Page 1 REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL ORIGINAL JURISDICTION

IA NO. OF 2012

IN

WRIT PETITION (CIVIL) NO. 562 OF 2009

Samaj Parivartan Samudaya & Ors. … Petitioners

Versus

State of Karnataka& Ors. … Respondents

O R D E R

Swatanter Kumar, J .

1.By this order we will deal with and dispose of, the

recommendations made by the Central Empowered Committee

(for short, ‘CEC’) in its report dated 20

th

April, 2012. Since we

have heard the affected parties, the petitioners and the learned

Amicus Curiae, we shall summarize the contentions of the

1

Page 2 learned counsel for the respective parties. The learned counsel

appearing for the affected parties contended:

a.CEC has submitted its report without providing them an

opportunity of being heard.

b.CEC has exceeded its jurisdiction and enlarged the scope of

the enquiry beyond the reference made by the Court. Thus,

the Court should not accept any of the recommendations made

by the CEC.

c.In relation to the alleged irregularities and illegalities pointed

out in the report of the CEC, even where criminality is involved

or criminal offences are suspected, the matters are sub judice

before the Court of competent jurisdiction. Thus, this Court

should not pass any orders for transferring the investigation of

such offences to the Central Bureau of Investigation (for short

‘CBI’) as it would seriously prejudice their interests.

2.In order to deal with these contentions, it is necessary for

this Court to briefly refer to the background of these cases, which

has resulted in the filing of the unnumbered IA in Writ Petition

No. 562/2009 and the peculiar facts and circumstances in which

the CEC has made its recommendations.

2

Page 3 3.Concerned with the rampant pilferage and illegal extraction

of natural wealth and resources, particularly iron ore, and the

environmental degradation and disaster that may result from

unchecked intrusion into the forest areas, this Court felt

compelled to intervene. Vide its order dated 9

th

September, 2002

in T.N. Godavarman Thirumalpad v. Union of India & Ors. [W.P.(C)

No. 202 of 1995], this Court constituted the CEC to examine and

monitor the various activities infringing the laws protecting the

environment and also the preventive or punitive steps that may

be required to be taken to protect the environment. In addition

to this general concern for the environment, the order of this

Court dated 9

th

September, 2002, this Court noted violations of

its Orders and directed that the CEC shall monitor

implementation of all orders of the Court and shall place before it

any unresolved cases of non-compliance, including in respect of

the encroachments, removals, implementations of working plans,

compensatory afforestation, plantations and other conservation

issues. In furtherance to the said order, the Government framed

a notification in terms of Section 33 of the Environment

Protection Act, 1996. The CEC constituted by this Court was

proposed to be converted into a Statutory Committee. The draft

3

Page 4 notification for the same was also placed before this Court on 9

th

September, 2002. After approval, the Court directed that a

formal notification will be issued within a week and the functions

and responsibilities given to the CEC were to be exercised by the

said Statutory Committee. In fact, this Notification was issued

on 17

th

September, 2002.

4.It may be noticed here that, it was in furtherance to the

order of the Government of Andhra Pradesh vide G.O.M No. 467,

Home (SCA) Dept. dated 17

th

November, 2009, supplemented by

Notification No. 228/61/2009-AVD-11 dated 1

st

December, 2009

issued by the Central Government, that the CBI was directed to

register a case against the Obulapuram Mining Company (OMC).

Earlier the CBI had registered a case against the OMC on 7

th

December, 2009 and started the probe. This probably came to be

stayed by the High Court vide its order dated 12

th

December,

2009 which stay was vacated by another order of that Court on

16

th

December, 2010 paving the way for a full-fledged probe. As

a result of vacation of the stay, the CBI continued its

investigation.

5.The CBI also filed a charge-sheet in a special court against

the OMC, in an illegal mining case falling within the State of

4

Page 5 Karnataka, charging the accused under Sections 120B, 409,

420, 468 and Section 471 of the Indian Penal Code, 1860 (for

short ‘IPC’) read with the provisions of the Prevention of

Corruption Act, 1988. The case against the OMC for illegal

mining was under investigation in respect of the areas of

Obulapuram and Malangapudi villages of Anantpur district in the

State of Andhra Pradesh and in the rest of the State of Andhra

Pradesh.

6.Further, the State of Andhra Pradesh vide its G.O. Rt. No.

723 dated 25

th

November, 2009, issued by the Industrial and

Commercial Department, suspended the mining operations and

also the transportation of mineral material by OMC and even

other implicated companies, on the basis of the findings of a High

Level Committee, headed by the Principal Chief Conservator of

Forests, Hyderabad and the Report of the CEC submitted to this

Court in I.A. No. 2/2009 in Writ Petition (Civil) No. 201 of 2009, a

copy of which was forwarded to the State Government. This was

challenged before the High Court of Andhra Pradesh which, vide

judgment dated 26

th

February, 2010, set aside the notification

and allowed the writ petitions, while holding that the G.O. issued

by the Government suffered from a jurisdictional error and was

5

Page 6 in violation of the principles of natural justice. Against the said

judgment of the High Court, the Government of Andhra Pradesh

filed a Special Leave Petition, SLP(C) No. 7366-7367 of 2010 on

different grounds.

7.Samaj Parivartan Samuday, a registered society, filed

petition under Article 32 of the Constitution of India stating that

the illegal mining in the States of Andhra Pradesh and Karnataka

was still going on in full swing. Such illegal mining and

transportation of illegally mined minerals were being done in

connivance with the officials, politicians and even Ministers of

State. There was a complete lack of action on the part of the

Ministry of Environment and Forests on the one hand and the

States of Andhra Pradesh and Karnataka, on the other. It was

averred that there was complete breakdown of the official

machinery, thereby allowing such blatant illegalities to take

place. This inaction and callousness on the part of the Central

and the State Governments and failure on their part to control

the illegal mining has allowed large-scale destruction, both of

forest and non-forest lands and has adversely affected the

livelihood of the people. It thus, has filed WP (C) 562 of 2009

and has prayed for issuance of a writ of mandamus or any other

6

Page 7 appropriate writ, order or direction to the respective State

Governments and to the Union of India, to stop all mining and

related activities in the forest areas of these two States. It further

sought that the orders passed by this Court in the W.P.(C) No.

202 of 1995 be carried out and the provisions of the Forest

Conservation Act, 1980 be implemented. It also prayed for

cancelling of the ‘raising contracts’ or sub-lease executed by the

Government of Karnataka in favour of the various private

individuals and allowing back-door entry into the mining activity

in those areas. The most significant prayer in this petition was

that after stopping of the mining activity, a systematic survey of

both the inter-state border between the States of Andhra Pradesh

and Karnataka and mine lease areas along the border be

conducted and proper Relief and Rehabilitation Programmes (for

short ‘RR Programmes’) be implemented.

8.All the above cases, i.e., W.P.(C) No. 202/1995, 562/2009

and SLP(C) No. 7366-7367/2010, relate to protection of

environment, forest areas, stoppage of illegal mining and

cancellation of illegal sub-leasing and contracts executed by any

State Government in favour of the third parties, to the extent

such contracts are invalid and improper. The latter cases, Writ

7

Page 8 Petition (Civil) No. 562 of 2009 and SLP(C) Nos. 7366-7367 of

2010 concern the Bellary Forest Reserve. Further, there were

serious allegations raised in these petitions as to how and the

manner in which the leases were executed and mining permits

were granted or renewed for carrying out the mining activities

stated in the petition.

9.The CEC was required to submit quarterly reports, which it

has been submitting and with the passage of time, large

irregularities and illegalities coupled with criminality were

brought to the notice of this Court. The CEC, in discharge of its

functions and responsibilities, was examining the matters, in

both the States of Andhra Pradesh and Karnataka. These

violations have come to the surface as a result of enquiries

conducted by the CEC, regarding illegal mining and mining

beyond their leased areas by these companies. It was pointed by

the CEC with specific reference to these companies that there

was not only illegal extraction of iron ore but the minerals was

being also extracted beyond the leased area specified in the lease

deeds. Further, there was unchecked export of iron ore from the

border areas of the two States, Andhra Pradesh and Karnataka.

8

Page 9 This related to the quantum, quality and transportation of ore as

well.

10.While passing an order of complete ban on mining activity

in these areas vide order dated 29

th

July, 2011 this Court sought

submissions on the market requirement for mined ore and vide

order dated 5

th

August, 2011 permitted only M/s. National

Minerals Development Corporation Ltd. (for short “NMDC”) to

carry out very limited mining activity, so that the economic

interest of the country and of the states does not suffer

irretrievably. This Court has also directed the CEC to examine

all aspects of the mining activity and report on various measures

that are required to be taken for RR Programmes. Limited

mining activity, thus, was permitted to be carried on in the area

with the clear direction that the RR Programmes shall be

simultaneously commenced and it is only after such RR

Programmes are satisfactorily put into motion and the CEC

makes a suggestion in this regard, that the mining activity would

be permitted. Vide order dated 23

rd

September, 2011, this Court

accepted various recommendations of the CEC and noticed that

prima facie it appears that at the relevant time, there existed

linkage between the alleged illegal mining in the Bellary Reserve

9

Page 10 Forest, falling in the District Anantpur in Andhra Pradesh and

the illegalities in respect of grant/renewal of mining leases and

deviations from sanctioned mine sketch in the Bellary District in

Karnataka. The Court also noted that illegally extracted iron

ore belonging to one M/s. Associated Mining Company (for short

“AMC”) was apparently routed through the nearest Port in

Vishakhapatnam, through district Anantpur in Andhra Pradesh.

Thus, the Court felt that the CBI should examine the alleged

illegalities. Vide the same order, this Court required the CBI to

additionally present a status report of investigations which the

CBI had undertaken in respect of OMC in Andhra Pradesh under

FIR No. 17A/2009-CBI(Hyderabad). It was also reported that

there was massive illegal mining by third parties in the mining

lease No. 1111 of one M/s. National Minerals Development

Corporation (NMDC). It was suspected that one M/s. Deccan

Mining Syndicate (for short “DMS”) was involved in such

activities and no action had been taken on the complaints of

NMDC. Some other directions were also issued including

directions for further inquiry by the CEC and the CEC was

required to put up a comprehensive report before this Court.

10

Page 11 11.In the meanwhile, an application was filed by the petitioners

of writ petition No.562 of 2009 which remained un-numbered.

The prayer in this application was to extend the scope of

investigation by the CBI relating to illegal mining and other allied

activities which the politicians and major corporate groups

including M/s. Jindal Group and M/s. Adanis were indulging in,

within the State of Karnataka. They also prayed that both the

States should also be directed demarcate the inter-state

boundaries, particularly, in the mining area.

12.After examining the issues raised in the IA, the earlier

orders of this Court and based on the meetings held by the CEC

on 20

th

March, 2012 and 11

th

April, 2012, respectively, the CEC

identified the issues as follows:-

i)The alleged serious illegalities/

irregularities and undue favour in

respect of (a) the land purchased by

the close relatives of the then Chief

Minister, Karnataka for 0.40 crore in

the year 2006 and subsequently sold to

M/s South West Mining Limited in the

year 2010 for Rs.20.00 crores and (b)

donation of Rs.20.00 crore received by

Prerna Education Society from M/s

South West Mining Limited.

ii)the alleged illegal export of iron ore

from Belekeri Port and associated

issues;

11

Page 12 iii)alleged export from Krishapatnam and

Chennai Port after exports were

banned by the State of Karnataka; and

iv)transfer of senior police officers on

deputation to Lokayukta, Karnataka.”

13.The CEC filed two comprehensive reports before this Court,

one dated 20

th

April, 2012 and other dated 27

th

April, 2012, both

in Writ Petition (Civil) No. 562 of 2009.

14.Out of the above issues indicated, the CEC dealt with issue

No. 1 in the Report dated 20

th

April, 2012, while issue Nos. 2 to 4

were dealt with in the Report dated 27

th

April, 2012. On issue

No. 1, after summarizing the facts and its observations during its

enquiry, the CEC pointed out illegalities, irregularities and

instances of misuse of public office committed for the benefit of

the close relatives of the then Chief Minister, State of Karnataka.

It made the following recommendations :-

“15.Keeping in view the above facts and

circumstances the CEC is of the considered

view that the purchase of the above said

land notified for acquisition for public

purpose, its de-notification from acquisition,

permission granted for conversion from

agriculture to non-agricultural (residential)

purpose and subsequent sale to M/s South

West Mining Limited prima facie involves

serious violations of the relevant Acts and

12

Page 13 procedural lapses and prima facie misuse of

office by the then Chief Minister, Karnataka

thereby enabling his close relatives to make

windfall profits and raises grave issues

relating to undue favour, ethics and

morality. Considering the above and taking

into consideration the massive illegalities

and illegal mining which have been found to

have taken place in Karnataka and the

allegations made against the Jindal Group

as being receipient of large quantities of

illegally mined material and undue favour

being shown to them in respect of the

mining lease of M/s MML it is

RECOMMENDED that a detailed

investigation may be directed to be carried

out in the matter by an independent

investigating agency such as the Central

Bureau of Investigation (CBI) and to take

follow up action. This agency may be asked

to delve into the matter in depth and in a

time bound manner. This agency may also

be directed to investigate into other similar

cases, if any, of lands de-notified from

acquisition by the Bangalore Development

Authority and the illegalities / irregularities

/ procedural lapses, if any, and to take

follow up action.

16.The Prerna Education Society set up by

the close relatives of the then Chief Minister,

Karnataka has during March, 2010 vide two

cheques of Rs.5.0 crores each received a

donation of Rs.10 crores from M/s South

West Mining Limited, a Jindal Group

Company. In this context, it is of interest to

note that during the year 2009-2010 the net

13

Page 14 profit (after tax) of the said Company was

only Rs.5,73 crores. Looking into the details

of the other donations made by the said

Company or by the other Jindal Group

Companies to any other Trust / Society not

owned, managed or controlled by the Jindal

Group. After considering that a number of

allegations, with supporting documents,

have been made in the Report dated 27

th

July, 2011 of Karnataka Lokayukta

regarding the M/s. JSW Steel Limited

having received large quantities of illegal

mineral and alleged undue favour shown to

it in respect of the extraction / supply of

iron ore by / to it from the mining lease of

M/s MML, it is RECOMMENDED that this

Hon’ble Court may consider directing the

investigating agency such as CBI to also

look into the linkages, if any, between the

above said donation of Rs.10 crores made by

M/s South West Mining Limited and the

alleged receipt of illegal mineral by M/s JSW

Steel Limited and the alleged undue favour

shown to it in respect of the mining lease of

M/s MML.

17.The CEC has filed its Report dated 28

th

March, 2012 wherein the representation

filed by the petitioner against Mr. R. Parveen

Chandra (ML 2661) has been dealt with

(refer para 6(ii), page 11-13 of the CEC

Report dated 28

th

March, 2012). In the said

representation it has been alleged that Mr.

Parveen Chandra the lessee of ML No.2661

has made two payments, one of Rs.2.50

crores to M/s Bhagat Homes Private Limited

and the other of Rs.3.5 crores to M/s

14

Page 15 Dhavalagir Property Developers Private

Limited as a quid pro quo for allotment of

the said mining lease. It is

RECOMMENDED that this Hon’ble Court

may consider directing the investigating

agency such as CBI to investigate the

payments made by the above said lessee to

these two companies whose Directions /

shareholders are the close relatives of the

then Chief Minister, Karnataka and whether

there was any link between such payments

and grant of mining lease to Mr. Parveen

Chandra.”

15.When we heard the parties to the lis and even permitted the

affected parties as interveners, the hearing had been restricted to

the Report of the CEC dated 20

th

April, 2012. Therefore,

presently, we are passing directions only in relation to that

Report, while postponing the hearing of the second Report which

is dated 27

th

April, 2012.

16.In the backdrop of the above events of the case, reference to

certain relevant provisions of the Criminal Procedure Code, 1973

(Cr.P.C.) can now be appropriately made, before we proceed to

deal with the above noticed contentions.

17.The machinery of criminal investigation is set into motion

by the registration of a First Information Report (FIR), by the

15

Page 16 specified police officer of a jurisdictional police station or

otherwise. The CBI, in terms of its manual has adopted a

procedure of conducting limited pre-investigation inquiry as well.

In both the cases, the registration of the FIR is essential. A

police investigation may start with the registration of the FIR

while in other cases (CBI, etc.), an inquiry may lead to the

registration of an FIR and thereafter regular investigation may

begin in accordance with the provisions of the CrPC. Section

154 of the CrPC places an obligation upon the authorities to

register the FIR of the information received, relating to

commission of a cognizable offence, whether such information is

received orally or in writing by the officer in-charge of a police

station. A police officer is authorised to investigate such cases

without order of a Magistrate, though, in terms of Section 156(3)

Cr.P.C. the Magistrate empowered under Section 190 may direct

the registration of a case and order the police authorities to

conduct investigation, in accordance with the provisions of the

CrPC. Such an order of the Magistrate under Section 156(3)

CrPC is in the nature of a pre-emptory reminder or intimation to

police, to exercise their plenary power of investigation under that

Section. This would result in a police report under Section 173,

16

Page 17 whereafter the Magistrate may or may not take cognizance of the

offence and proceed under Chapter XVI CrPC. The Magistrate

has judicial discretion, upon receipt of a complaint to take

cognizance directly under Section 200 CrPC, or to adopt the

above procedure. [Ref. Gopal Das Sindhi & Ors. v. State of Assam

& Anr. [AIR 1961 SC 986]; Mohd. Yusuf v. Smt. Afaq Jahan &

Anr. [AIR 2006 SC 705]; and Mona Panwar v. High Court of

Judicature of Allahabad Through its Registrar & Ors. [(2011) 3

SCC 496].

18.Once the investigation is conducted in accordance with the

provisions of the CrPC, a police officer is bound to file a report

before the Court of competent jurisdiction, as contemplated

under Section 173 CrPC, upon which the Magistrate can proceed

to try the offence, if the same were triable by such Court or

commit the case to the Court of Sessions. It is significant to

note that the provisions of Section 173(8) CrPC open with non-

obstante language that nothing in the provisions of Section

173(1) to 173(7) shall be deemed to preclude further investigation

in respect of an offence after a report under sub-Section (2) has

been forwarded to the Magistrate. Thus, under Section 173(8),

where charge-sheet has been filed, that Court also enjoys the

17

Page 18 jurisdiction to direct further investigation into the offence. {Ref.,

Hemant Dhasmana v. Central Bureau of Investigation & Anr.

[(2001) 7 SCC 536]}. This power cannot have any inhibition

including such requirement as being obliged to hear the accused

before any such direction is made. It has been held in Shri

Bhagwan Samardha Sreepada Vallabha Venkata Vishwandha

Maharaj v. State of Andhra Pradesh and Ors. [JT 1999 (4) SC

537] that the casting of any such obligation on the Court would

only result in encumbering the Court with the burden of

searching for all potential accused to be afforded with the

opportunity of being heard.

19.While the trial Court does not have inherent powers like

those of the High Court under Section 482 of the CrPC or the

Supreme Court under Article 136 of the Constitution of India,

such that it may order for complete reinvestigation or fresh

investigation of a case before it, however, it has substantial

powers in exercise of discretionary jurisdiction under Sections

311 and 391 of CrPC. In cases where cognizance has been

taken and where a substantial portion of investigation/trial have

already been completed and where a direction for further

examination would have the effect of delaying the trial, if the trial

18

Page 19 court is of the opinion that the case has been made out for

alteration of charge etc., it may exercise such powers without

directing further investigation. {Ref. Sasi Thomas v. State &

Ors. [(2006) 12 SCC 421]}. Still in another case, taking the aid of

the doctrine of implied power, this Court has also stated that an

express grant of statutory power carries with it, by necessary

implication, the authority to use all reasonable means to make

such statutory power effective. Therefore, absence of statutory

provision empowering Magistrate to direct registration of an FIR

would not be of any consequence and the Magistrate would

nevertheless be competent to direct registration of an FIR. {Ref.

Sakiri Vasu v. State of Uttar Pradesh & Ors. [(2008) 2 SCC 409]}.

20.Thus, the CrPC leaves clear scope for conducting of further

inquiry and filing of a supplementary charge sheet, if necessary,

with such additional facts and evidence as may be collected by

the investigating officer in terms of sub-Sections (2) to (6) of

Section 173 CrPC to the Court.

21.To put it aptly, further investigation by the investigating

agency, after presentation of a challan (charge sheet in terms of

Section 173 CrPC) is permissible in any case impliedly but in no

event is impermissible.

19

Page 20 22.A person who complains of commission of a cognizable

offence has been provided with two options under Indian

Criminal jurisprudence. Firstly, he can lodge the police report

which would be proceeded upon as afore-noticed and secondly,

he could file a complaint under Section 200 CrPC, whereupon the

Magistrate shall follow the procedure provided under Sections

200 to 203 or 204 to 210 under Chapter XV and XVI of the

CrPC.

23.In the former case, it is upon the police report that the

entire investigation is conducted by the investigating agency and

the onus to establish commission of the alleged offence beyond

reasonable doubt is entirely on the prosecution. In a complaint

case, the complainant is burdened with the onus of establishing

the offence and he has to lead evidence before the Court to

establish the guilt of the accused. The rule of establishing the

charges beyond reasonable doubt is applicable to a complaint

case as well.

24.The important feature that we must notice for the purpose

of the present case is that even on a complaint case, in terms of

Section 202, the Magistrate can refer the complaint to

investigation by the police and call for the report first, deferring

20

Page 21 the hearing of the complaint till then. Section 210 CrPC is

another significant provision with regard to the powers of the

Court where investigation on the same subject matter is pending.

It provides that in a complaint case where any enquiry or trial is

pending before the Court and in relation to same offence and

investigation by the Police is in progress which is the subject

matter of the enquiry or trial before the Court, the Magistrate

shall stay the proceedings and await the report of the

investigating agency. Upon presentation of the report, both the

cases on a Police report and case instituted on a complaint shall

be tried as if both were instituted on a Police report and if the

report relates to none of the accused in the complaint it shall

proceed with the enquiry/trial which had been stayed by it. The

section proceeds on the basis that a complaint case and case

instituted on a police report for the commission of the same

offence can proceed simultaneously and the Court would await

the Police report before it proceeds with the complaint in such

cases. The purpose again is to try these cases together, if they

are in relation to the same offence with the intent to provide a fair

and effective trial. The powers of the trial court are very wide and

the legislative intent of providing a fair trial and presumption of

21

Page 22 innocence in favour of the accused is the essence of the criminal

justice system.

25.The Court is vested with very wide powers in order to equip

it adequately to be able to do complete justice. Where the

investigating agency has submitted the charge sheet before the

court of competent jurisdiction, but it has failed to bring all the

culprits to book, the Court is empowered under Section 319

Cr.P.C. to proceed against other persons who are not arrayed as

accused in the chargesheet itself. The Court can summon such

suspected persons and try them as accused in the case, provided

the Court is satisfied of involvement of such persons in

commission of the crime from the record and evidence before it.

26.We have referred to these provisions and the scope of the

power of the criminal court, in view of the argument extended

that there are certain complaints filed by private persons or that

the matters are pending before the court and resultantly this

Court would be not competent in law to direct the CBI to conduct

investigation of those aspects. We may notice that the

investigation of a case or filing chargesheet in a case does not by

itself bring the absolute end to exercise of power by the

investigating agency or by the Court. Sometimes and

22

Page 23 particularly in the matters of the present kind, the investigating

agency has to keep its options open to continue with the

investigation, as certain other relevant facts, incriminating

materials and even persons, other than the persons stated in the

FIR as accused, might be involved in the commission of the

crime. The basic purpose of an investigation is to bring out the

truth by conducting fair and proper investigation, in accordance

with law and ensure that the guilty are punished. At this stage,

we may appropriately refer to the judgment of this Court in the

case of Nirmal Singh Kahlon v. State of Punjab & Ors. [(2009) 1

SCC 441] wherein an investigation was being conducted into

wrongful appointments to Panchayat and other posts by the

Police Department of the State. However, later on, these were

converted into a public interest litigation regarding larger

corruption charges. The matter was sought to be referred for

investigation to a specialised agency like CBI. The plea taken

was that the Special Judge was already seized of the case as

charge sheet had been filed before that Court, and the question

of referring the matter for investigation did not arise. The High

Court in directing investigation by the CBI had exceeded its

jurisdiction and assumed the jurisdiction of the Special Judge.

23

Page 24 The plea of prejudice was also raised. While rejecting these

arguments, the appeals were dismissed and this Court issued a

direction to the CBI to investigate and file the charge sheet before

the Court having appropriate jurisdiction over the investigation.

The reasoning of the Court can be examined from paragraph 63

to 65 of the said judgment, which reads as under:-

“63. The High Court in this case was not

monitoring any investigation. It only desired

that the investigation should be carried out by

an independent agency. Its anxiety, as is

evident from the order dated 3-4-2002, was to

see that the officers of the State do not get

away. If that be so, the submission of Mr Rao

that the monitoring of an investigation comes

to an end after the charge-sheet is filed, as has

been held by this Court in Vineet Narain and

M.C. Mehta (Taj Corridor Scam) v. Union of

India, loses all significance.

64. Moreover, it was not a case where the High

Court had assumed a jurisdiction in regard to

the same offence in respect whereof the Special

Judge had taken cognizance pursuant to the

charge-sheet filed. The charge-sheet was not

filed in the FIR which was lodged on the

intervention of the High Court.

65. As the offences were distinct and different,

the High Court never assumed the jurisdiction

of the Special Judge to direct reinvestigation as

was urged or otherwise.”

24

Page 25 27.Now, we shall proceed to examine the merit of the

contentions raised before us. We may deal with the submissions

(a) and (b), together, as they are intrinsically inter-related.

28.The CEC had submitted the Report dated 20

th

April, 2012

and it has been stated in the Report that opportunity of being

heard had been granted to the affected parties. However, the

contention before us is that while the CEC heard other parties, it

had not heard various companies like M/s. South West Mining

Ltd. and M/s. JSW Steel Ltd. Firstly, the CEC is not vested with

any investigative powers under the orders of this Court, or under

the relevant notifications, in the manner as understood under the

CrPC. The CEC is not conducting a regular inquiry or

investigation with the object of filing chargesheet as

contemplated under Section 173 CrPC. Their primary function

and responsibility is to report to the Court on various matters

relating to collusion in illegal and irregular activities that are

being carried on by various persons affecting the ecology,

environment and reserved forests of the relevant areas. While

submitting such reports in accordance with the directions of this

Court, the CEC is required to collect such facts. In other words,

it has acted like a fact finding inquiry. The CEC is not

25

Page 26 discharging quasi-judicial or even administrative functions, with

a view to determine any rights of the parties. It was not

expected of the CEC to give notice to the companies involved in

such illegalities or irregularities, as it was not determining any of

their rights. It was simpliciter reporting matters to the Court as

per the ground realities primarily with regard to environment and

illegal mining for appropriate directions. It had made different

recommendations with regard to prevention and prosecution of

environmentally harmful and illegal activities carried on in

collusion with government officers or otherwise. We are of the

considered view that no prejudice has been caused to the

intervenor/affected parties by non-grant of opportunity of hearing

by the CEC. In any case, this Court has heard them and is

considering the issues independently.

29.As far as the challenge to the enlargement of jurisdiction by

the CEC beyond the reference made by the Court, is concerned,

the said contention is again without any substance. We have

referred to the various orders of this Court. The ambit and

scope of proceedings before this Court, pending in the above writ

petition and civil appeal, clearly show that the Court is exercising

a very wide jurisdiction in the national interest, to ensure that

26

Page 27 there is no further degradation of the environment or damage to

the forests and so that illegal mining and exports are stopped.

The orders are comprehensive enough to not only give leverage to

the CEC to examine any ancillary matters, but in fact, place an

obligation on the CEC to report to this Court without exception

and correctly, all matters that can have a bearing on the issues

involved in all these petitions in both the States of Karnataka and

Andhra Pradesh. Thus, we reject this contention also.

30.Contention (c) is advanced on the premise that all matters

stated by the CEC are sub-judice before one or the other

competent Court or investigating agency and, thus, this Court

has no jurisdiction to direct investigation by the CBI. In any

case, it is argued that such directions would cause them serious

prejudice.

31.This argument is misplaced in law and is misconceived on

facts. Firstly, all the facts that had been brought on record by

the CEC are not directly sub-judice, in their entirety, before a

competent forum or investigating agency.

32.In relation to issue 1(a) raised by the CEC which also but

partially is the subject matter of PCR No. 2 of 2011 pending

27

Page 28 before the Additional City Civil and Sessions Judge, Bangalore

under the Prevention of Corruption Act. The Court took

cognizance and summoned the accused to face the trial, writ

against the same is pending in the High Court. It primarily

relates to the improper de-notification of the land, which had

been under acquisition but possession whereof was not taken.

This land was purchased by the family members of the then

Chief Minister for a consideration of Rs.40 lacs and was sold after

de-notification for a sum of Rs.20 crores to South West Mining

Ltd. after de-notification. For this purpose, office of the Chief

Minister and other higher Government Officials were used. While

the earlier part of above-noted violations is covered under PCR

No. 2 of 2011, the transactions of purchase sale and other

attendant circumstances are beyond the scope of the said

pending case which refers only to the decision of de-notification.

It appears that the entire gamut or the complete facts stated by

the CEC and supported by documents are not the matter sub-

judice before the Trial Court. Similarly, issue 1 (b) relates to the

donation of Rs.20 crores received by Prerna Education Society

from M/s. South West Mining Ltd. The society is stated to be

belonging to the members of the family of the Chief Minister Shri

28

Page 29 Yeddyurappa. The written submissions filed on behalf of M/s.

South West Mining Ltd., do not reflect that issue 1(a) and (b) of

the CEC report under consideration are directly and in their

entirety are the subject matter of any investigations in progress

and proceedings pending before any competent forum. These are

merely informatory facts, supported by relevant and authentic

documents, highlighted by the CEC in its report for consideration

of the Court. A suspect has no indefeasible right of being heard

prior to initiation of the investigation, particularly by the

investigating agency. Even, in fact, the scheme of the Code of

Criminal Procedure does not admit of grant of any such

opportunity. There is no provision in the CrPC where an

investigating agency must provide a hearing to the affected party

before registering an FIR or even before carrying on investigation

prior to registration of case against the suspect. The CBI, as

already noticed, may even conduct pre-registration inquiry for

which notice is not contemplated under the provisions of the

Code, the Police Manual or even as per the precedents laid down

by this Court. It is only in those cases where the Court directs

initiation of investigation by a specialized agency or transfer

investigation to such agency from another agency that the Court

29

Page 30 may, in its discretion, grant hearing to the suspect or affected

parties. However, that also is not an absolute rule of law and is

primarily a matter in the judicial discretion of the Court. This

question is of no relevance to the present case as we have already

heard the interveners.

33.In the case of Narmada Bai v. State of Gujarat & Ors. [(2011)

5 SCC 79], this Court was concerned with a case where the State

Government had objected to the transfer of investigation to CBI of

the case of a murder of a witness to a fake encounter. The CBI

had already investigated the case of fake encounter and

submitted a charge sheet against high police officials. This Court

analyzed the entire law on the subject and cited with approval

the judgment of the Court in the case of Rubabbuddin Sheikh v.

State of Gujarat [(2010) 2 SCC 200]. In that case, the Court had

declared the law that in appropriate cases, the Court is

empowered to hand over investigation to an independent agency

like CBI even when the charge-sheet had been submitted. In the

case of Narmada Bai, the Court had observed that there was a

situation which upon analysis of the allegations it appeared that

abduction of Sohrabuddin and Kausarbi thei their subsequent

murder as well as the murder of the witnesses are one series of

30

Page 31 facts and was connected together as to form the same

transaction under Section 220 of the Code of Criminal Procedure

and it was considered appropriate to transfer the investigation of

the subsequent case also to CBI.

34.If we analyse the abovestated principles of law and apply the

same to the facts of the present case, then the Court cannot rule

out the possibility that all these acts and transactions may be so

inter-connected that they would ultimately form one composite

transaction making it imperative for the Court to direct complete

and comprehensive investigation by a single investigating agency.

The need to so direct is, inter alia, for the following

considerations:

(a)The report of the CEC has brought new facts, subsequent

events and unquestionable documents on record to

substantiate its recommendations.

(b)The subsequent facts, inquiry and resultant suspicion,

therefore, are the circumstances for directing further and

specialized investigation.

31

Page 32 (c)The scope and ambit of present investigation is much wider

than the investigations/proceedings pending before the

Court/investigating agencies.

(d)Various acts and transactions prima facie appear to be part

of a same comprehensive transaction.

(e)The requirement of just, fair and proper investigation

would demand investigation by a specialized agency

keeping in view the dimensions of the transactions, the

extent of money involved and manipulations alleged.

35.To give an example to emphasize that this is a case

requiring further investigation and is fit to be transferred to the

specialized investigating agency, we may mention that the South

West Mining Ltd. was initially found to be a front company of

JSW Steels Ltd. Thereafter all transactions were examined and

the improper purchase of land and donations made by them

came to light. These facts appear to be inherently interlinked.

Despite that and intentionally, we are not dealing with the factual

matrix of the case or the documents on record, in any detail or

even discussing the merits of the case in relation to the

controversies raised before us so as to avoid any prejudice to the

32

Page 33 rights of the affected parties before the courts in various

proceedings and investigation including the proposed

investigation.

36.Now, we shall proceed on the assumption that the

illegalities, irregularities and offences alleged to have been

committed by the affected parties are the subject matter, even in

their entirety, of previous investigation cases, sub-judice before

various Courts including the writ jurisdiction of the High Court.

It is a settled position of law that an investigating agency is

empowered to conduct further investigation after institution of a

charge-sheet before the Court of competent jurisdiction. A

magistrate is competent to direct further investigation in terms of

Section 173(8) Cr.P.C. in the case instituted on a police report.

Similarly, the Magistrate has powers under Section 202 Cr.P.C.

to direct police investigation while keeping the trial pending

before him instituted on the basis of a private complaint in terms

of that Section. The provisions of Section 210 Cr.P.C. use the

expression ‘shall’ requiring the Magistrate to stay the proceedings

of inquiry and trial before him in the event in a similar subject

matter, an investigation is found to be in progress. All these

provisions clearly indicate the legislative scheme under the

33

Page 34 Cr.P.C. that initiation of an investigation and filing of a

chargesheet do not completely debar further or wider

investigation by the investigating agency or police, or even by a

specialized investigation agency. Significantly, it requires to be

noticed that when the court is to ensure fair and proper

investigation in an adversarial system of criminal administration,

the jurisdiction of the Court is of a much higher degree than it is

in an inquisitorial system. It is clearly contemplated under the

Indian Criminal Jurisprudence that an investigation should be

fair, in accordance with law and should not be tainted. But, at

the same time, the Court has to take precaution that interested

or influential persons are not able to misdirect or hijack the

investigation so as to throttle a fair investigation resulting in the

offenders escaping the punitive course of law. It is the inherent

duty of the Court and any lapse in this regard would tantamount

to error of jurisdiction.

37.In the case of Rama Chaudhary v. State of Bihar [(2009) 6

SCC 346], this Court was considering the scope of Sections

173(8), 173(2) and 319 of the CrPC in relation to directing further

investigation. The accused raised a contention that in that case,

report had been filed, charges had been framed and nearly 21

34

Page 35 witnesses had been examined and at that stage, in furtherance to

investigation taken thereafter, if a supplementary charge-sheet is

filed and witnesses are permitted to be summoned, it will cause

serious prejudice to the rights of the accused. It was contended

that the Court has no jurisdiction to do so. The Trial Court

permitted summoning and examination of the summoned

witnesses in furtherance to the supplementary report. The order

of the Trial Court was upheld by the High Court. While

dismissing the special leave petition, a Bench of this Court

observed :

“14. Sub-section (1) of Section 173 CrPC

makes it clear that every investigation shall

be completed without unnecessary delay.

Sub-section (2) mandates that as soon as the

investigation is completed, the officer in

charge of the police station shall forward to a

Magistrate empowered to take cognizance of

the offence on a police report, a report in the

form prescribed by the State Government

mentioning the name of the parties, nature

of information, name of the persons who

appear to be acquainted with the

circumstances of the case and further

particulars such as the name of the offences

that have been committed, arrest of the

accused and details about his release with or

without sureties.

15. Among the other sub-sections, we are

very much concerned about sub-section (8)

of Section 173 which reads as under:

35

Page 36 “173. (8) Nothing in this section shall be

deemed to preclude further

investigation in respect of an offence

after a report under sub-section (2)

has been forwarded to the Magistrate

and, where upon such investigation,

the officer in charge of the police

station obtains further evidence, oral

or documentary, he shall forward to

the Magistrate a further report or

reports regarding such evidence in the

form prescribed; and the provisions of

sub-sections (2) to (6) shall, as far as

may be, apply in relation to such

report or reports as they apply in

relation to a report forwarded under

sub-section (2).”

A mere reading of the above provision makes

it clear that irrespective of the report under

sub-section (2) forwarded to the Magistrate,

if the officer in charge of the police station

obtains further evidence, it is incumbent on

his part to forward the same to the

Magistrate with a further report with regard

to such evidence in the form prescribed. The

abovesaid provision also makes it clear that

further investigation is permissible, however,

reinvestigation is prohibited.

16. The law does not mandate taking of prior

permission from the Magistrate for further

investigation. Carrying out a further

investigation even after filing of the charge-

sheet is a statutory right of the police.

Reinvestigation without prior permission is

prohibited. On the other hand, further

investigation is permissible.

18. Sub-section (8) of Section 173 clearly

envisages that on completion of further

investigation, the investigating agency has to

36

Page 37 forward to the Magistrate a “further” report

and not a fresh report regarding the “further”

evidence obtained during such investigation.

19. As observed in Hasanbhai Valibhai

Qureshi v. State of Gujarat the prime

consideration for further investigation is to

arrive at the truth and do real and

substantial justice. The hands of the

investigating agency for further investigation

should not be tied down on the ground of

mere delay. In other words

“[t]he mere fact that there may be

further delay in concluding the trial

should not stand in the way of further

investigation if that would help the

court in arriving at the truth and do

real and substantial as well as effective

justice.”

38.Reference can also be made to the judgment of this Court in

the case of National Human Rights Commission v. State of Gujarat

& Ors. [(2009) 6 SCC 342], wherein the Court was dealing with

different cases pending in relation to the communal riots in the

State of Gujarat and the trial in one of the cases was at the

concluding stage. In the meanwhile, in another FIR filed in

relation to a similar occurrence, further investigation was being

conducted and was bound to have a bearing even on the pending

cases. The Court, while permitting inquiry/investigation,

including further investigation, completed stayed the proceedings

in the Trial Court as well and held as under :

37

Page 38 “10. We make it clear that SIT shall be free

to work out the modalities and the norms

required to be followed for the purpose of

inquiry/investigation including further

investigation. Needless to say the sole object

of the criminal justice system is to ensure

that a person who is guilty of an offence is

punished.

11. Mr K.T.S. Tulsi, learned Senior Counsel

had submitted that in some cases the alleged

victims themselves say that wrong persons

have been included by the police officials as

accused and the real culprits are sheltered.

He, therefore, suggested that trial should go

on, notwithstanding the inquiry/

investigation including further investigation

as directed by us. We find that the course

would not be appropriate because if the trial

continues and fresh evidence/materials

surface, it would require almost a de novo

trial which would be not desirable.”

39.We do not find any necessity to multiply the precedents on

this issue. It is a settled principle of law that the object of every

investigation is to arrive at the truth by conducting a fair,

unbiased and proper investigation.

40.Referring to the plea of prejudice taken up by the affected

parties before us, we are unable to see any element of prejudice

being caused to the affected parties if the CBI is permitted to

investigate the entire matter. The plea taken by the interveners

before us is that M/s. JSW Steels Ltd. is a bona fide purchaser of

38

Page 39 iron ore from the open market and they have been affected by the

unilateral actions of one M/s. Mysore Minerals Ltd. They state

that they have no statutory liability to check origin of iron ore or

to maintain Form 27. According to M/s. JSW Steels Ltd., they

are already co-operating with the CBI in the investigation

directed by the Supreme Court. As far as M/s. South West

Mining Ltd. is concerned, it has stated that it is the purchaser of

the land for bona fide consideration and genuine purpose. The

land has been converted to commercial use and that is why

Rs.20 crores were paid as consideration. They further claimed

that they had Rs.23.96 crores of pre-tax profit and, therefore,

they were in a position to make the donation which they had

made. Not only they, but other companies affiliated to Jindal

Group have also made similar contributions. It is not for us to

examine whether the stand taken by the intervener companies is

correct or not. It requires to be investigated and an investigation

per se would help them to clear their position, rather than

subjecting them to face multifarious litigations, investigations

and economic burden. Having heard them, we are unable to find

any prejudice to parties if further or wider investigation is

directed by this Court. The direction of further investigation is

39

Page 40 based upon documents and facts brought to light by the CEC as

a result of examination conducted in the course of its primary

function relating to inquiry into environmental violations and

illegal mining activity. If the proceedings are permitted to

continue and finally investigations reveal that a case which

requires to be tried in accordance with law exists, then the

interveners would have to face proceedings all over again. So, it

is in their own interest that the specialized agency is permitted to

investigate and bring out the true facts before the Court of

competent jurisdiction.

41.We must notice that the criminal offences are primarily

offences against the State and secondarily against the victim. In

this case, if the investigation by specialized agency finds that the

suspect persons have committed offences with or without

involvement of persons in power, still such violation undoubtedly

would have been a great loss to the environmental and natural

resources and would hurt both the State and national economy.

We cannot expect an ordinary complainant to carry the burden of

proving such complex offences before the Court of competent

jurisdiction by himself and at his own cost. Doing so would be a

travesty of the criminal justice system.

40

Page 41 42.It was ever and shall always remain the statutory the

obligation of the State to prove offences against the violators of

law. If a private citizen has initiated the proceedings before the

competent court, it will not absolve the State of discharging its

obligation under the provisions of the CrPC and the obligations of

Rule of Law. The Court cannot countenance an approach of this

kind where the State can be permitted to escape its liability only

on the ground that multifarious complaints or investigations

have been initiated by private persons or bodies other than the

State. In our considered view, it enhances the primary and legal

duty of the State to ensure proper, fair and unbiased

investigation.

43.The facts of the present case reveal an unfortunate state of

affairs which has prevailed for a considerable time in the

mentioned districts of both the States of Andhra Pradesh and

Karnataka. The CEC has recommended, and the complainant

and petitioners have also highlighted, a complete failure of the

State machinery in relation to controlling and protecting the

environment, forests and minerals from being illegally mined and

exploited.

41

Page 42 44.Wherever and whenever the State fails to perform its duties,

the Court shall step in to ensure that Rule of Law prevails over

the abuse of process of law. Such abuse may result from

inaction or even arbitrary action of protecting the true offenders

or failure by different authorities in discharging statutory or legal

obligations in consonance with the procedural and penal

statutes. This Court expressed its concern about the rampant

pilferage and illegal extraction of natural wealth and resources,

particularly, iron ore, as also the environmental degradation and

disaster that may result from unchecked intrusion into the forest

areas. This Court, vide its order dated 29

th

July, 2011 invoked

the precautionary principle, which is the essence of Article 21 of

the Constitution of India as per the dictum of this Court in the

case of M.C. Mehta v. Union of India [(2009) 6 SCC 142], and had

consequently issued a ban on illegal mining. The Court also

directed Relief and Rehabilitation Programmes to be carried out

in contiguous stages to promote inter-generational equity and the

regeneration of the forest reserves. This is the ethos of the

approach consistently taken by this Court, but this aspect

primarily deals with the future concerns. In respect of the past

actions, the only option is to examine in depth the huge

42

Page 43 monetary transactions which were effected at the cost of national

wealth, natural resources, and to punish the offenders for their

illegal, irregular activities. The protection of these resources was,

and is the constitutional duty of the State and its

instrumentalities and thus, the Court should adopt a holistic

approach and direct comprehensive and specialized investigation

into such events of the past.

45.Compelled by the above circumstances and keeping in mind

the clear position of law supra, we thus direct;

a)The issues specified at point 1(a) and 1(b) of the CEC Report

dated 20

th

April, 2012 are hereby referred for investigation by

the Central Bureau of Investigation.

b)All the proceedings in relation to these items, if pending before

any Court, shall remain stayed till further orders of this Court.

The CBI shall complete its investigation and submit a Report

to the Court of competent jurisdiction with a copy of the

Report to be placed on the file of this Court within three

months.

43

Page 44 c)The Report submitted by the CEC and the documents annexed

thereto shall be treated as ‘informant’s information to the

investigating agency’ by the CBI.

d)The CBI shall undertake investigation in a most fair, proper

and unbiased manner uninfluenced by the stature of the

persons and the political or corporate clout, involved in the

present case. It will be open to the CBI to examine and inspect

the records of any connected matter pending before any

investigating agency or any court.

e)The competent authority shall constitute the special

investigating team, headed by an officer not below the rank of

Additional Director General of Police/Additional Commissioner

forthwith.

f)Any investigation being conducted by any agency other than

CBI shall also not progress any further, restricted to the items

stated in clause (a) above, except with the leave of the Court.

The CBI shall complete its investigation uninfluenced by any

order, inquiry or investigation that is pending on the date of

passing of this order.

44

Page 45 g)This order is being passed without prejudice to the rights and

contentions of any of the parties to the lis, as well as in any

other proceedings pending before courts of competent

jurisdiction and the investigating agencies.

h)All pleas raised on merits are kept open.

i)We direct all the parties, the Government of the States of

Andhra Pradesh, Karnataka and all other government

departments of that and/or any other State, to fully cooperate

and provide required information to CBI.

46.With the above directions, we accept the recommendation of

the CEC to the extent as afore-stated.

47.Let the matter stand over to 3

rd

August, 2012 for

consideration of the Report dated 27

th

April, 2012 filed by the

CEC.

….………… ......................CJI.

(S.H. Kapadia)

…….………… ......................J.

(Aftab Alam)

...….………… ......................J.

45

Page 46 (Swatanter Kumar)

New Delhi

May 11, 2012

46