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GOVERNMENT OF RAJASTHANHome (Group-to) Department

F.11(35)Home-10/2015... /-/ Dated: 24-08-2015

Circular

Sub: Conducting investigations against public servants withreference to Sections 154, 155 & 156 Cr.P.c. read withSection 197 Cr.P.c. and Section 19 P.c. Act.

Ref: Supreme Court Orders(i) Cr. Appeal No.1590-1591/2013 - Anil Kumar & Ors. VS.

M.K. Aiyappa & Another - Order dated 01.10.2013(ii) Writ Petition (Criminal) 68/2008 & Crl. M.P.

No.5029/2014 - Lalita Kurnari vs. Govt. of UP & Ors.Rajasthan High Court Orders

(iii) 5.8. Crirninal Mise. Petition f\Jo.4705/2013 - State of

Rajasthan vs. Special Judge ACD & Others - Judgmentdated 12.12.2014

(iv) O.B. Criminal Contempt Petition No.2/2014 - State ofRajasthan vs. Shri Ajeet Singh order dated 09.02.2015.

In the light of the letter and spirit of the captioned judgments/orders,the position that emerges as regards the procedure that should be adopted incarrying out investigations against a public servant accused of "any offencealleged to have been committed by him while acting or purporting to act inthe discharge of his official duty", (section 197 Cr.P.c. refers), is as follows:-

(i) In the case of Anil Kumar & Anr. vs. M. K. Aiyappa & Anr. the SupremeCourt has observed that the "question of sanction is of paramountimportance for protecting a public servant who has acted in good

faith while performing his duty. In order that a public servant maynot be unnecessarily harassed on a complaint of an unscrupulousperson, it is obligatory on the part of the executive authority to

protect him....... If the law requires sanction and the court proceeds

against a public servant without sanction, the public servant has aright to raise the issue of jurisdiction as the entire action may berendered void ab-initio."

In this order the Supreme Court has further held that lithe .SpeclalJudge could not have/taken notice of a private complaint unless thesame was accompanied by a sanctioned order, (under 19 PCAct in thisparticular case), irrespective of whether the court was acting at a pre-cognizance stage or the post-cognizance stage, if the complaintpertains to a public servant who is alleged to have committedoffences in discharge of his official duties:'

(ii) In the case of Lalita Kumari vs. Government of UP & others, theSupreme Court has observed that while the registration of an FIR ismandatory under Section 154 of the Code if the information disclosescommission of a cognizable offence and no preliminary enquiry ispermissible in such a situation, on the other hand, "if the informationreceived does not disclose a cognizable offence but indicates thenecessity for an inquiry, a preliminary inquiry may be conducted onlyto ascertain whether cognizable offence is disclosed or not." Theorder goes on to emphasise anci categorise cases where suchpreliminary inquiries are to be conducted depending "on the facts &circumstances of each case" and lists these as under:-

(a) Matrimonial disputes/ family disputes

(b) Commercial offences

(c) Medical negligence cases

(d) Corruption cases

(e) Caseswhere there is abnormal delay/laches in initiating criminalprosecution, for example, over 3 months delay in reporting thematter without satisfactorily explaining the reasons for delay.

Thereafter the order adds an important proviso by stating that "theaforesaid are only illustrations and not exhaustive of all conditionswhich may warrant preliminary inquiry."

In the same case, in amendment of its 2013 order, the Supreme Courthas further directed on March 05, 2014 that this preliminary enquiry may beconducted as follows:-

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"While ensuring and protecting the rights of the accused and the

complainant, a preliminary inquiry should be made time bound and inany case it should not exceed fifteen days generally and in

exceptional cases, by giving adequate reasons, six weeks time isprovided. The fact /of such delay and the causes of it rnust bereflected in the Gen~ral Diary entry."

Thus the general principle of conducting such an enquiry in casesinvolving public servants where the action in question has been taken in the

course of official duties or purportedly in the course of official duties has nowbeen well established in law.

Given the above position and with a view to ensuring a uniform andcomprehensive compliance of the abovementioned Supreme Court directives,the following procedure is prescribed in dealing with such matters:-

(i) Before proceeding with registering a case for investigation underSection 156 CrPC, a preliminary inquiry of the kind directed by theSupreme Court in the aforementioned cases must invariably be carriedout by the officer-incharge of the police station concerned. Care mustbe taken to see that the preliminary inquiry in question has beenconducted in keeping with the principles of natural justice and that, inparticular, unless there are specific reasons for not doing so, (which areto be recorded in writing), the public servant(s) should be afforded anopportunity to offer any comments or clarifications if she/he wishes todo so in this regard. In particular, the pubic servant should be given anopportunity to declare whether the alleged act in question (a) was orwas not committed and (b) and if committed, was or was not "in thedischarge of his official duty." The conclusions of this preliminaryinquiry, viz. where a cognizable offence is made out in substantivemeasure or not, should be clearly placed on record by way of aspeaking order and only thereafter should action be taken as per theconclusions of that order.

(ii) The aforementioned process of conducting a preliminary inquiry shouldinvariably be resorted to even where the case has been referred to theofficer-incharge of the police station under section 156(3) Cr.P.c.. In

this connection, reference is invited to Rajasthan High Court's ordersdated 12.12.2014 in S.B. Criminal Mise. Petition No.4705/2013 - State

of Rajasthan vs. Special Judge ACD & Others and orders dated

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jl! (b)

09.02.2015 passed in D.S. Criminal Contempt Petition No.2/2014 -State of Rajasthan vs. Shri Ajeet Singh in which it has been held thatwhile a "Magistrate in view of section 5 of the Prevention ofCorruption Act, quoted above can direct the police to investigate thematter under section 156 (3) Cr.P.c.II •••••• "after receiving. such

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directions, the polite will conduct the preliminary enquiry. 'In suchcircumstances, the police may register the FIR if cognizable offence ismade out and if such cognizable offence is not mace out in 'thepreliminary enquiry which is conducted by the police, then the policewill submit the report before the concerned Magistrate."

Where as per this procedure, when an FIR is registered for an allegedcognizable offence it is the duty of the officer-incharge of the policestation to explicitly report to the court on the following:-

(i) That the accused is a public servant

(ii) Whether the public servant/ accused has averred that thealleged act(s) were committed "in the discharge of his official duty" ornot

Where a report is being made of a non-cognizable offence allegedlycommitted by the public servant, such report is invariably to be submittedthrough the prosecuting officei' of the concerned court.

As far as prosecuting officers are concerned, compliance may beensured of the following:-

(a) Where a non-cognizable offence is made out against a public servant-In such cases, after receiving the report of the officer-incharge of apolice station, the prosecuting officer shall emphasise to the court thatthe accused is a public servant who has/ has not purportedly acted inthe discharge of his official duties and therefore, where required, asper the judgment in the case of Anil Kumar vis. M. K. Aiyappa, nocognizance should be taken until and unless requisite sanction undersection 197 Cr.P.c. or section 19 PCAct is available on record.

Where no offence is made out - Here too, the prosecuting officershould bring to the notice of the court that the complaint was against apublic servant and that s/he has/has not purportedly acted in thedischarge of his official duties,

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Where the prosecuting officer finds that the court has taken cognizance. in a case against a public servant for an act allegedly committed orpurportedly committed by the public servant in the discharge of his officiaiduties and that no sanction under Section 197 Cr.P.C./19 PCAct is on recordfor the same, he shall immediately make a report of this to the DistrictMagistrate who shall, after verifying the position, as soon as may be, move

/ /

the matter to the State Government for withdrawal of prosecution underSection 321 Cr.P.c. '

~ . /OSJI5'~~ ~tr(A. Mukhopadhaya)

Additional Chief Secretary, Home

Copy to the following for necessary actior.:-l.

2.3.4.5.6.7.8.9.10.ll.12.

Secretary to Hon'ble Chief Minister, CM Office, Jaipur.050 to Hon'ble Home Minister, Rajasthan, Jaipur.PS to Chief Secretary, Rajasthan.PSto Secretary, DOP, Secretariat, Jaipur.PSto Secretary Home, Secretariat, Jaipur.PS to DGP, Rajasthan, Jaipur.PSto ADG,Crinw, R.ajasthan. Jaipur.Director, Prosecution. Jaipur.Police Commissioner, Jaipur/Jodhpur.All District Magistrate.All SP's, SP Office, Rajasthan.Guard File.

~. ~-Special Secretary, Home

5

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