Supreme Court of India
THE STATE OF CHATTISGARH & ANRversusAMAN KUMAR SINGH & ORS. ETC. ETC
- Citation
- 2023 INSC 189
- Decided
- 1 March 2023
- Disposal
- Appeal(s) allowed
- Bench
- S RAVINDRA BHAT
Holding
The High Court erred in quashing the FIR; the FIR makes out a cognizable offence and cannot be quashed even on alleged mala‑fide grounds.
Summary
The State of Chhattisgarh filed criminal appeals against the Chhattisgarh High Court’s order quashing FIR No. 9/2020, which alleged that Aman Kumar Singh (AS) and his wife Yasmin Singh (YS) had amassed assets disproportionate to their known sources of income under the Prevention of Corruption Act, 1988. The High Court held that the FIR was based merely on probabilities and quashed it. The Supreme Court held that the FIR does disclose a cognizable offence, that the power to quash under Art. 226/CrPC s. 482 must be exercised sparingly, and that the court cannot examine the reliability of the allegations at the stage of registration. The Court also rejected the plea of mala‑fide, noting that such a ground must be pleaded and proved and that the chief minister was not impleaded. The CBI circular issued after the FIR’s registration could not be invoked to invalidate the FIR. Consequently, the High Court’s order was set aside, the writ petitions dismissed and the appeals allowed, permitting the investigation to continue.
Issues considered
- The propriety of exercising the inherent power under Art. 226 of the Constitution and s. 482 CrPC to quash an FIR registered under the Prevention of Corruption Act.
- Whether the FIR under s. 13(1)(b) and s. 13(2) PC Act discloses a cognizable offence sufficient to justify investigation.
- Whether the FIR can be quashed on the ground of mala‑fide or political vendetta.
- Whether the CBI Circular on registration of disproportionate‑assets FIRs applies retrospectively to the FIR in question.
Legislation cited
- Code of Criminal Procedure, 1973s. 156, s. 173(2), s. 482
- Indian Penal Code, 1860s. 120B
- Prevention of Corruption Act, 1988s. 13(1)(b), s. 13(2)
Subjects
Prevention of Corruption ActFIR quashingArticle 226Section 482 CrPCDisproportionate assetsMala fidePreliminary inquiryCBI circularPublic servantCorruption
Judgment
134 [2023]REPORTS
SUPREME COURT 2 S.C.R. 134 [2023] 2 S.C.R.
A THE STATE OF CHATTISGARH & ANR.
v.
AMAN KUMAR SINGH & ORS. ETC. ETC
(Criminal Appeal Nos. 646-648 of 2023)
B MARCH 01, 2023
[S. RAVINDRA BHAT AND DIPANKAR DATTA, JJ.]
Constitution of India – Art.226 – Prevention of Corruption
Act, 1988 – ss.13(1)(b), (2) – FIR registered against one ‘AS’ and
his wife ‘YS’ – FIR quashed by High Court – Justification of – Held:
C
In the present case, FIR does make out a case of cognizable offence
having been committed by ‘AS’ and ‘YS’ – Power of quashing a
criminal proceeding should be exercised very sparingly and with
circumspection and that too in the rarest of rare cases – Whenever
its powers are invoked either u/Art.226 or s.482, CrPC for quashing
D an FIR/complaint, the Courts would not be justified in embarking
upon an enquiry as to the probability, reliability or genuineness or
otherwise of the allegations made therein – An FIR can be registered
merely on suspicion thus, the High Court ought to have realized
that the FIR which according to it was based on “probabilities”
ought not to have been interdicted – An FIR based on “probability”
E
of a crime having been committed is of a higher degree as compared
to the one lodged on a “mere suspicion” that a crime has been
committed – Extraordinary or inherent powers do not confer an
arbitrary jurisdiction on the court to act according to its whim or
caprice – High Court erred in quashing the FIR – Impugned
F judgment set aside – Code of Criminal Procedure, 1973 – s.482 –
Penal Code, 1860 – s.120-B.
Prevention of Corruption Act, 1988 – Disproportionate assets
case – FIR registered against one ‘AS’ and his wife ‘YS’, public
servants – Political vendetta alleged against ‘AS’, who was the
G Principal Secretary to the Chief Minister in the previous regime –
Held: Allegations levelled were vague and general – Mala fide
motives are required to be affirmatively pleaded and proved –
However, if criminal prosecution is based upon adequate evidence
and the same is otherwise justifiable, it does not become vitiated on
account of significant political overtones and mala fide motives –
H
134
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 135
SINGH & ORS. ETC. ETC
No cogent grounds for quashing the FIR in the present case even A
on the ground of mala fide.
Prevention of Corruption Act, 1988 – Quashing of FIR –
Approach of High Courts – Held: Considerations that apply to
quashing of FIRs pertaining to offences punishable under general
penal statutes ex proprio vigore may not be applicable to a P.C. Act B
offence – In cases under the P.C. Act, the proper course for the
high courts would be to permit the investigation to be taken to its
logical conclusion and leave the aggrieved party to pursue the
remedy made available by law at an appropriate stage.
Prevention of Corruption Act, 1988 – Disproportionate assets C
case – Importance of preliminary enquiry – Discussed.
Criminal Law – Inept drafting of FIR – Effect of – Discussed.
Allowing the appeals, the Court
HELD: 1.1 The complaint lodged with the Chief Minister D
does specifically allege that although AS came from a very humble
background, as evident from his Annual Property Return filed at
the time of joining IRS, “he has managed to amass
disproportionate assets of more than 2500 crores contrary to his
legal sources of income”. One could view it as a tall claim, which
is thoroughly unsubstantiated. However, it cannot be wished away E
because of the revelations of the preliminary inquiry which led to
registration of the FIR and have formed part thereof. Although it
is true that it is for the prosecution to build up a case that AS, as
a public servant, amassed such wealth or even wealth of any lesser
value that is disproportionate to his known sources of income, F
and which could not satisfactorily be accounted for by him, while
it files the police report, it does not seem to be a requirement of
law when the FIR was registered on 25th February, 2020 that
facts and figures with exactitude need to form part of a first
information report. It is found on perusal of the FIR that although
not specifically mentioned, 2004 to 2018 is the “check period” G
during which AS and YS have acquired property disproportionate
to their known sources of income. There are certain calculations
projecting the quantum of money that both AS and YS received
towards salaries, interest and value for properties sold. It is true
that the FIR could have been drafted better. Since a first
H
136 SUPREME COURT REPORTS [2023] 2 S.C.R.
A information report is the starting point for a long drawn
investigative process and such an investigation could be scuttled
by an accused taking advantage of inept drafting of such report,
this is an area where all the more care and dexterity is called for
to prevent many a thing. However, nothing significant turns on
the inept drafting of the FIR in this case since it does make out a
B
case of cognizable offence having been committed by AS and YS.
Indeed, if at all there are miscalculations arising out of arithmetical
errors or misdescription of properties not belonging to AS and
YS, they were/are free to point it out while joining the
investigation. It is also open to them to point out to the
C investigating officer that there has been absolutely no suppression
or non-disclosure of 31 properties/assets and also that no activity
amounting to ‘criminal misconduct’ had been committed by them.
However, they chose to challenge the FIR on the specious ground
that the same did not disclose a cognizable offence. [Paras 54-
56][155-D-H; 156-G-H; 157-A-B]
D
1.2 While deciding the challenge to the FIR, the High Court
– unwittingly, did not bear in mind the note of caution in Bhajan
Lal to the effect that the power of quashing a criminal proceeding
should be exercised very sparingly and with circumspection and
that too in the rarest of rare cases; further that, the court will not
E be justified in embarking upon an enquiry as to the reliability or
genuineness or otherwise of the allegations made in the FIR or
the complaint; and also that, the extraordinary or inherent powers
do not confer an arbitrary jurisdiction on the court to act according
to its whim or caprice. Whenever its powers are invoked either
F under Article 226 of the Constitution or section 482, Cr. P.C. for
quashing a first information report/complaint, the courts would
not be justified in embarking upon an enquiry as to the probability,
reliability or genuineness of the allegations made therein. Thus,
it being the settled principle of law that when an investigation is
yet to start, there should be no scrutiny to what extent the
G allegations in a first information report are probable, reliable or
genuine and also that a first information report can be registered
merely on suspicion, the High Court ought to have realized that
the FIR which, according to it, was based on “probabilities” ought
not to have been interdicted. Viewed through the prism of gravity
H of allegations, a first information report based on “probability” of
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 137
SINGH & ORS. ETC. ETC
a crime having been committed would obviously be of a higher A
degree as compared to a first information report lodged on a “mere
suspicion” that a crime has been committed. The High Court
failed to bear in mind these principles and precisely did what it
was not supposed to do at this stage. No reason to invalidate the
FIR for alleged breach of the CBI Circular. The High Court was
B
not justified in its interference with the investigative process and
committed an error of law in quashing the FIR on the grounds it
did. [Paras 58, 59, 61 and 65][157-E-F, G-H; 158-E-H; 159-H]
State of Maharashtra v. Ishwar Piraji Kalpatri (1996)
1 SCC 542 : [1995] 5 Suppl. SCR 812 – relied on.
C
1.3 In the writ petitions filed by AS and YS, the pleadings
are insufficient to return a finding that the FIR is an outcome of
mala fide. No doubt, certain allegations are levelled against the
Government and the Chief Minister; however, such allegations
are vague and general in nature. Mala fide motives are required
to be affirmatively pleaded and proved. However, no foundation D
in that behalf has been laid and naturally so, the High Court even
did not examine whether exception could have been taken to the
FIR on the ground of mala fide. Neither the head of the political
executive (the incumbent Chief Minister) nor that of the
administrative executive (the Chief Secretary) was personally E
arrayed as a party to any of the proceedings. The person against
whom mala fide or bias is imputed should be impleaded as a party
respondent to the proceedings eo nomine and that in his/her
absence no inquiry into the allegations can be made. When an
information is lodged at the police station and an offence is
registered in respect of a disproportionate assets case, it is the F
material collected during the investigation and evidence led in
court that is decisive for determining the fate of the accused.
Whether the first information report is the outcome of mala fide
would be of secondary importance. In such a case, should the
allegations of mala fide be of some prima facie worth, would pale G
into insignificance if sufficient materials are gathered for sending
the accused up for a trial; hence, the plea of mala fide may not
per se form the basis for quashing the first information report/
complaint. If criminal prosecution is based upon adequate
H
138 SUPREME COURT REPORTS [2023] 2 S.C.R.
A evidence and the same is otherwise justifiable, it does not become
vitiated on account of significant political overtones and mala fide
motives. [Paras 71][161-A-G]
State of Bihar v. P.P. Sharma (1992) 1 Supp SCC 222 :
[1991] 2 SCR 1 – relied on.
B 1.4 The first information report in a disproportionate assets
case must, as of necessity, prima facie, contain ingredients for
the perception that there is fair enough reason to suspect
commission of a cognizable offence relating to “criminal
misconduct” punishable under the P.C. Act and to embark upon
C an investigation. Having regard to what has been observed in
paragraph 49 and to maintain probity in the system of governance
as well as to ensure that societal pollutants are weeded out at the
earliest, it would be eminently desirable if the high courts maintain
a hands-off approach and not quash a first information report
pertaining to “corruption” cases, specially at the stage of
D investigation, even though certain elements of strong-arm tactics
of the ruling dispensation might be discernible. The
considerations that could apply to quashing of first information
reports pertaining to offences punishable under general penal
statutes ex proprio vigore may not be applicable to a P.C. Act
E offence. Majorly, the proper course for the high courts to follow,
in cases under the P.C. Act, would be to permit the investigation
to be taken to its logical conclusion and leave the aggrieved party
to pursue the remedy made available by law at an appropriate
stage. If at all interference in any case is considered necessary,
the same should rest on the very special features of the case.
F Although what would constitute the special features has
necessarily to depend on the peculiar facts of each case,
interference could be made in exceptional cases where the
records reveal absolutely no material to support even a reasonable
suspicion of a public servant having intentionally enriched himself
G illicitly during the period of his service and nothing other than
mala fide is the basis for subjecting such servant to an
investigation. There are no cogent grounds for quashing the FIR
in the present case even on the ground of mala fide. The
impugned judgment and order is set aside and the writ petitions
are dismissed. [Paras 74-76][162-D-H; 163-A, C-D]
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 139
SINGH & ORS. ETC. ETC
Lalita Kumari v. Govt. Of U.P. (2014) 2 SCC 1 : [2013] A
14 SCR 713 – followed.
State of Haryana v. Bhajan Lal and Ors. (1992) 1 Supp.
SCC 335 : [1990] 3 Suppl. SCR 259; CBI & Ors. v.
Tapan Kumar Singh (2003) 6 SCC 175 : [2003] 3 SCR
485 – relied on. B
State of Uttar Pradesh v. Naresh & Ors. (2011) 4 SCC
324 : [2011] 4 SCR 1176; Neeharika Infrastructure
Pvt. Ltd. v. State of Maharashtra & Ors. 2021 SCC
OnLine SC 315; Central Bureau of Investigation & Anr.
v. Thommandru Hannah Vijayalakshmi @ T.H. C
Vijayalakshmi & Anr. (2021) SCC OnLine SC 923; R.
P. Kapur v. State of Punjab [1960] 3 SCR 388; Rajesh
Bajaj v. State (NCT of Delhi) (1999) 3 SCC 259 : [1999]
1 SCR 1012 – referred to.
Case Law Reference D
[2003] 3 SCR 485 relied on Para 16
[2011] 4 SCR 1176 referred to Para 19
[1960] 3 SCR 388 referred to Para 25
[1960] 3 SCR 388 referred to Para 25 E
[1990] 3 Suppl. SCR 259 relied on Para 26
[1999] 1 SCR 1012 referred to Para 51
[2013] 14 SCR 713 followed Para 51
[1995] 5 Suppl. SCR 812 relied on Para 59 F
[1991] 2 SCR 1 referred to Para 72
CRIMINAL APPELLATE JURISDICTION: Criminal Appeal
Nos. 646-648 of 2023.
From the Judgment and Order dated 10.01.2022 of the High Court G
of Chhattisgarh at Bilaspur in WPCR Nos. 88, 154 and 206 of 2020.
With
Criminal Appeal No. 649 of 2023.
H
140 SUPREME COURT REPORTS [2023] 2 S.C.R.
A Sanjay R. Hegde, Kapil Sibal, Mahesh Jethmalani, Sr. Advs., Arun
Kumar Jaiswal, Pranjal Kishore , Gautam Narayan, Sanjeevi Seshadri,
Apoorv Kurup, Ojaswa Pathak, Ms. Nidhi Mittal, Ms. Shweta Bhardwaj,
Ms. Aparna Arun, Ravi Sharma, Anjani Kumar Rai, Advs. for the
appearing parties.
B The Judgment of the Court was delivered by
DIPANKAR DATTA, J.
Leave granted.
2. These 5 (five) appeals are at the instance of, inter alia, the
C State of Chhattisgarh (hereafter ‘the State’, for short) and Sri Uchit
Sharma (hereafter ‘US’, for short). The appellants call in question a
common judgment and order dated 10th January, 2022 passed by the
Chhattisgarh High Court at Bilaspur, whereby 3 (three) writ petitions
[WPCR 88 of 2020, WPCR 154 of 2020 and WPCR 206 of 2020] were
disposed of. WPCR 88 of 2020, presented by Sri Aman Singh (hereafter
D ‘AS’, for short), was allowed by quashing FIR No. 9/2020 dated 25th
February, 2020 (hereafter ‘the FIR”, for short) under section 13(1)(b)
and (2), Prevention of Corruption Act, 1988 (hereafter ‘P.C. Act”, for
short) read with section 120B, Indian Penal Code (hereafter ‘IPC”, for
short), registered by the Economic Offences Wing/Anti-Corruption
E Bureau of the State. WPCR 154 of 2020, instituted by the wife of AS,
Smt. Yasmin Singh (hereafter ‘YS’, for short), was partly allowed. The
spouses were the joint petitioners in WPCR 206 of 2020, which was
also allowed.
3. A complaint dated 11th October, 2019 was lodged by US in the
F office of the Chief Minister of the State. It was alleged therein that AS
[an Indian Revenue Service (IRS) officer and the former Principal
Secretary to the erstwhile Chief Minister of Chhattisgarh], his wife YS,
[former consultant to the Govt. of Chhattisgarh, who had worked on
contract as the Director, Communication and Capacity Development
Unit (CCDU), Department of Public Health Engineering, Govt. of
G Chhattisgarh from 14th November, 2005 to 31st March, 2015, and as
Director, ICE & Capacity Building, Dept. of Panchayat & Rural
Development, Govt. of Chhattisgarh from 1 st April, 2015 to 10 th
December, 2018] and his family were involved in corruption and money
laundering, and that he also held assets which are disproportionate to his
known sources of income.
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 141
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
4. Upon the complaint being received, the Chief Minister by a A
handwritten order directed the Chief Secretary of the State to have the
complaint enquired into by the Economic Offences Wing (EOW).
Although, the date “14th OCT, 2019” appears just above the handwritten
order of the Chief Minister, it is not too clear whether he made such
order on 14th October, 2019 or on 15th October, 2019.
B
5. Be that as it may, vide a forwarding letter dated 21st October,
2019, the complaint was forwarded by the General Administration
Department of the State (hereafter ‘GAD’, for short) to the Economic
Offences Wing/Anti-Corruption Bureau (hereafter ‘ACB/ EOW’, for
short) for the purpose of conducting inquiry into the allegations leveled
therein. Acting in furtherance of the said letter dated 21st October, 2019, C
the ACB/EOW registered a preliminary inquiry bearing no. P.E.35/2019.
6. Prior to these developments, YS had invoked the writ jurisdiction
of the High Court by instituting a writ petition [W.P. (S)6521/2019],
essentially questioning a departmental inquiry initiated against her. She
had prayed for quashing and/or setting aside of an order dated 10 th May, D
2019 whereby the GAD had instituted an inquiry against her. Such inquiry
appears to have been initiated on the basis of a complaint dated 12th
April, 2019 lodged by one Vikas Tiwari (spokesperson of the Chhattisgarh
unit of the Indian National Congress party). With the initiation of P.E.35/
2019, in terms of the letter dated 21st October, 2019, YS filed an interim E
application (I.A.04/2020) seeking a stay thereof. By an order dated 16th
January, 2020, the High Court directed the State not to take any steps to
her prejudice pursuant to the letter dated 21st October, 2019. The order
of 16th January, 2020 refers to, inter alia, an earlier order dated 21st
October, 2019 which, however, is not on record.
F
7. The letter dated 21st October, 2019 of the GAD, referred to
above, was also challenged by AS by instituting a writ petition [WPCR
88/2020] before the High Court on 29th January, 2020. In such writ petition,
AS urged the court to pass an order for production of the entire records
pertaining to the letter dated 21st October, 2019 for its perusal, for quashing
the said letter as well as any consequential step/action taken by the G
State including P.E.No.35/2019.
8. During the pendency of WPCR 88/2020, the FIR was registered
against AS and YS.
H
142 SUPREME COURT REPORTS [2023] 2 S.C.R.
A 9. Within a few days of registration of the FIR, on 28th February,
2020 to be precise, AS applied for an amendment of WPCR 88/2020
seeking to mount a challenge to the FIR. He had also applied for interim
relief for stay of effect/operation of the FIR.
10. YS too, on 2nd March, 2020, instituted WPCR 154/2020 seeking
B an order, inter alia, for quashing of the FIR.
11. By an order dated 28th February, 2020, the High Court allowed
the application for amendment and also directed that no coercive steps
be taken against AS till the next date of hearing.
12. On 15th April, 2020, WPCR 206/2020 was jointly instituted by
C AS and YS seeking appropriate order for listing of WPCR 88/2020 and
WPCR 154/2020 for final hearing immediately upon resumption of normal
functioning of the Court (which was then curtailed due to the pandemic
caused by Covid-19) and also for an order declaring the action of the
ACB/EOW in directing HDFC Bank Ltd., respondent no.5, to put a hold
D on the funds in the salary account of AS, as void and illegal.
13. We need not at this stage refer in detail to the intervening
events of issuance of notice to AS to join the investigation as well as
interim orders passed on the writ petitions from time to time. Suffice it to
note, in an order dated 6th September, 2021, the High Court observed
E that there was a dispute with regard to the income of AS and YS and the
ACB/EOW was called upon to produce the case diary as well as figures
in tabulated form showing income and expenditure for perusal by the
Court whether there is disproportionate income or not.
14. Faced with such an order, the State filed an application seeking
F exemption to produce the case diary and the figures in tabulated form as
well as applied for vacation of an earlier order dated 28th February, 2020
whereby the ACB/EOW was restrained from taking coercive steps
against AS. The fate of these applications does not clearly appear from
the records. However, for the reasons recorded in the impugned judgment
and order dated 10th January, 2022, the High Court while allowing WPCR
G 88/2020 quashed the FIR. In view of the FIR having been quashed, the
High Court held that relief sought by YS in WPCR 154/ 2020 in relation
to the FIR had lost its significance. However, the Court rejected the
prayer of YS to prosecute US, the original complainant and J.P. Kujur,
the Investigation Officer, under section 211, IPC. WPCR 154/2020, thus,
stood partly allowed. Insofar as WPCR 206/2020 is concerned, the Court
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 143
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
made the following directions in paragraph 70: A
“70. Since this Court while hearing WPCR No. 88 of 2020 has
already quashed the FIR bearing No. 09/2020 registered against
the petitioners at Police Station- EOW/ACB, District- Raipur (C.G.),
therefore, the relief sought in this petition has lost its significance
and the bank account No. 50100 28338 9868 of petitioner No. 1 B
shall inoperative (sic) after quashing the FIR in WPCR No. 88 of
2020, therefore, no further direction is required to be passed.”
15. Since, the High Court has quashed the FIR and we are called
upon to examine the legality and propriety of the impugned judgment,
we propose to refer to the material portions of the FIR after noting the C
rival contentions.
16. Mr. Sibal, learned senior counsel appearing in support of the
appeals preferred by the State, contended that the High Court committed
gross error of law in quashing the FIR by transgressing the legal bounds
for quashing a first information report. Placing reliance on the decision D
of this Court in CBI & Ors. Vs. Tapan Kumar Singh1, he contended
that a first information report is not an encyclopedia which must disclose
all facts and details relating to the offence reported; what is of significance
is that the information given must disclose the commission of a cognizable
offence and the information so lodged must provide the basis for the
police to suspect the commission of a cognizable offence. At the stage E
of registration of a first information report, the police officer on the basis
of the information given has to suspect the commission of a cognizable
offence and not that he must be convinced or satisfied that a cognizable
offence has been committed. If he has reasons to suspect on the basis
of the information received that a cognizable offence may have been F
committed, he is bound to record the information and investigate, without
it being necessary for him to satisfy himself about the truthfulness of the
information.
17. According to Mr. Sibal, when a first information report could
be lodged on the basis of suspicion, the High Court in the present case G
erred in law in quashing the FIR on the ground that it was based on
“probabilities”. Criticizing the impugned judgment as wanting in
appreciation of the aforesaid basic principle, he urged that the High Court
overstepped its limits.
1
(2003) 6 SCC 175 H
144 SUPREME COURT REPORTS [2023] 2 S.C.R.
A 18. Mr. Sibal also contended that in the present case, AS challenged
the FIR a few days after the same was registered on 25th February,
2020 and obtained an order from the High Court to the effect that no
coercive steps be taken against him. Armed with such an order, AS did
not join the investigation despite a notice having been issued. There was
no order staying the investigation. Even if the investigation had proceeded,
B
there was no imminent fear of arrest. If indeed, AS and YS do have
papers and documents to satisfactorily account for the pecuniary
resources and property and that they do not possess assets
disproportionate to their known sources of income, such papers and
documents could have been produced before the Investigating Officer
C thereby enabling him to hold that there is no substance in the complaint
lodged by US, and then to file an appropriate closure report before the
concerned court to be considered in accordance with Law. However,
the Investigating Officer could not proceed with the investigation
effectively and meaningfully in view of the restraining orders passed by
the High Court resulting in the investigative process being aborted.
D
19. Our attention was next invited by Mr. Sibal to the decisions of
this Court in State of Uttar Pradesh Vs. Naresh & Ors. 2 and
Neeharika Infrastructure Pvt. Ltd. Vs. State of Maharashtra &
Ors.3, in support of the contention that when an investigation by the
police is in progress, the courts should not go into the merits of the
E allegations in the FIR; on the contrary, the police must be permitted to
complete the investigation. It was also contended that if after investigation
the Investigating Officer does not find any substance in the complaint/
first information report, he is obliged to file appropriate closure report
before the concerned court for its due consideration in accordance with
F law; however, it would be premature to pronounce any conclusion that
the first information report does not disclose any cognizable offence
based on hazy facts.
20. Mr. Sibal, thus, prayed that the impugned judgment and order
of the High Court be set aside and investigation into the FIR be permitted
G to be taken to its logical conclusion.
21. Mr. Sanjay Hegde, learned senior counsel for the other
appellant, i.e., US, contended that the High Court clearly applied a wrong
test while quashing the FIR. According to him, the test of a prima-facie
2
(2011) 4 SCC 324
H 3
2021 SCC OnLine SC 315
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 145
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
or probable case is only required to be shown at the time of framing of A
charge; however, for an investigation to proceed on the basis of a first
information report, all that is required to be shown is that the contents of
the complaint/first information report, when taken at face value, make
out an offence.
22. It was further contended by Mr. Hegde that the High Court B
conducted a mini-trial while arriving at a conclusion that no offence
against AS and YS has been made out in the FIR which, this Court has
repeatedly held, cannot be conducted in proceedings for quashing of a
first information report. At the stage of considering a prayer for quashing
of first information report, the probable defence of the accused cannot
be considered. C
23. Inviting our attention to the interim order dated 6th September,
2021 passed by the High Court, Mr. Hegde contended that such an
exercise could not have been undertaken by the Court in exercise of its
jurisdiction under Article 226 of the Constitution.
D
24. Referring to the decision of this Court in Central Bureau of
Investigation & Anr. Vs. Thommandru Hannah Vijayalakshmi @
T.H. Vijayalakshmi & Anr.4, Mr. Hegde submitted that a similar exercise
that was undertaken by the relevant high court was held to be
impermissible by this Court.
E
25. The decisions of this Court in R.P. Kapur Vs. State of Punjab5
and State of Haryana Vs. Bhajan Lal and Ors.6 were next cited for
highlighting the categories of cases where inherent jurisdiction can and
should be exercised by the high courts to quash proceedings; however,
having regard to the facts and circumstances of the case presented
before the High Court by AS and YS, Mr. Hegde contended that the F
court ought to have declined interference.
26. Mr. Hegde further relied on the decision of this Court in Rajesh
Bajaj Vs. State (NCT of Delhi)]7 for the proposition that if the factual
foundation for the offence has been laid in the complaint, the court should
not hasten to quash criminal proceedings during investigation stage merely G
on the premise that one or two ingredients have not been stated with
4
(2021) SCC OnLine SC 923
5
(1960) 3 SCR 388
6
1992 SUPP. (1) SCC 335
7
(1999) 3 SCC 259 H
146 SUPREME COURT REPORTS [2023] 2 S.C.R.
A details. According to him, quashing of a first information report is a step
which is permitted only in extremely rare cases such as, the information
in the complaint must be so bereft of even the basic facts which are
absolutely necessary for making out the offence. The FIR, in the present
case, does contain definite particulars making out the offences complained
of. That apart, the preliminary inquiry carried out before registration of
B
the FIR has revealed disproportionate assets to the tune of 20% of the
income of AS; hence, it was not an appropriate case where the power to
quash the FIR should have been exercised.
27. While concluding, Mr. Hegde submitted that the High Court
having travelled beyond the well-settled parameters of exercise of
C jurisdiction under Article 226 of the Constitution, the impugned judgment
and order merits to be set aside.
28. Mr. Mahesh Jethmalani, learned senior counsel appearing for
AS and YS, opposed the appeals. Reiterating the contentions that found
favour with the High Court, he contended that the High Court rightly
D concluded that investigation of the FIR, which did not prima facie disclose
commission of any cognizable offence by either AS or YS, would be
nothing but an abuse of the process of law and compelling AS and YS to
join the investigation would amount to undue and unnecessary harassment.
29. By referring to the facts preceding registration of the FIR,
E Mr. Jethmalani sought to impress us that ever since the political
dispensation underwent a change in the State of Chhattisgarh, AS and
YS have been the target of the new dispensation. Misusing the police
machinery, no stone has been left unturned to falsely implicate AS and
YS. Initially a departmental inquiry was initiated against YS vide an
F order dated 10th May, 2019 and no sooner had the High Court by an
order dated 21st October, 2019 granted interim protection to YS, further
action was taken to initiate a preliminary inquiry against AS and YS on
11th November, 2009. That apart, quite mischievously, the FIR was
suddenly registered during the pendency of WPCR 88/2020 to render
the same infructuous.
G
30. It was thereafter contended by Mr. Jethmalani that a bare
perusal of the FIR would reveal non-disclosure of the ‘check period’
which is a sine qua non in a case of disproportionate assets. Further,
the FIR did not disclose the basic ingredients of establishing an offence
under section 13(1)(b) read with section 13(2) of the P.C. Act. The FIR
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 147
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
also did not disclose the extent of alleged investment either in figures or A
in percentage.
31. Referring to the decision in T.H. Vijayalakshmi (supra), it
was Mr. Jethmalani’s endeavor to show that the investigating agency in
that case had set out/specified the extent of disproportionality in a tabular
form, in rupees and percentage, in the first information report therein. B
The High Court, therefore, was not in error when it required the State to
produce the case diary as well as figures in tabulated form showing
income and expenditure for perusal by the Court by its interim order
dated 6th September, 2021.
32. Mr. Jethmalani further urged that no material being there to C
justify registration of the FIR is borne out from the fact that the State
had applied for exemption from complying with the High Court’s order
dated 6th September, 2021.
33. It was next argued by Mr. Jethmalani that a first information
report based on sheer conjectural possibility of finding some more assets D
in future is wholly impermissible. Law, according to him, is well settled
that a mere mention of the possibility will not entitle the ACB/EOW of
the State to lodge a first information report and conduct investigation.
Unless the first information report discloses cognizable offence, such
report based on possibilities would become a tool of witch hunting and
consequently harassment, which would be a clear violation of Article 21 E
of the Constitution. It was also argued that there is a casual allegation of
a criminal conspiracy between AS and YS without there being a whisper
about its basic elements.
34. Mr. Jethmalani further contended that even if it is assumed
that 2004 to 2018 is the check period, it is clear that a fishing inquiry is F
intended by the State and its officers with a view to scandalize AS and
YS.
35. It was also the contention of Mr. Jethmalani that there has
been no disproportionality at all, which would warrant an investigation
even into the allegations leveled by US in the complaint, or for that matter, G
the FIR, and the High Court was right in its interference to prevent
abuse of the process of law.
36. The contention of the respondents that the High Court had
applied a ‘non-existent legal test’ was refuted by terming it as entirely
misleading. Passages from the impugned judgment were referred to, to H
148 SUPREME COURT REPORTS [2023] 2 S.C.R.
A show how the High Court was right in returning the finding that the FIR
did not disclose any offence rendering it liable to interdiction.
37. While concluding, Mr. Jethmalani contended that there was
no material to justify registration of the FIR and that there being no
‘legitimate prosecution’, the same has rightly been quashed and set aside
B by the impugned judgment; hence, the appeals are liable to be dismissed.
38. The High Court did not in the impugned judgment assign mala
fide as a ground for quashing the FIR. In course of hearing before us,
Mr. Jethmalani attempted to build up a case of mala fide by referring to
how the incumbent Chief Minister perceived AS to be a ‘super CM’ and
C also that AS has become the victim of political vendetta, being caught in
the crossfire between the incumbent Chief Minister and the former Chief
Minister. Reference was made to clause (7) of paragraph 102 of the
decision in Bhajan Lal (supra), where it was held that a first information
report could be quashed by the high courts “where a criminal
proceeding is manifestly attended with mala fide and/or where the
D proceeding is maliciously instituted with an ulterior motive for
wreaking vengeance on the accused and with a view to spite him
due to private and personal grudge”.
39. In his rejoinder, Mr. Hegde canvassed that there are no
pleadings to this effect in the writ petition filed before the High Court
E and, therefore, a new case ought not to be allowed to be set up de hors
the pleadings. The immediate reaction of Mr. Jethmalani was that the
writ petitions are replete with allegations of mala fide, which form the
plinth for registration of the FIR as well as the departmental inquiry
against YS.
F 40. Before reserving judgment, we had permitted Mr. Jethmalani
to file short written notes of arguments within a week together with a
few other relevant documents which he intended to file though not part
of the pleadings before the High Court or this Court.
41. The written notes together with documents annexed thereto
G marked as annexures R/1A to R/1K have been considered.
42. In Part 1 of the written notes, reference has been made to
Circular No. 29/2020 of the Central Bureau of Investigation (hereafter
‘CBI’, for short) providing the methodology for registering first
information reports in cases of disproportionate assets and for conducting
H investigation. The contention advanced is that the FIR, in the present
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 149
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
case, does not conform to the guidelines laid down by the CBI in Circular A
No. 29/2020 (hereafter ‘CBI Circular’, for short). Part II centers around
the contention that the FIR contains several statements styled as facts,
which were false to the knowledge of the ACB/EOW of the State. The
third and final part is dedicated to “fabrications and manipulations” in
the FIR which were the result of political vendetta against AS, who was
B
the Principal Secretary to the Chief Minister in the previous regime.
43. We ought to place on record that little over a week of reserving
judgment, on 20th January, 2023 to be precise, Mr. Vikas Singh, learned
senior counsel mentioned the criminal appeals and prayed for recall of
the order reserving judgment on the ground that an application for
directions was in the process of being filed by AS and YS and that the C
same ought to be considered before the judgment on these appeals is
pronounced. Orally, we permitted the application to be filed for being
taken into consideration at an appropriate time.
44. The application, which has since been filed on 20th January,
2023, refers to certain newspaper reports and WhatsApp messages/ D
chats exchanged allegedly between important functionaries of the
Government of Chhattisgarh and based thereon it has been the contention
that there exists conclusive material in public domain establishing that
the FIR against AS and YS has been registered at the behest of one Sri
Anil Tuteja and other high- ranking public officials in the State, at the E
instance of the present Chief Minister. Since the materials brought on
record by such application are sufficient to drive home the conclusion
that political vendetta is the real cause for registration of the FIR, to
tarnish the reputation of AS and YS, it has been urged that all the evidence
ought to be summoned by this Court for just disposal of the present
proceedings. Such application contains the following prayers: F
“PRAYER
In the facts and circumstances stated hereinabove, this Hon’ble
Court may graciously be pleased to:
a) Direct to take on record the new facts and materials, as has G
emerged from the news report dated 18.01.2023 (titled “The
Chhattisgarh Files: Docs, Chats show how prime accused was
himself ‘managing’ NAN scam investigation, Baghel issued
hitlist’ to implicate Raman Singh, others’) in the web news
portal www.opindia.com and direct further hearing in the present
H
150 SUPREME COURT REPORTS [2023] 2 S.C.R.
A case; and/or
b) Direct to summon the records pertaining to the ‘WhatsApp’
Chats relating to the conspiracy to implicate the Respondent Nos.
1 & 4 from the Enforcement Directorate; and/or
c) Direct to summon the records of the Preliminary Enquiry bearing
B No. 35 of 2019 initiated by the Petitioner- State’s EOW/ACB in
respect to the complaint made by Respondent No. 2 on 11.10.2019;
and/or
d) Direct to tag the present special leave petition with W.P. (Crl)
No. 506 of 2021 titled ‘Directorate of Enforcement v. Anil Tuteja
C & Ors.’ Pending before this Hon’ble Court; and/or
e) Pass such other or further order (s) as may be deemed fit and
appropriate by this Hon’ble Court in the facts and circumstances
of the present case.”
D 45. We have heard the parties, perused the materials on record,
and considered the decisions cited at the bar.
46. The High Court, upon perusal of the FIR and consideration of
the arguments advanced by the parties as well as the decisions cited at
the Bar, recorded in the impugned judgment, inter alia, as follows: -
E “49. From bare perusal of the FIR, the allegation of disproportionate
income is made out or not, it is expedient for this Court to examine
whether from bare perusal of the contents of FIR, offence said to
have been committed is made out or not, then only the FIR can be
quashed by this Court. Therefore, whether the prima facie case
is made out or not, has to be seen. This Court in foregoing
F
paragraphs has extensively quoted the FIR, which clearly
demonstrates that the FIR is based on probabilities with regard to
disproportionate income. The FIR is silent with regard to quantum
of the disproportionate income, which is the paramount factors
for involving any person in implicating any person for commission
G of offence under Section 13(1)(b), 13(2) of the Act, 1988. These
basic ingredients are not reflected from the bare perusal of the
FIR.
***
56. The FIR further states that there is possibility of having various
H properties in the name of the petitioner and his wife. The FIR
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 151
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
further states that there is reasonable possibility that the petitioner A
has invested himself for his wife and other dependent family
members and it was also stated that there is a possibility that a
huge amount of money is being deposited in the bank account of
his wife. The FIR nowhere discloses commission of any offence
with definite facts and figures. The FIR is based upon probabilities.
B
As per the Act, 1988, it is for the prosecution to establish prima
facie offence under Section 13(1)(b) read with Section 13 (2) of
the Act, 1988 against Government servant by reflecting in the
FIR, which is initiation of prosecution, then only, prosecution can
be started to investigate the offence as mentioned in the FIR. In
absence of any specific allegation made in the FIR, merely on C
probability, the petitioner cannot be prosecuted. The FIR has been
registered on the basis of complaint made by one Uchit Sharma.
The allegation in the FIR that the petitioner has not filed a single
APR while being employed with the Government of Chhattisgarh
due to fear that his disproportionate assets will get exposed. It
D
may seriously violate all the conduct rules of Government of India
and Chhattisgarh Civil Services (Conduct) Rules, 1965, but the
petitioner cannot be prosecuted for commission of offence under
Section 13(1)(b) read with Section 13(2) of the Act, 1988 for non-
submission of APR with the department. The FIR is not disclosing
the fact that even not disclosing the APR with the Government E
what disproportionate income, the petitioner has earned during
the period from 2004 to 2018.”
47. Confined to what the High Court has held in the impugned
judgment and order, the short question that emerges for a decision is
whether the High Court was justified in its interference with the FIR. F
48. The additional question that we are called upon to answer in
view of the plea of mala fide raised by Mr. Jethmalani and the contents
of the application for directions filed on behalf of AS and YS is, whether
and to what extent would a court exercising power under Article 226 of
the Constitution or section 482 of the Code of Criminal Procedures G
(hereafter ‘Cr. P.C.’, for short) be justified to quash a first information
report registered under section 13 of the P.C. Act while the police
embarks on an investigation against a public servant particularly in view
of what has been laid down in clause (7) of paragraph 102 of the decision
in Bhajan Lal (supra).
H
152 SUPREME COURT REPORTS [2023] 2 S.C.R.
A 49. We preface our discussion, leading to the answers to the above
two questions, taking note of a dangerous and disquieting trend that
obviously disturbs us without end. Though it is the preambular promise
of the Constitution to secure social justice to the people of India by
striving to achieve equal distribution of wealth, it is yet a distant dream.
If not the main, one of the more prominent hurdles for achieving progress
B
in this field is undoubtedly ‘corruption’. Corruption is a malaise, the
presence of which is all pervading in every walk of life. It is not now
limited to the spheres of activities of governance; regrettably, responsible
citizens say it has become a way of one’s life. Indeed, it is a matter of
disgrace for the entire community that not only on the one hand is there
C a steady decline in steadfastly pursuing the lofty ideals which the founding
fathers of our Constitution had in mind, degradation of moral values in
society is rapidly on the rise on the other. Not much debate is required to
trace the root of corruption. ‘Greed’, regarded in Hinduism as one of the
seven sins, has been overpowering in its impact. In fact, unsatiated greed
for wealth has facilitated corruption to develop like cancer. If the corrupt
D
succeed in duping the law enforcers, their success erodes even the fear
of getting caught. They tend to bask under a hubris that rules and
regulations are for humbler mortals and not them. To get caught, for
them, is a sin. Little wonder, outbreak of scams is commonly noticed.
What is more distressing is the investigations/inquiries that follow. More
E often than not, these are botched and assume the proportion of bigger
scams than the scams themselves. However, should this state of affairs
be allowed to continue? Tracking down corrupt public servants and
punishing them appropriately is the mandate of the P.C. Act. “We the
people”, with the adoption of our Constitution, had expected very high
standards from people occupying positions of trust and responsibility in
F
line with the Constitutional ethos and values. Regrettably, that has not
been possible because, inter alia, a small section of individuals inducted
in public service for ‘serving the public’ appear to have kept private
interest above anything else and, in the process, amassed wealth not
proportionate to their known sources of income at the cost of the nation.
G Although an appropriate legislation is in place to prevent the cancer of
corruption from growing and developing, wherefor maximum punishment
by way of imprisonment for ten years is stipulated, curbing it in adequate
measure, much less eradicating it, is not only elusive but unthinkable in
present times. Since there exists no magic wand as in fairy tales, a
swish of which could wipe out greed, the Constitutional Courts owe a
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 153
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
duty to the people of the nation to show zero tolerance to corruption and A
come down heavily against the perpetrators of the crime while at the
same time saving those innocent public servants, who unfortunately get
entangled by men of dubious conduct acting from behind the screen
with ulterior motives and/or to achieve vested interests. The task, no
doubt, is onerous but every effort ought to be made to achieve it by
B
sifting the grain from the chaff. We leave the discussion here with the
fervent hope of better times in future.
50. Insofar as the merits of the controversy is concerned, we
must necessarily begin with a reading of the relevant provisions of the
P.C. Act. “Public servant” is defined in section 2(c). It is not disputed
that AS as well as YS is comprehended within such meaning. Section C
13(1) of the P.C. Act defines “criminal misconduct”. A public servant is
said to commit the offence of criminal misconduct if (a) he dishonestly
or fraudulently misappropriates or otherwise converts for his own use
any property entrusted to him or any property under his control as a
public servant or allows any other person so to do, or (b) he intentionally D
enriches himself illicitly during the period of his office. Thus, intentional
enrichment illicitly by a public servant during the period of his office is a
criminal misconduct. There are two explanations in section 13(1). The
first explanation provides that a person shall be presumed to have
intentionally enriched himself illicitly if he or any person on his behalf, is
in possession of or has, at any time during the period of his office, been E
in possession of pecuniary resources or property disproportionate to his
known sources of income which the public servant cannot satisfactorily
account for. The other explanation defines “known sources of income”
to mean income received from any lawful sources. To attract this
provision, the officer sought to be proceeded against must be a public F
servant. He must be found to be in possession of, by himself, or through
any person on his behalf, at any time during the period of his office,
pecuniary resources or property disproportionate to his known sources
of income. If he is unable to satisfactorily account for the same, he shall
be liable to be proceeded against for having committed criminal
misconduct and suitably punished and fined if the charge is proved for G
such period, as provided in sub-section (2). Undoubtedly, this is a
presumptive finding but that finding is based on three facts, viz. being a
(i) public servant, (ii) if at any time during the period of his office, he has
been in possession, by himself or through any person on his behalf, of
pecuniary resources or property disproportionate to his known sources H
154 SUPREME COURT REPORTS [2023] 2 S.C.R.
A of income, then (iii) he is enjoined to satisfactorily account for the same.
The offence of criminal misconduct is committed by a public servant if
(ii) is proved and (iii) does not happen. Therefore, if a prosecution is
launched under sub-section (1) of section 13 of the P.C. Act and the
allegation is proved at the trial, the concerned public servant is liable to
punishment under sub-section (2) thereof.
B
51. The law of the land abhors any public servant to intentionally
enrich himself illicitly during the tenure of his service. Increase in the
assets of such a public servant tantamount to constitutionally
impermissible conduct and such conduct is liable to be put under the
scanner of the P.C. Act. The Constitution Bench of this Court in its
C decision in Lalita Kumari Vs. Govt. of U.P.8, inter alia, while observing
that cases in which preliminary inquiry is to be conducted would depend
upon the facts and circumstances of each case, also categorized cases
(though not exhaustively) where preliminary inquiry, before registration
of a first information report, could be conducted and included ‘corruption
D cases’ in such category. A preliminary inquiry or probe, we believe,
becomes indispensable in a complaint of acquisition of disproportionate
assets not only to safeguard the interest of the accused public servant, if
such complaint were lodged with some malice, but also to appropriately
assess the quantum of disproportionate assets should there be some
substance in this complaint.
E
52. In regard to a case of the type under consideration, particularly
when the FIR has been registered pursuant to a preliminary inquiry into
the complaint of US and is at its nascent stage, it is in course of an
investigation that materials are required to be collected and based on
such requisite evidence of possession of pecuniary resources or acquisition
F of assets or property disproportionate to the known sources of income
of the concerned public servant that a police report under section 173(2),
Cr. P.C. could be laid. At the stage of conducting a preliminary inquiry,
exercise of investigative powers being barred, such an inquiry is intended
to facilitate the process of formation of opinion as to whether a first
G information report at all is required to be registered. During the tenure of
his office under his employer, the public servant might not have even
been suspected of being in possession of pecuniary resources or assets
disproportionate to his known sources of income. Such assets or resources
might have been held through somebody on his behalf. In such a scenario,
8
H (2014) 2 SCC 1
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 155
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
it is indeed a difficult task for the Government - the employer - because A
of its impersonal character and the usual lethargy or indolence at
Government levels to connect the officer with the resources or assets
illicitly acquired. To weed out corrupt public servants, the Government
has to engage sincere and dedicated personnel for collecting and collating
the necessary material in this regard. If there be no interventions, the
B
investigation that is likely to follow in terms of the Cr. P.C., could enable
the investigating officer to collect and collate the entire evidence
establishing the essential links between the public servant and the property
or pecuniary resources in dispute. Since snapping of any link in the chain
of circumstances could prove fatal to the whole exercise, it is of utmost
necessity that care and dexterity are not compromised. C
53. It is in the light of section 13 of the P.C. Act and the above
principles that we need to read the FIR and the preceding complaint to
assess whether any cognizable offence is made out against AS and, a
fortiori, against YS, his wife.
54. The complaint that US lodged with the Chief Minister does D
specifically allege that although AS came from a very humble background,
as evident from his Annual Property Return filed at the time of joining
IRS, “he has managed to amass disproportionate assets of more
than 2500 crores contrary to his legal sources of income”. One
could view it as a tall claim, which is thoroughly unsubstantiated. However, E
it cannot be wished away because of the revelations of the preliminary
inquiry which led to registration of the FIR and have formed part thereof.
Although it is true that it is for the prosecution to build up a case that AS,
as a public servant, amassed such wealth or even wealth of any lesser
value that is disproportionate to his known sources of income, and which
could not satisfactorily be accounted for by him, while it files the police F
report, it does not seem to be a requirement of law when the FIR was
registered on 25th February, 2020 that facts and figures with exactitude
need to form part of a first information report.
55. Moving forward, it is found on perusal of the FIR that although
not specifically mentioned, 2004 to 2018 is the “check period” during G
which AS and YS have acquired property disproportionate to their known
sources of income. There are certain calculations projecting the quantum
of money that both AS and YS received towards salaries, interest and
value for properties sold. Particulars of immovable properties acquired
by AS and YS at different locations with particulars of “price” also find H
156 SUPREME COURT REPORTS [2023] 2 S.C.R.
A mention therein. It is thereafter stated that in addition to these properties,
there is possibility of there being other properties in other places of the
country in the names of AS and YS. There are also references to possible
investments made by AS abroad, either in his own name or in the names
of his wife and dependent members. Deposits of money in lakhs in the
bank account of YS regularly have been suspected to be receipt of
B
consideration (profit) from investment of big amounts. It is also revealed
from the FIR that Rs.1,01,83,869.00 during April, 2013 to July, 2016 and
Rs.75,55,058.00 during October, 2018 to November, 2019 were deposited
by Cargill India Pvt. Ltd. and Courtesan Consulting Private Limited,
respectively, in the bank account of YS and such financial transactions
C involving huge amounts prima facie appeared to be conspicuous requiring
minute scrutiny. These, along with some other disclosures relating to
involvement of AS as promoter of a ‘memorial foundation’ and YS as
partner of a firm, reveals the following contents:
“***As per the information regarding properties exceeding income,
D received in the inquiry, commission of a cognizable offence appears
prima facie. Keeping it in view, investigation is required so that
information may be obtained regarding movable and immovable
properties in addition to the aforesaid properties. There is possibility
that information regarding not only shares, vehicles and jewelry
but also regarding Benami properties in the name of relatives,
E may be obtained. The income received lawfully by non-applicant
Aman Singh and Yasmin Singh during their tenure as public
servant, from year 2014 to December, 2018, was found to be Rs.
3,33,71,290, in comparison to which, it was found that immensely
disproportionate expenses have been made by non-applicant Aman
F Singh during the said period in his name and in the name of his
wife and dependent members, which was prima facie found to
be an offence under Sections 13(1)B, 13(2) of the Prevention of
Corruption Act, 1988 as amended by Amendment Act, 2018 and
Section 120(B) of the Indian Penal Code.”
G 56. It is true that the FIR could have been drafted better. Since a
first information report is the starting point for a long drawn investigative
process and such an investigation could be scuttled by an accused taking
advantage of inept drafting of such report, this is an area where all the
more care and dexterity is called for to prevent many a thing. However,
nothing significant turns on the inept drafting of the FIR in this case
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 157
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
since it does make out a case of cognizable offence having been committed A
by AS and YS. Indeed, if at all there are miscalculations arising out of
arithmetical errors or misdescription of properties not belonging to AS
and YS, they were/are free to point it out while joining the investigation.
It is also open to them to point out to the investigating officer that there
has been absolutely no suppression or non-disclosure of properties/assets
B
and also that no activity amounting to ‘criminal misconduct’ had been
committed by them. However, they chose to challenge the FIR on the
specious ground that the same did not disclose a cognizable offence.
57. Based on our reading of the FIR, we are unable to appreciate
the reasons resting whereon the same has been quashed by the High
Court. The High Court was of the opinion that (i) the FIR clearly C
demonstrates that the same “is based on probabilities with regard to
disproportionate income”, (ii) the FIR “is silent with regard to the
quantum of disproportionate income, which is the paramount factors
for involving any person in implicating any person for commission
of offence under Section 13(1)(b), 13(2) of the Act, 1988”, (iii) these D
“basic ingredients are not reflected from the bare perusal of the
FIR”, (iv) the “FIR nowhere discloses commission of any offence
with definite facts and figures” and (v) “offence under Section
13(1)(b), 13(2) of the Act, 1988 is not made out”.
58. While deciding the challenge to the FIR, the High Court – E
unwittingly, we presume – did not bear in mind the note of caution in
Bhajan Lal (supra) to the effect that the power of quashing a criminal
proceeding should be exercised very sparingly and with circumspection
and that too in the rarest of rare cases; further that, the court will not be
justified in embarking upon an enquiry as to the reliability or genuineness
or otherwise of the allegations made in the FIR or the complaint; and F
also that, the extraordinary or inherent powers do not confer an arbitrary
jurisdiction on the court to act according to its whim or caprice.
59. It seems that such note of caution did not have the desired
effect in all cases resulting in this Court, in its subsequent decisions,
reemphasizing the need for the high courts to bear in mind the settled G
principle of law that whenever its powers are invoked either under Article
226 of the Constitution or section 482, Cr. P.C. for quashing a first
information report/complaint, the courts would not be justified in embarking
upon an enquiry as to the probability, reliability or genuineness of the
allegations made therein (emphasis ours). We may, in this regard, H
158 SUPREME COURT REPORTS [2023] 2 S.C.R.
A profitably refer to the decision of this Court while dealing with a case
under the P.C. Act in State of Maharashtra Vs. Ishwar Piraji Kalpatri9.
60. Very strong reliance has been placed by Mr. Sibal on the
decision in Tapan Kumar Singh (supra). There, this Court ruled that:
“20. *** The information given disclosing the commission of a
B cognizable offence only sets in motion the investigative machinery,
with a view to collect all necessary evidence, and thereafter to
take action in accordance with law. The true test is whether the
information furnished provides a reason to suspect the commission
of an offence, which the police officer concerned is empowered
C under Section 156 of the Code to investigate. If it does, he has no
option but to record the information and proceed to investigate
the case either himself or depute any other competent officer to
conduct the investigation. The question as to whether the report
is true, whether it discloses full details regarding the manner of
occurrence, whether the accused is named, and whether there is
D sufficient evidence to support the allegations are all matters which
are alien to the consideration of the question whether the report
discloses the commission of a cognizable offence. Even if the
information does not give full details regarding these matters, the
investigating officer is not absolved of his duty to investigate the
E case and discover the true facts, if he can.”
61. Thus, it being the settled principle of law that when an
investigation is yet to start, there should be no scrutiny to what extent
the allegations in a first information report are probable, reliable or genuine
and also that a first information report can be registered merely on
F suspicion, the High Court ought to have realized that the FIR which,
according to it, was based on “probabilities” ought not to have been
interdicted. Viewed through the prism of gravity of allegations, a first
information report based on “probability” of a crime having been
committed would obviously be of a higher degree as compared to a first
information report lodged on a “mere suspicion” that a crime has been
G committed. The High Court failed to bear in mind these principles and
precisely did what it was not supposed to do at this stage. We are, thus,
unhesitatingly of the view that the High Court was not justified in its
interference on the ground it did.
9
H (1996) 1 SCC 542
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 159
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
62. Mr. Hegde is also right in relying on the decisions in R.P. A
Kapur (supra) and Bhajan Lal (supra) that the FIR in this case did not
fit into any of the categories for being quashed on the ground of not
disclosing a cognizable offence.
63. Borrowing the words of K.T. Thomas, J. (as His Lordship
then was), it can safely be concluded that in the present case the High B
Court “sieved the complaint through a cullender of finest gauzes
for testing” the veracity of the alleged crime. This approach being clearly
impermissible at the stage of considering a challenge to a first information
report, we are of the considered opinion that the judgment and order
under challenge is indefensible.
C
64. We now move on to consider Circular No. 29/2020 dated 12th
November, 2020 issued by the CBI on the subject of investigation of
cases of Illicit Enrichment (possession of pecuniary resources or property
disproportionate to known sources of income) (hereafter ‘CBI Circular’,
for short). Having perused the CBI Circular, what we find is that the
same provides the methodology to guide registration of a first information D
report in relation to disproportionate assets cases. To the written notes
of arguments is annexed a circular dated 12th April, 2021, by which the
State has clarified that the CBI’s methodology would apply to the State’s
ACB/EOW as well (because the manual of the State’s ACB/EOW has
not been notified) and also that the CBI’s methodology will apply in E
respect of All India and Central Govt. Service Officers. However, the
contention on behalf of AS and YS that the methodology provided in the
CBI Circular has been observed in the breach has failed to impress us.
Evidently, the FIR in the present case was registered on 25th February,
2020 whereas the CBI Circular was issued on 12th November, 2020,
almost 9 (nine) months after the FIR was registered, and adopted by the F
State almost a year later. Since the CBI Circular was not in existence on
25th February, 2020, the FIR in the present case cannot be invalidated by
reference to the CBI Circular. It is only just and appropriate that the
CBI Circular, having been adopted by the State, would be required to be
followed only in respect of registration of first information reports G
pertaining to cases of acquisition of disproportionate assets, post 12th
April, 2021. We, therefore, see no reason to invalidate the FIR for alleged
breach of the CBI Circular.
65. We, thus, answer the first question by holding that the High
Court was not justified in its interference with the investigative process H
and committed an error of law in quashing the FIR on the grounds it did.
160 SUPREME COURT REPORTS [2023] 2 S.C.R.
A 66. To answer the second question, the challenge to the FIR on
the ground that it is vitiated by mala fides is taken up for consideration.
67. Allegations of ulterior motives at the behest of the political
dispensation in power in the State and direction given by the Chief Minister
to the Economic Offences Wing to conduct an inquiry, which is per se
B violative of the law, are found in WPCR 88 of 2020 under the heading
‘subject matter in brief’. Mirror images of such allegations are also found
under the heading ‘Facts of the Case’. While amending the writ petition
and challenging the FIR and seeking an order for its quashing, AS alleged
in the application for amendment as follows:
C “That the action taken by the Chief Minister on the complaint
addressed to him is patently contrary to law and in view of the
said CM’s declared public hostility towards the petitioner as set
out elsewhere in the petition, discloses malice” (paragraph 9.29).
“The lodging of the FIR during pendency of the hearing of the
D present writ petition is further evidence of mala fides on part of
Respondent State” (paragraph 9.32).
“That the FIR is an abuse of police and state power. It is the
outcome of personal animosity of the CM of the state against the
petitioner” (paragraph 9.33).
E 68. Mr. Jethmalani, experienced as he is, must have sensed that
the judgment under challenge rests on weak foundation; hence, he
advanced arguments more touching upon the mala fides that worked in
registration of the FIR against AS and YS. As has been noted above,
reacting to Mr. Hegde’s submission that there are no pleadings of mala
F fides, he submitted that the writ petitions are replete with such pleadings.
69. As if the submissions of Mr. Jethmalani were not strong enough,
we had AS and YS filing the application for directions late in the day
seeking to bring on record certain reports/messages/chats to provide
proof that mala fide motive is indeed the genesis of the FIR. We have
also perused the application for directions, and more particularly the
G
contents of paragraph 13 thereof.
70. For reasons more than one, we are inclined to the view that
the writ petitions before the High Court would not have succeeded even
if the plea of mala fide were advanced and accepted as a ground of
assail to the FIR, based on what has been laid down in Bhajan Lal
H (supra).
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 161
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
71. We have perused the writ petitions filed by AS and YS and A
have no hesitation to agree with Mr. Hegde that the pleadings are
insufficient to return a finding that the FIR is an outcome of mala fide.
No doubt, certain allegations are levelled against the Government and
the Chief Minister; however, such allegations are vague and general in
nature. Mala fide motives are required to be affirmatively pleaded and
B
proved. However, no foundation in that behalf has been laid and naturally
so, the High Court even did not examine whether exception could have
been taken to the FIR on the ground of mala fide.
72. Secondly, neither the head of the political executive (the
incumbent Chief Minister) nor that of the administrative executive (the
Chief Secretary) was personally arrayed as a party to any of the C
proceedings. Now, law is well-settled that the person against whom mala
fide or bias is imputed should be impleaded as a party respondent to the
proceedings eo nomine and that in his/her absence no inquiry into the
allegations can be made. This is what the decision in State of Bihar vs.
P.P. Sharma10 lays down. Having regard thereto, since the incumbent D
holding the office of Chief Minister of the State against whom mala fide
is alleged is not on record, we are loath to attach any importance to the
allegations of mala fide even if there be any.
73. Thirdly, it must be remembered that when an information is
lodged at the police station and an offence is registered in respect of a E
disproportionate assets case, it is the material collected during the
investigation and evidence led in court that is decisive for determining
the fate of the accused. To our mind, whether the first information report
is the outcome of mala fide would be of secondary importance. In such
a case, should the allegations of mala fide be of some prima facie
worth, would pale into insignificance if sufficient materials are gathered F
for sending the accused up for a trial; hence, the plea of mala fide may
not per se form the basis for quashing the first information report/
complaint.
74. Finally, following the above, what is of substantial importance
is that if criminal prosecution is based upon adequate evidence and the G
same is otherwise justifiable, it does not become vitiated on account of
significant political overtones and mala fide motives. We can say without
fear of contradiction, it is not in all cases in our country that an individual,
who is accused of acts of omission/commission punishable under the
10
1992 Supp. (1) SCC 222 H
162 SUPREME COURT REPORTS [2023] 2 S.C.R.
A P.C. Act but has the blessings of the ruling dispensation, is booked by the
police and made to face prosecution. If, indeed, in such a case (where a
prosecution should have been but has not been launched) the succeeding
political dispensation initiates steps for launching prosecution against such
an accused but he/she is allowed to go scot-free, despite there being
materials against him/her, merely on the ground that the action initiated
B
by the current regime is mala fide in the sense that it is either to settle
scores with the earlier regime or to wreak vengeance against the
individual, in such an eventuality we are constrained to observe that it is
criminal justice that would be the casualty. This is because, it is difficult
to form an opinion conclusively at the stage of reading a first information
C report that the public servant is either in or not in possession of property
disproportionate to the known sources of his/her income. It would all
depend on what is ultimately unearthed after the investigation is complete.
Needless to observe, the first information report in a disproportionate
assets case must, as of necessity, prima facie, contain ingredients for
the perception that there is fair enough reason to suspect commission of
D
a cognizable offence relating to “criminal misconduct” punishable under
the P.C. Act and to embark upon an investigation. Having regard to
what we have observed above in paragraph 49 (supra) and to maintain
probity in the system of governance as well as to ensure that societal
pollutants are weeded out at the earliest, it would be eminently desirable
E if the high courts maintain a hands-off approach and not quash a first
information report pertaining to “corruption” cases, specially at the stage
of investigation, even though certain elements of strong-arm tactics of
the ruling dispensation might be discernible. The considerations that could
apply to quashing of first information reports pertaining to offences
punishable under general penal statutes ex proprio vigore may not be
F
applicable to a P.C. Act offence. Majorly, the proper course for the high
courts to follow, in cases under the P.C. Act, would be to permit the
investigation to be taken to its logical conclusion and leave the aggrieved
party to pursue the remedy made available by law at an appropriate
stage. If at all interference in any case is considered necessary, the
G same should rest on the very special features of the case. Although
what would constitute the special features has necessarily to depend on
the peculiar facts of each case, interference could be made in exceptional
cases where the records reveal absolutely no material to support even a
reasonable suspicion of a public servant having intentionally enriched
himself illicitly during the period of his service and nothing other than
H
THE STATE OF CHATTISGARH & ANR. v. AMAN KUMAR 163
SINGH & ORS. ETC. ETC [DIPANKAR DATTA, J.]
mala fide is the basis for subjecting such servant to an investigation. We A
quite appreciate that there could be cases of innocent public servants
being entangled in investigations arising out of motivated complaints and
the consequent mental agony, emotional pain and social stigma that they
would have to encounter in the process, but this small price has to be
paid if there is to be a society governed by the rule of law. While we do
B
not intend to fetter the high courts from intervening in appropriate cases,
it is only just and proper to remind the courts to be careful, circumspect
and cautious in quashing first information reports resting on mala fide of
the nature alleged herein.
75. For the foregoing reasons, we have no option but to hold that
there are no cogent grounds for quashing the FIR in the present case C
even on the ground of mala fide.
76. Consequently, we set aside the impugned judgment and order
and direct dismissal of the writ petitions. The appeals are, accordingly,
allowed.
D
77. Interim protection granted earlier shall continue for a period
of three weeks, within which AS and YS may pursue their remedies in
accordance with law.
78. Parties shall bear their own costs.
79. It is, however, clarified that the observations made herein are E
merely for the purpose of disposal of these appeals. Proceedings
hereafter shall be taken to its logical conclusion strictly in accordance
with law.
Divya Pandey Appeals allowed. F
(Assisted by : Roopanshi Virang, LCRA)
G
H
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