Bombay High Court
Anand Gopal Gurve vs State Of Maharashtra on 30 September, 1991
Equivalent citations: 1994(1)BOMCR168, 1992CRILJ3064
JUDGMENT
1. This appeal is directed against the judgment and order dated 14-8-1987 passed by the Special Judge, Wardha, in a Special Case No. 3/77, convicting the appellant/accused along with accused No. 1 Bhaiyaji Bhagwat, for the offence punishable under section 5(1)(c) read with S. 5(2) of the Prevention of Corruption Act and sentencing them to suffer R.I. for one year and to pay a fine of Rs. 10,000/- in default of payment of fine, the appellant shall undergo further R.I. for one year; also convicted along with accused No. 1 for the offence punishable under sections 465 and 471 read with S. 34 of the Indian Penal Code, sentencing him to suffer R.I. for one year.
2. The appellant/accused was charge-sheeted and tried along with two others, viz. Byaiyaji son of Laxman Bhagwat, Divisional Forest Officer, Arvi and Rajeshwar son of Murlidhar Kajale, Range Clerk, Arvi, for the offence punishable under section 5(1)(c) read with S. 5(2) of the Prevention of Corruption Act and under Sections 468, 465 and 471 read with S. 34 of Indian Penal Code.
3. The prosecution case in nutshell is as under :
During the period from 30-12-1965 to 30-12-1966 Shri Bhagwat (Original Accused No. 1) was serving as Range Forest Officer at Arvi Range in Wardha Sub-Division. At the relevant period, this appellant/accused was serving as Range Clerk, so also Shri Kajale was working as Range Clerk in the same office. Shri Bhagwat (Original Accused No. 1) being the Range Forest Officer, he was supervising and executing authority of the construction work and as such he was actually incharge of the work of construction of quarters, anicut, so also additions and improvements to the Rest House. It is alleged that Shri Bhagwat misused his position and pretended to have purchased cement bags from Shri Hansraj Jadhao (P.W. 1) and in connivance with the accused Nos. 2 and 3, prepared false receipts for payment as price of the cement bags alleged to have been supplied by Shri Hansaraj Jadhao. According to the prosecution, Hansaraj Jadhao is not a dealer in cement and at the relevant time it was a controlled commodity. Hansraj has not supplied the cement bags to Range Forest Office. He is dealing in manufacture of bricks. He used to supply the bricks to the Range Forest Office, Arvi. It is further alleged by the prosecution that his signatures were obtained on the blank receipts on the pretext that 31st of March, 1966 being the last day and financial year ending, his signatures were required for the purpose of the regularising the payment of the bricks which were supplied by him to the Range Forest Office. On the basis of these receipts, false vouchers were prepared representing payment of the amount. The amount was debited in the Cash-Book for purchase of 1209 bags of cement, but actually purchase was of 350 bags of cement and 859 bags of cement were also shown to have been purchased though there was no actual purchase of those bags. As such an amount of Rs. 9,449/- is alleged to have been misappropriated by the accused persons in furtherance of their common intention. The cement is shown to have been utilised on 11 different quarters constructed within Arvi Range, but there is no entry of the cement in the stock-register.
4. At the relevant time, Shri Vaidya (D.W. 1) was working as D.F.O., Wardha. Shri Borgaonkar was his successor. On 8th of May, 1966, he made a report (Exh. 147), to the Conservator of Forest about the alleged fake purchase of cement from Hansaraj and misappropriation of the amount. He also made a complaint about inferior quality of the work of the quarters, by his letter dated 7-5-1968. On 17-4-1968, P.W. 3, Conservator of Forest, Shri Jadhao had inspected the construction work at different places. On his instructions, Shri Borgaonkar prepared his detailed report (Exh. 150) and submitted it to his office. The accused No. 1 (Bhagwat) prepared his report and thereby showed that the entire bags of cement were utilised in the construction of the quarters. Search report was submitted to the D.F.O., Wardha, under his letter dated 28-3-1967.
5. As the work was not executed by the officials to the satisfaction or according to the proposed plan as well as there was misappropriation of huge amount, an enquiry was made and to that effect, reports were submitted to the Conservator of Forest. Ultimately, Shri Borgaonkar, D.F.O., Wardha Division, reported the matter to the Police Inspector, Anti-Corruption and Prohibition Intelligence Bureau, Wardha, on 3rd July, 1970, vide Exh. 216. On the basis of this report, the offence was registered vide Exh. 221 against Shri B. L. Bhagwat, Range Forest Officer, Arvi, vide Crime No. 63/70, under sections 409 of the Indian Penal Code and Section 5(1)(c) read with S. 5(2) of the Prevention of Corruption Act, 1947.
6. After completion of the investigation, the I.O. submitted all the papers to the Conservator of Forest, Nagpur Circle, Nagpur. Shri Prabhakar Sathe, the Conservator of Forest, Nagpur Circle, Nagpur (P.W. 14) accorded sanction to prosecute the applicant/accused and another Range Clerk Shri Kajale (who is acquitted by the trial Court) vide Exh. 236 dated 8-8-1977. After completing the investigation, the charge-sheet was filed in the Court of Special Judge, Wardha, who tried all the three accused and convicted the present appellant/accused and Shri Bhagwat, while acquitted Shri Kajale (Original accused No. 3).
7. The appellant/accused denied the charges levelled against him. The appellant/accused admitted the writing on the vouchers Nos. 680, 681, 682, 683, 684, 685, 686, 687, 689, 692, 693, 965, 739 and 751, corresponding exhibits 115 to 128. Similarly, he admitted his handwriting on the cash memos Exhs. 88 to 113. However, question No. 19 and answer given by the appellant/accused, under Section 313, Cr.P.C. are reproduced below :
Question : "It has come in the evidence of P.W. 1 Hansraj that accused No. 2 Gurve had obtained his signatures on the vouchers Exhibits 88 to 113 dated 31-3-66 under the pretext that his signatures were required as there was a March ending. Do you wish to say anything about it ?"
Answer : "Those vouchers were prepared by me under the direction of the Range Officer. Those vouchers were handed over to accused No. 1 for obtaining signatures of Hansaraj."
Thereby, he denied the allegations and the complicity of the offence alleged to have been committed by this appellant/accused along with Shri Bhagwat, the Range Forest Officer.
8. The learned Special Judge, Wardha, framed the charges against this appellant/accused as follows :
"That during the period 30-12-65 and 24-11-66, you accused No. 1, B. L. Bhagwat was serving as a Range Forest Officer, Arvi, you accused No. 2 A. G. Gurve and accused No. 3, R. N. Kajale were serving as the Range Clerks in Forest Range, Arvi and as such were public servants within the meaning of Section 21 of the Indian Penal Code.
Firstly, that you accused Nos. 1 to 3 in furtherance of your common intention in the month of March, 1966 falsely represented purchase of 859 bags of cement and misappropriated the amount of Rs. 9,449/- and thereby committed an offence punishable under Section 5(1)(c) of the Prevention of Corruption Act read with S. 34 of the Indian Penal Code, within the cognizance of this Special Court.
Secondly, that you accused Nos. 1 to 3 in furtherence of your common intention during the above referred period forged the Government record of Forest Range Office, Arvi pretaining to purchase of cement bags and disbursement of the price thereof intending that it shall be used for the purpose of chitting and thereby committed an offence punishable under section 468 read with Section 34 of the Indian Penal Code, within the cognizance of this Special Court :
Thirdly, that you accused Nos. 1 to 3 in furtherance of your common intention in the above said period dishonestly and fraudulently used as genuine certain documents, to wit. The above referred record of the office which you were knowing to be forged document and thereby committed an offence punishable under Sections 465 and 471 read with S. 34 of the Indian Penal Code, within the cognizance of this Special Court;"
9. Shri Prabhakar Sathe, the Conservator of Forest, Nagpur Circle (P.W. 14), accorded the sanction to prosecute this appellant/accused and acquitted accused Shri Kajale, vide sanction order dated 8-8-1977, Exh. 236. The alleged sanction begins with following para :
"WHEREAS during the year 30-12-65 to 24-11-66 Shri B. L. Bhagwat was serving as Range Forest Officer, Arvi and Sarvashri A. G. Gurve, R. N. Kajale were serving as Range Clerk and Forester respectively, and as such, they are the public servants, within the meaning of Section 21 of Indian Penal Code."
The other paras refer to the work entrusted to and executed by Shri Bhagwat. Last paras which speak in respect of the appellant/accused and the acquitted accused Shri Kajale are as follows :
"AND WHEREAS the said Sarvashri A. G. Gurve and R. N. Kajale are removable from their posts by the Conservator of Forests, Nagpur Circle, Nagpur.
Now, therefore, in exercise and for the purpose of the provisions of Section 6(1)(c) of the Prevention of Corruption Act, II of 1947, I, Prabhakar Gangadhar Sathe, Conservator of Forests, Nagpur Circle, Nagpur do hereby accord sanction to the prosecution of Sarvashri A. G. Gurve and R. N. Kajale for the offences constituted by their acts herein abovementioned and punishable under sections 409, 420, 120(B), Indian Penal Code and Section 5(2) read with S. 5(1)(c)(d) of the Prevention of Corruption Act, II of 1947."
10. The perusal of the sanction Exh. 236 accorded by Shri Prabhakar Sathe, Conservator of Forest (P.W. 14), makes it clear that no circumstance enumerated in the sanction describing how the appellant/accused is concerned with the work and misappropriation of stock of cement or with the misappropriation of amount. There is no whisper in this regard. Similarly, there is no whisper that the appellant/accused having hand-in-gloves with Shri B. L. Bhagwat, the Range Forest Officer, committed any offence much less charged against him.
11. In a case Gokulchand Dwarkadas Morarka v. The King , in para 9 of the judgment, Their Lordships observed that "In their Lordships' view, in order to comply with the provisions of Clause 23, it must be proved that the sanction was given in respect of the facts constituting the offence charged. It is plainly desirable that the facts should be referred to on the face of the sanction, but this is not essential, since Clause 23 does not require the sanction to be in any particular form, nor even to be in writing. But if the facts constituting the offence charged are not shown on the face of the sanction, the prosecution must prove by extraneous evidence that those facts were placed before the sanctioning authority. The sanction to prosecute is an important matter; it constitutes a condition precedent to the institution of the prosecution and the Government has an absolute discretion to grant or withhold their sanction."
12. Exh. 221 is the F.I.R. registered by the P.S.I. against Shri B. L. Bhagwat, Range Forest Officer, Arvi, vide Crime No. 63/70 under Section 409 of the Indian Penal Code, under sections 5(2) and 5(1)(c) of the Prevention of Corruption Act, 1947. The basis for registering the offence against Shri Bhagwat, is the report dated 3-7-1970 lodged by Shri P.S. Borgaonkar, D.F.O., Wardha Division. It was prayed in the report that the offence be investigated because there is misappropriation of government amount. In the body of the report, it is specifically mentioned that preliminary enquiry into certain departmental works alleged to have been completed by Shri B. L. Bhagwat in Arvi Range during 1965-66 and he arrived at the conclusion that out of the government funds entrusted to him from time to time, he misappropriated a total sum of Rs. 39,143.40 within a period of 12 months from 30-12-1965 to 24-11-1966 as shown in the enclosed pro forma. It is further stated in the report that Shri P. R. Vaidya, D.F.O. Wardha, facilitated Shri B. L. Bhagwat in misappropriating the aforesaid amount by willfully neglecting to control the expenditure.
13. It is pertinent to note that in the F.I.R. lodged by the Police, there is no whisper against the appellant/accused that he either is responsible for misappropriation of government amount, or committed any offence in furtherence of the common intention with Shri Bhagwat.
14. Prior to the lodging of the report to the Police, there was a departmental enquiry in respect of the purchase of the cement bags from Shri Hansraj and regarding misappropriation of the government amount. Some letters will throw light on this aspect and to show whether at any time a finger of accusation was pointed out towards the applicant/accused or not :
(1) Confidential letter dated 8th May, 1968 written by D.F.O., Wardha to the Conservation of Forest, Nagpur Circle, Nagpur. The subject of the letter is "Fradulent purchase of cement - Arvi Range". It is Exh. 147. In this letter Shri Bhagwat, R.F.O., Arvi, was suspected as responsible for purchase of large quantity of cement from Shri Hansraj who was not a cement stockist or dealer.
(2) A report dated 8-5-1968 of Shri Dixit, R.F.O. was also obtained in this connection.
(3) Exh. 148 is another confidential letter dated 7-5-1968, sent to Conservator of Forest, Nagpur Circle, Nagpur, which speaks about the unsatisfactory construction of Foresters' and Guards' Quarters. In this letter it is specifically mentioned that the material used in the construction is of sub-standard, so also the plans and estimates were not followed. The quality of the work is poor in most of the cases and, therefore, it was recommended that the excess amount may be recovered from the officers concerned. No sanction was obtained for the excess expenditure. It is also brought to the notice of the Conservator of Forest by this letter that no proper accounts of cement is maintained by the R.F.Os. especially by Shri Bhagwat, R.F.O., Arvi. He has either grabbed government money shown as expenditure on purchase of cement or stolen the cement itself. Therefore, the D.F.O. recommended criminal investigation.
(4) Exh. 149 is a confidential communication sent by the registered post A.D. on 4th January, 1969 by D.F.O. Wardha, to the Conservator of Forest, Nagpur Circle, Nagpur. Along with this letter a detailed report in respect of the various cases of fraud, misappropriation of government money, disobedience of order, slackness in inspection of work, etc. by Shri B. L. Bhagwat, Ex-R.F.O., Arvi, was sent for favour of perusal and necessary action.
(5) Exh. 151 is against a letter dated 9-5-1968 sent by D.F.O., Wardha to the Conservator of Forest, Nagpur Circle, Nagpur, regarding timber extracted for building 1965-66, Arvi Range. By this letter, it has been brought to the notice of Conservator of Forest that during the course of enquiry into the malpractise by Shri Bhagwat, Ex-Range Forest Officer, Arvi, it is seen that he had brought large quantity of teak timber from the forest in excess of actual requirements. The details are given in the enclosed report. It being a serious matter, an action deemed fit may kindly be taken against the defaulters.
(6) Exh. 152 is again a confidential letter dated 8-5-1968 from D.F.O., Wardha to Conservator of Forest, Nagpur Circle, Nagpur about fraudulent purchase of cement, Arvi Range. The opening words of this letter are that" It was brought to my notice by R.F.O., Arvi that he suspected fraud in purchase of cement by previous R.F.O., Arvi Shri Bhagwat during March, 1966."
(7) Exh. 153 is a letter dated 8-5-1968 from D.F.O., Wardha to Conservator of Forest, Nagpur Circle, Nagpur, which speaks that during the investigation of Panjra Rest House in arvi Range, it was revealed that Septic Latrines were not fixed there. On enquiry, it was revealed that thought the material was purchased for this work by Shri Bhagwat, Ex-R.F.O., Arvi, he did not actually fix the same. Shri Bhagwat had debited Rs. 150/- in his cash-book during March, 1966 for doing the works of fitting the Septic tank etc. Therefore, the voucher is false. Action may be taken to recover the amount of Rs. 150/- from Shri Bhagwat Ex.-R.F.O., Arvi. The extract of cash-book was enclosed with this letter.
(8) Exh. 168 is the memo dated 25-6-1968 issued by Shri Jadhao, Conservator of Forest, Nagpur Circle, Nagpur, to Shri B. L. Bhagwat, the then R.F.O., Arvi, alleging corrupt practices against him while executing the work entrusted to him.
15. The perusal of all the above documents on which the prosecution relies, shows that no allegations have been made against the appellant/accused show that he too either himself or having hand in gloves with Shri Bhagwat, R.F.O. Arvi, involved in corrupt practices and thereby misappropriated government amount. Besides these papers, I do not find any other document which was sent to Shri Sathe, Conservator of Forest, for grant of sanction to prosecute against the appellant/accused and Shri Kajale. Shri Sathe (P.W. 14) deposed that the investigating authority had sent papers to him in sealed condition. He had gone through those papers. As he was satisfied, he accorded sanction for the prosecution. However, there is no whisper in his evidence to show that on perusal of which specific document, he arrived at the conclusion that the appellant/accused had committed the offence under Section 409, 420, 420(b) of the Indian Penal Code and Section 5(2) read with S. 5(1)(c)(d) of the Prevention of Corruption Act.
16. Section 409 of the Indian Penal Code is regarding the criminal breach of trust by the public servant. In the instant case neither the prosecution placed on record any document nor led evidence to show that the appellant/accused was entrusted with any work or money and he committed the criminal breach of trust. Therefore, the provisions of Section 409, I.P.C. are not attracted at all.
17. Section 420 speaks that "Whoever cheats and thereby dishonestly induces the person deceived to deliver any property to any person or to make, alter or destroy the whole or any part of a valuable security, or anything which is signed or sealed, and which is capable of being converted into a valuable security, shall be punished with imprisonment of either description for a term which may extend to seven years, and shall also be liable to fine."
Again the prosecution has utterly failed to lead any evidence that the appellant/accused dishonestly induced any person to deliver any property. Similarly there is no whisper either the documents relied by the prosecution, or in the evidence led by the prosecution, that the appellant/accused was a party to the conspiracy to commit any offence much less charged against the appellant/accused.
18. Section 5(1)(c) and (d) read as under :
"A public servant is said to commit the offence of criminal misconduct, -
(c) if he dishonestly or fraudulently misappropriates or otherwise converts for his own use any property entrusted to him or under his control as a public servant or allows any other person so to do; or
(d) if he, -
(i) by corrupt or illegal means, obtains for himself or for any other person any valuable thing or pecuniary advantage; or
(ii) by abusing his position as a public servant, obtains for himself or for any other person any valuable thing or pecuniary advantage; or
(iii) while holding office as a public servant, obtains for any person any valuable thing or pecuniary advantage without any public interest;"
Again the prosecution utterly failed to satisfy the ingredients of S. 5(1)(c) and (d), as there is no evidence at all to show that the appellant/accused dishonestly or fraudulently misappropriated or otherwise converted for his own use any property entrusted to him. In fact, the appellant/accused at the relevant time was working as a Range Clerk attached to the office he was not entrusted with any work except to do the clerical work.
19. In spite of this I fail to understand how Shri Sathe, the Conservator of Forest (P.W. 14) has accorded sanction for the prosecution of the appellant/accused without any material whatsoever was placed before him. Thus, the sanction Exh. 296 is ipso facto illegal.
20. It is observed in a case of Biswabhusan Naik v. The State of Orissa, "It is not necessary for the sanction under the Prevention of Corruption Act to be in any particular form, or in writing or for it to set out the facts in respect of which it is given. The desirability of such a course is obvious because when the facts are not set out in the sanction proof has to be given aliunde that sanction was given in respect of the facts constituting the offence charged, but an omission to do so is not fatal so long as the facts can be and are, proved in some other way."
In the case before me, the facts are not set out to accord the sanction to prosecute the appellant/accused. Similarly, the prosecution utterly failed to prove, by placing any document or leading any evidence against the appellant/accused, that he committed offence punishable under sections 409, 420, 120-B of the Indian Penal Code and also under sections 5(1)(c)(d) read with S. 5(2) of the Prevention of Corruption Act.
21. In a case of Madan Mohan Singh v. State of Uttar Pradesh, , Their Lordships observed that "Sanction under section 6(1)(c) of Prevention of Corruption Act facts on which proposed prosecution is based must be proved to have been put before the Sanctioning authority.
The burden of proving that the requisite sanction has been obtained rests on the prosecution and such burden includes proof that the Sanctioning Authority had given the sanction in reference to the facts on which the proposed prosecution was to be based; and these facts may appear on the face of the sanction or may be proved by extraneous evidence. Where the facts constituting the offence do not appear on the face of the letter sanctioning prosecution, it is incumbent upon the prosecution to prove by other evidence that the material facts constituting the offence were placed before the sanctioning authority. Where this is not done, the sanction must be held to be defective and an invalid sanction cannot confer jurisdiction upon the Court to try the case."
22. In a case of Mohd. Iqbal Ahmed v. State of Andhra Pradesh, , Their Lordships held that (para 3) "The grant of sanction is not an idle formality or an acrimonious exercise but a solemn and sacrosanct act which affords protection to Government servants against frivolous prosecutions and must therefore be strictly complied with before any prosecution can be launched against the public servant concerned."
Their Lordships therefore, observed that (para 3) "It is incumbent on the prosecution to prove that a valid sanction has been granted by the Sanctioning Authority after it was satisfied that a case for sanction has been made out constituting the offence. This should be done in two ways; either (1) by producing the original sanction which itself contains the facts constituting the offence and the grounds of satisfaction, and (2) by adducing evidence aliunde to show the facts placed before the Sanctioning Authority and the satisfaction arrived at by it. Any case instituted without a proper sanction must fail because this being a manifest defect in the prosecution, the entire proceedings are rendered void ab initio. What the Court has to see is whether or not the Sanctioning Authority at the time of giving sanction was aware of the facts constituting the offence and applied its mind for the same; any subsequent fact which may come into existence after the grant of sanction is wholly irrelevant."
23. In a case of Raghubir Singh v. State of Haryana, , Their Lordships observed that "While it is true that provision for sanction before prosecution of a public servant should not be an umbrella for protection of corrupt officers but a shield against reckless or malevolent harassment of officials whose upright discharge of duties may provoke unpleasantness and hostility, that is an area of law reform covered, we find, by the 47th Report of the Law Commission of India."
24. In a case of Bihari Lal Gupta v. State of Himachal Pradesh, (1985) 1 Cri LC 105 : (1984 Cri LJ 1809) (Him Pra) a sanction was accorded under section 6 of the Prevention of Corruption Act, 1947, to prosecute an accounts clerk, who dishonestly and fraudulently misappropriated T.A. bills. The so-called sanction order exh. PW 12 does not show as to on what material the Sanctioning Authority satisfied itself that a case for sanction was made out and independent of the sanction order no other evidence has been adduced to prove this fact. Therefore, the sanction order was held bad in law.
25. Similarly, in the case in hand, there is no evidence to show what material was placed before Shri Sathe, Conservator of Forest, and there is also no evidence to show that what material has been considered by Shri Sathe while granting sanction for prosecution of the appellant/accused. Therefore, the alleged sanction Exh. 236 is bad in law. The prosecution of the appellant/accused, therefore, being without a valid sanction, without compliance of the Section 6 of the Act, the entire trial including the conviction and sentence recorded against him, is void ab initio.
26. It needs mention that though the sanction for prosecution was accorded by Shri Sathe, Conservator of Forest (P.W. 14), to prosecute the appellant/accused for the offence punishable under Sections 409, 420, 120(b) of the Indian Penal Code and under Section 5(1)(c)(d) read with Section 5(2) of the Prevention of Corruption Act, the learned trial Court has framed the charges under Section 468 read with S. 34, 465 and 471 read with S. 34 of the Indian Penal Code, and also under S. 5(1)(c) read with S. 5(2) of the Prevention of Corruption Act. It is thus crystal clear that no sanction was accorded by appointing and dismissing authority, i.e. Shri Sathe, the Conservator of Forest, under Section 468, 465 and 471. Therefore, the trial under these sections is ab initio illegal.
27. Shri Paranjape, the learned P.P. and Shri Rao, the learned counsel for the appellant/accused, took me through the evidence and the findings of the learned Trial Court. I do not find any evidence against the appellant/accused to connect him with the illegal or corrupt activities of Shri Bhagwat the R.F.O., Arvi, except some handwriting on the vouchers Exhs. 115 to 128 and the cash memos Exhs. 88 to 113, which is admittedly of the appellant/accused. There is no dispute that the appellant/accused was working as clerk in the office of R.F.O., Arvi Range, district Wardha. Vouchers Exhs. 115 to 128 are signed by Shri Bhagwat, the Range Forest Officer, as well as by the D.F.O., Wardha Division. The cash memos regarding the payment received by Hansraj, bears his signatures on revenue stamp of 10 paise. Besides this, there is no evidence led by the prosecution that the appellant/accused either used the cement purchased by Shri Bhagwat from Shri Hansraj (P.W. 1), or any amount was misappropriated by the appellant/accused. The appellant/accused very frankly admitted the writing on these documents and specifically replied to the question 19 that he prepared those documents as he was directed by the Range Forest Office, and after preparing those vouchers, they were handed over to accused No. 1 Shri Bhagwat for obtaining signatures of Hansraj. Therefore, considering the prosecution evidence according to me, the prosecution utterly failed to prove the charges levelled against him. Thus, the appeal is allowed and the accused is acquitted. The bail bonds stands cancelled. If the accused has paid any fine, the same be refunded to him.
28. Appeal allowed.