead to needless or
    vexatious prosecution. It should be left to the Government to determine
    from that point of view the question of the expediency of prosecuting any E
    public servant". It was in pursuance of this observation that.the expression
    'was' come to be employed after the expression 'is' to make the sanction
    applicable even in cases where a retired public servant is sought to be
    prosecuted.

         Above position was highlighted in R. Balakrishna Pillai v. State of F
    Kera/a, AIR (1996) SC 901.

         That apart, the contention of the respondent that for offences under
    Sections 406 and 409 read with Section 120-8 of IPC sanction under
    Section 197 of the Code is a condition precedent for launching the G
    prosecution is equally fallacious. This Court has stated the legal position
1   in Shreekantiah Ramayya Munnipalli 's case (supra) and also Amrik Singh 's
    case (supra) that it is not every offence committed by a public servant
    which requires sanction for prosecution under Section 197 of the Code, nor
    even every act done by him while he is actually engaged in the performance H
    556                 SUPREME COURT REPORTS [2003] SUPP. 6 S.C.R.

A   of his official duties. Following the above legal position it was held in
    Harihar Prasad, etc. v. State ofBihar, [1972] 3 SCC 89 as follows :

              "As far as the offence of criminal conspiracy punishable under
              Section 120-8, read with Section 409, Indian Penal Code is
              concerned and also Section 5(2) of the Prevention of Corruption
B             Act is concerned, they cannot be said to be of the nature
              mentioned in Section 197 of the Code of Criminal Procedure. To
              put it shortly, it is no part of the duty of a public servant, while
              discharging his official duties, to enter into a criminal conspiracy
              or to indulge in criminal misconduct. Want of sanction under
c             Section 197 of the Code of Criminal Procedure is, therefore, no
              bar."

          Above views are.reiterated in State of Kera/av. Padmanabhan Nair,
    [1999] 5 SCC 690. Both Amrik Singh (supra) and Shreekantiah (supra)
D   were noted in that case. Sections 467, 468 and 471 !PC r~late to forgery
    of valuable security, Will etc; forge~ for purpose of cheating and using
    as genuine a forged document respe~tively. It is no part of the duty of
    a public servant while discharging his official duties to commit forgery of
    the type covered by the aforesaid offences. Want of sanction under Section
E   I 97 of the Code is, therefore, no bar.

         It was submitted by learned counsel for the accused-respondent that
    essential ingredients of the aforesaid offences are absent. That was not the
    issue before either the trial Court or the High Court. It is, therefore,
    unnecessary for us to delve into that question.
F
         Above being the legal position which is fairly well settled, the High
    Court's view cannot be maintained on the facts of the case. The impugned
    judgments are set aside. We make it clear that our interference shall not
    be construed as if we have expressed any opinion on the merits of the case.

G          Appeals are allowed to the extent indicated.
                                                                                     J
    B.S.                                                       Appeals allo~d. ·     r
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