R.M. TEWARI, ADVOCATE ETC. ETC. v. STATE (NCT OF DELHI) ORS ETC. ETC. FEBRUARY 20, 1996 [J.S. VERMA AND K. VENKATASWAMI, .TJ.) Te1Tolist and Disntptive Activities (Prevention) Act, 1987: Ss.9, 14-Withdrawal from prosecution-Public Prosecutor filing ap- C plications for-Factors to be taken into consideration-Explained. Code of Oiminal Procedure, 1973:
S.321-Withdrawal from Prosecution-Duty of Public Prosecutor and factors to be taken into consideration by courts-Explained. In Kartar Singh's case* this Court noticed that there had been some misuse of the provisions of the Terrorist and Disruptive Activities (Preven- tion) Act 1987 and felt that there ought to be a screening committee/Review Committee at the Central as well as at the State level, to review all the prosecutions under the Act. Accordingiy, like other States, the Government of Delhi also constituted a high power Screening Committee/Review Com- mittee which reviewed the cases registered under the Act and recom- mended for deletion of charges under the Act in specified criminal cases pending before the Designated Court. The State Government conveyed its approval to the Director of Prosecution. Accordingly, the Public Prosecutor filed applications before the Designated Court for withdrawal of charges under the Act in all the specified cases. The Designated Court rejected the applications. Aggrieved, the Government of Delhi filed the present appeals. A writ petition was also filed in public interest for a direction to the Designated Court to permit withdrawal of all the cases recommended by the Review Committee.
Disposing of the matters, this Court. HELD : 1.1. The Designated Court was right in taking the view that Vl'i~hdrawal from prQsecution is not to be permitted mechanically by the court on an application for that purpose made by the Public prosecutor. H The Public Prosecutor did not fully appreciate the requirements of Sec- a
R.M. TEWARiv. STATE tions 321 Cr. P.C. and made the applications for withdrawdl from prosecu- tion only on the basis of the recommendations of the Review Committee. [903-G; 904-B]
1.2. The Public Prosecutor has not to act mechanically in the dis- charge of his statutory function under Section 321 Cr. P.C. on a recommen- dation being made by the Review Committee. He has to satisfy himself in B each case that the case is fit for withdrawal from prosecution in accordance with the settled principles indicated in the decisions of this Court and then to satisfy the Designated Court of the existence of a ground which permits withdrawal from prosecution under s.321, Cr. P.C. [903-H; 904-A, C] *Kartar Singh Etc. v. State of Punjab Etc., [1994] 3 SCC 596; State of C 01issa v. Chand1ika Mahapatra and Others, [1976] 4 SCC 250 and Sheonan- dan Paswan v. State of Bihar & Others, [1983] 2 SCR 61, relied on. 2.1. In Kartar Singh, it was observed that a review of the cases should be made by a High Power Committee to ensure that there was no misuse of D the stringent provisions of the TADA Act and any case in which resort to the TADA Act was found to be unwarranted, the necessary remedial measures should be taken. The Review Committee is expected to perform its functions in this manner. If the recommendation of the Review Committee, based on the material present, is that resort to provisions of the TADA Act is unwar- ranted fur any reason which permits withdrawal from prosecution for those offences, a suitable application made under Section 321 Cr. P.C. on that ground has to be considered and decided by the Designated Court giving due weight to the opinion formed by the Public Prosecutor on the basis of the recommendation of the High Power Committee. [904-E-G]
K01tar Singh Etc. v. State of Punjab Etc., [1994] 3 SCC 569, explained. 2.2. An application made to withdraw the charges of offences under the TADA Act pursuant to review of a case by the Review Committee has to be considered and decided by the Designated Courts, keeping in mind that the initial invocation of the stringent provisions of the TADA Act is G itself subject to sanction of the Government and, therefore, the revised opinion of the Government formed oil the basis of the recommendation of the High Power Committee after scrutiny of each case should not be lightly disregarded by the court except for weighty reasons such as malafides or manifest arbitrariness. The worth of the material to support the charge H SUPREME COURTREPORTS
under the TADA Act and the evidence which can be produced, is likely to be known to the prosecuting agency and, therefore, mere existence of prima f acie material to support the framing of the charge should not by itself be treated as suflicient to refuse the consent for withdrawal from prosecution. [905-D; 904-H; 905-A-B]
3. The applications made under Section 321 Cr.P.C. not having been decided on the basis indicated above, it would be open to the Public Prosecutor to make fresh applications pursuant to the recommendations of the Reviews Committee or the revised opinion of the Government and the same would be considered and decided by the Designated Courts in C light of the observations made above. [905-C}
CRIMINAL ORIGINAL JURISDICTION/CRIMINAL APPEL- LATE JURISDICTION : Writ Petition (Crl.) No. 19 of 1995. (Under Article 32 of the Constitution of India.) AND Criminal Appeal No. 250 of 1996 Etc.
From the Judgment and Order dated 12.12.94 of the Designated Court-II (TADA) Delhi, in Misc. Application No. Nil/94. K.T.S. Tulsi, Additional Solicitor General, Ram Jethmalani, Ram Tiwari, Ravinder Kumar, R.S. Sodhi, (Indeevar Goodwill) (NP) B.K. Prasad, Ashok Bhan, Girish Chandra S.N. Terdol and T.C. Sharma for the appearing parties.
The Judgment of the Court was delivered by J.S. VERMA, J. Leave granted in special leave petitions. In Kartar Singh Etc. v. State of Punjab Etc., [1994] 3 SCC 569, the Constitution Bench while upholding the constitutional validity of the G provisions in the Terrorist and Disruptive Activities (Prevention) Act, 1987 (for short "the TADA Act") except Section 22 therein, noticed the general perception that there was some misuse of the stringent provisions by the authorities concerned. To prevent any possible misuse of the stringent provisions, the Constitution Bench suggested a strict review of these cases H in its observations made as under :
R.M. TEWARiv. STATE [J.S. VERMA, J.] "In order to ensure higher level of scrutiny and applicability of A TADA Act, there must be a screening Committee or a Review Committee constituted by the Central Government consisting of the Home Secretary, Law Secretary and other secretaries con- cerned of the various Departments to review all the TADA cases instituted by the Central Government as well as to have a quarterly B administrative review, reviewing the State's action in the applica- tion of the TADA provisions in the respective States, and the incidental questions arising in relation thereto. Similarly, there must be a Screening or review Committee at the state level con- stituted by the respective States consisting of the Chief Secretary, Home Secretary, Law Secretary, Director General of Police (Law C and Order) and other officials as the respective Government may think it fit, to review the action of the enforcing authorities under the Act and screen the cases registered under the provisions of the Act and decide the further course of action in every matter and so on."
(at page 683) It appears that in compliance with the above observations of this Court in Kmtar Singh (supra), a Screening C01;nmittee or a Review Com- mittee was constituted by the Government in several States including Delhi. E A High Power Committee under the Chairmanship of the Chief Secretary of Delhi reviewed the prosecutions made under the TADA Act and the Government of Delhi conveyed its approval to the Director of Prosecution, Delhi for deletion of the charges under the TADA Act in the specified criminal cases pending before the Designated Court. The learned Special F Additional Public Prosecutor filed applications in the Designated Court for withdrawal of charges under the TADA Act in all those cases pending in the Designated Court. It appears that the only reason assigned for withdrawal of charges under the TADA Act by the learned Public prosecutor was the recommendation of the High Power Committee which was constituted to review the cases in accordance with the observations of G this Court in Kartar Singh. The Designated Court has dismissed those applications taking the view that administrative decisions cannot interfere with the working of the judicial system. Apparently, the view taken is that a mere administrative decision taken on the basis of the recommendation of the Review Committee is not sufficient to permit withdrawal of a H criminal prosecution pending in a court of law.
c The appeals by special leave challenge the orders of the Designated Court and the writ petition by an advocate, in public interest, is for a direction to the Designated Court to permit withdrawal of all prosecutious recommended by the Review Committee.
The scope of Section _321 of Code of Criminal Procedure, 1973(Cr.P.C.) dealing with withdrawal from prosecution is settled by decisions of this Court. In State of Olissa v. Chand1ika Mahapatra and Others, [1976] 4 SCC 250, the scope was indicated as under : "Now the law as to when consent to withdrawal of Prosecution should be accorded under Section 494 of the Code of Criminal Procedure is well settled as a result of several decisions of this Court. The first case in which this question came up for considera- tion was State of Bihar v. Ram Naresh Pandey, (1957] SCR 279 ……. . It was pointed out by this Court in that case that in granting consent to withdrawal from prosecution· the court undoubtedly exercises judicial discretion, but it does not follow that the discretion is to be exercised only with reference to material gathered by the judicial method ………. "
(at page 252) "It will, therefore, be seen that it is not sufficient for the Public Prosecutor merely to say that it is not expedient to proceed with the prosecution. He has to make out some ground which would show that the prosecution is sought to be withdrawn because inter alia the prosecution may not be able to produce sufficient evidence to sustain the charge or that the prosecution does not appear to be well-founded or that there are other circumstances which clear- ly show that the object of administration of justice would not be advanced or furthered by going on with the prosecution. The ultimate guiding consideration must always be the interest of administration of justice and that is the touchstont: on which the question must be determined whether the prosecution should be allowed to be withdrawn."
(at page 253) R.M. TEWARlv. STATE [J.S. VERMA,J.) In Sheonandan Paswan v. State of Bihar & Others, [1983] 2 SCR 61, it was A reiterated as under : "From the aforesaid enunciation of the legal position governing the proper exercise of the power contained in s.321, three or four things become amply clear. In the first place though it is an executive function of the Public Prosecutor for which statutory B discretion is vested in him, the discretion is neither absolute nor unreviewable but it is subject to the Court's supervisory function. In fact being an executive function it would be subject to a judicial review on certain limited grounds like any other executive action, the authority with whom the discretion is vested "must genuinely C address itself to the matter before it, must not act under the dictates of another body must not do what it has been forbidden to do, must act in good faith, must have regard to all relevant considerations and must not be swayed by irrelevant considera- tions, must not seek to promote purposes alien to the letter or to the spirit of the legislation that gives it power to act and not must D act arbitrarily or capriciously … These several principles can con- veniently be grouped in two main categories : failure to exercise a discretion, and excess or abuse of discretionary poser. The two classes are not, however, mutually exclusive." (vide de Smith's judicial Review of Administrative Action 4th Edition pp. 285-86.)" E (at pages 81-82)
"Fourthly, the decision in R.K Jain's case (supra) clearly shows that when paucity of evidence or lack of prospect of successful prosecution is the ground for withdrawal the court has not merely F the power but a duty to examine the material on record without which the validity and propriety of such ground cannot be deter- mined ………. "
(at page 83) . G It is, therefore, clear that the Designated Court was right in taking the view that withdrawal from prosecution is not to be permitted mechani- cally by the court on an application for that purpose made by the Public Prosecutor. It is equally clear that the Public Prosecutor also has not to act mechanically in the discharge of his statutory function under Section 321 H A Cr. P.C. on such a recommendation being made by the Review Committee; and that it is the duty of the Public Prosecutor to satisfy himself that it is a fit case for withdrawal from prosecution before he seeks the consent of the court for that purpose.
It appears that in these matters, the Public Prosecutor did not fully B appreciate the requirements of Section 321 Cr. P.C. and made the applica- tions for withdrawal from prosecution only on the basis of the recommen- dations of the Review Committee. It was necessary for the Public Prosecutor to satisfy himself in each case that the case is fit for withdrawal from prosecution in accordance with the settled principles indicated in the C decisions of this Court and then to satisfy the Designated Court of the existence of a ground which permits withdrawal from prosecution under Section 321 Cr. P.C.
It would now be open to the Public Prosecutor to apply for withdrawal from prosecution under Section 321 Cr.P.C. in accordance with D law on any ground available according to the settled principles; and on such an application being made, the Designated Court would decide the same in accordance with law.
The observations in Kmtar Singh have to be understood in the context E in which they were made. It was observed that a review of the cases should be made by a High Power Committee to ensure that .there was no misuse of the stringent provisions of the TADA Act and any case in which resort · to the TADA Act was found to be unwarra.llted, the necessary remedial measures should be taken. The Revi~w Committee· is expected to perform its functions in this manner. If the recommendation of the Review Com- p
mittee, based on. the material present, is, that r~sort to provisions of the TADA Act is unwarranted for any reason which permits withdrawal from prosecution for those offences, a suitable application made under Section 321 Cr.P.C. on that ground has to be considered and decided by the Designated Court giving due weight to the opinion formed by the Public G Prosecutor on the basis of the recommendation of the High Power Com- mittee.
It has also to be borne in mind that the initial invocation of the stringent provisions of the TADA Act is itself subject to sanction of the Government and, therefore, the revised opinion of the Government formed H on the basis of the recommendation of the High Power Committee after R.M. TEWARlv. STATE [J.S. VERMA, J.]
scrutiny of each case should not be lightly disregarded by the court except A for weighty reasons such as malafides or manifest arbitrariness. The worth of the material to support the charge under the TADA Act and the evidence which can be produced, is likely to be known to the prosecuting agency and, therefore, mere existence of prima facie material to support the framing of the Charge should not by itself be treated as sufficient to refuse the consent for withdrawal from prosecution. It is in this manner an B application made to withdraw the charges of offences under the TADA Act pursuant to review of a case by the Review Committee has to be considered and decided by the Designated Courts.
The applications made under Section 321 Cr. P.C. not having been C decided on the basis indicated above, fresh applications made in all such cases pursuant to the recommendations of the Review Committee or the revised opinion of the Government have to be considered and decided by the Designated Courts in the manner indicated above.
By an order dated 4.5.1995 made by this Court in these matters, it D was directed that the Designated Court would consider the bail applica- tions of all accused persons in respect of whom a prayer had heen made for withdrawal of charges framed under the provisions of the TADA Act on merits in accordance with law, after excluding from consideration the accusation relating to charges under the provisions of the TADA Act. The E hail granted to all such accused persons pursuant to that order would continue till conclusion of the trial in each case.
The writ petition and the appeals are disposed of accordingly. R.P. Petition and appeals di~posed of.