Friday, June 29, 2012

innocent until proven guilty (Presumption of innocence) - Woolmington v DPP [1935] AC 462


                                                                 [HOUSE OF LORDS]

WOOLMINGTON APPELLANT;

AND

THE DIRECTOR OF PUBLIC PROSECUTIONS RESPONDENT.

1935 April 5; May 23. VISCOUNT SANKEY L.C., LORD HEWART L.C.J.,
LORD ATKIN, LORD TOMLIN, and LORD WRIGHT.

Criminal Law - Murder - Onus of Proof - Accident - Unlawful Intention - Direction to the Jury - Reasonable Doubt of Guilt - Criminal Appeal Act, 1907 (7 Edw. 7, c. 23), s. 4.

In a trial for murder the Crown must prove death as the result of a voluntary act of the prisoner and malice of the prisoner. When evidence of death and malice has been given, the prisoner is entitled to show by evidence or by examination of the circumstances adduced by the Crown that the act on his part which caused death was either unintentional or provoked. If the jury are either satisfied with his explanation or, upon a review of all the evidence, are left in reasonable doubt whether, even if his explanation be not accepted, the act was unintentional or provoked, the prisoner is entitled to be acquitted.

Statement of the Law in Foster's Crown Law (1762), p. 255, and summing up of Tindal C.J. in Rex v. Greenacre (1837) 8 C. & P. 35 disapproved.

Order of the Court of Criminal Appeal reversed.

APPEAL from an order of the Court of Criminal Appeal refusing leave to Reginald Woolmington, the appellant, to appeal against his conviction of the wilful murder of Violet Kathleen Woolmington, who was his wife.

The appellant was convicted on February 14, 1935, at Bristol Assizes before Swift J. and a jury. The appellant and his wife were married on August 25, 1934. He was a farm labourer and bore a good character. His age was twenty-one and a half years, and his wife was four years younger. They lived at Castleton, near Sherborne, on the farm of one Cheeseman, the appellant's employer. On November 22, 1934, the appellant's wife left him and went to live with her mother, Lilian Smith, a widow, at 24 Newtown, Milborne Port. The appellant wanted her to go back to him and made efforts to induce her to go back, but she would not.

Next door to Mrs. Smith lived a Mrs. Brine, a sister of Mrs. Smith and aunt of the deceased woman. On the morning of December 10, 1934, Mrs. Brine, who was in the back yard of No. 25, heard the appellant's voice saying: "Are you coming back or not?" and "Where's your mother?" Then she heard the back door of No. 24 slam, and then the report of a gun. She looked out of her front window, and saw the appellant. She called to him; he made no reply, but mounted his bicycle and rode away. She went into No. 24, and found her niece lying on the mat. She had been shot through the heart.
The appellant gave evidence to the following effect: After a sleepless night on December 9-10 he thought he might frighten his wife into obedience by threatening to shoot himself. On December 10 he went to the farm till 8.20 A.M.; came home to have his breakfast; then went back to the farm, and took a gun belonging to Mr. Cheeseman, which lay on a shelf in a barn. Near the gun was a box containing two cartridges. With a fret-saw belonging to his father he sawed off part of the barrels and threw that part and the saw into a brook, and loaded the gun with the two cartridges. Then he put the gun under his overcoat in a pocket used for carrying rabbits, and returned home. There he attached to the gun some flex for carrying electric current, and with this he suspended the gun from his right shoulder and under his overcoat; and so equipped he rode on his bicycle to Mrs. Brine's house. There he tapped at the front door; his wife opened it; she was washing clothes in the kitchen. They went into the back room. He said: "Are you coming back or not, Vi?" but got no answer. His wife shut the back door, and they went into the front room. His wife said she would not go back, but had decided to go into service. Then he said, if she would not come back to him he would shoot himself; and, to explain how he meant to do this, and to show her the gun with which he meant to do it, he unbuttoned his overcoat, and brought the gun across his waist. The gun went off; he did not know it was pointing at his wife. She fell to the ground. He did not know what to do. He went out of the house and to his own home. There he saw his mother and told her that he had been up and shot his wife. He threw the gun on a bench in the outhouse and rode to Mr. Cheeseman and said to him: "I shall not be coming to work any more, as I have shot my wife."
A note was found in the pocket of the appellant's coat. It was in these terms:-
"Good bye all.
"It is agonies to carry on any longer. I have kept true hoping she would return this is the only way out. They ruined me and I'll have my revenge. May God forgive me for doing this but it is the Best thing. Ask Jess to call for the money paid on motor bike (Wed.). Her mother is no good on this earth but have no more cartridges only 2 one for her and one for me. I am of a sound mind now. Forgive me for all trouble caused
"Good bye
ALL
I love Violet with all my heart

Reg."

The appellant was cross-examined about the date when this note was written, whether it was before or after the death of his wife. He persisted in his statement that it was written after the death, and gave his explanation of its contents.
He said that after having written it he went downstairs and waited for the police; he intended to shoot himself; he went outside and met his father in the lane. He told his father he was going to shoot himself, but his father persuaded him not to. Then the policeman arrived and took him to the police station. When he was charged, he said: "I want to say nothing, except I done it, and they can do what they like. It was jealousy I suppose. Her mother enticed her away from me. I done all I could to get her back, that's all."
The appellant was first tried at Taunton on January 23, 1935, before Finlay J. and a jury. After considering their verdict for an hour and twenty-five minutes that jury disagreed.
At the trial out of which the present appeal arises Swift J. in his summing-up gave the following direction to the jury: "A charge is made against Reginald Woolmington, the prisoner at the bar, of wilful murder. It is said that on the morning of December 10, about half-past nine, he murdered his wife. That she died whilst he was in that house you will, I should think, have little doubt. It is a matter entirely for you. If you accept his evidence, you will have little doubt that she died in consequence of a gun-shot wound which was inflicted by a gun which he had taken to this house, and which was in his hands, or in his possession, at the time that it exploded. If you come to the conclusion that she died in consequence of injuries from the gun which he was carrying, you are put by the law of this country into this position: The killing of a human being is homicide, however he may be killed, and all homicide is presumed to be malicious and murder, unless the contrary appears from circumstances of alleviation, excuse, or justification. 'In every charge of murder, the fact of killing being first proved, all the circumstances of accident, necessity, or infirmity are to be satisfactorily proved by the prisoner, unless they arise out of the evidence produced against him; for the law presumeth the fact to have been founded in malice, unless the contrary appeareth.' 1 That has been the law of this country for all time since we had law. Once it is shown to a jury that somebody has died through the act of another, that is presumed to be murder, unless the person who has been guilty of the act which causes the death can satisfy a jury that what happened was something less, something which might be alleviated, something which might be reduced to a charge of manslaughter, or was something which was accidental, or was something which could be justified."
Then, after reviewing and commenting upon the evidence, the learned judge added these words: "The Crown has got to satisfy you that this woman, Violet Woolmington, died at the prisoner's hands. They must satisfy you of that beyond any reasonable doubt. If they satisfy you of that, then he has to show that there are circumstances to be found in the evidence which has been given from the witness-box in this case, which alleviate the crime so that it is only manslaughter, or which excuse the homicide altogether by showing that it was a pure accident."
The jury, after considering their verdict for an hour and nine minutes, found the appellant guilty of wilful murder.
The appellant applied to the Court of Criminal Appeal for leave to appeal against his conviction, but that Court, as stated above, refused the application.
The Attorney-General having certified that the decision of the Court of Criminal Appeal involved a point of law of exceptional public importance and that, in his opinion, it was desirable in the public interest that a further appeal should be brought, the present appeal was brought before this House.

April 4. T. J. O'Connor K.C. and J. D. Casswell for the appellant. In delivering the judgment of the Court of Criminal Appeal, Avory J. said: "The point, and really the only point, of complaint as regards this summing-up is that the learned judge did not anywhere use the expression that the jury should acquit the accused altogether, or convict him only of manslaughter, if they entertained any reasonable doubt about the truth of his explanation of how his wife came by her death. It may be that it would have been better if the learned judge had in those few words said to the jury that if they entertained reasonable doubt whether they could accept his explanation, they should either acquit him altogether or convict him of manslaughter only."
This is precisely the exception which the appellant takes to the summing-up of Swift J.; and the complaint which he makes against the order of the Court of Criminal Appeal is that the learned judges did not take a more serious view of the omission of the trial judge to make it quite clear that the onus still lay upon the prosecution. If at the end of a trial for murder a reasonable doubt remains in the minds of the jury whether the crime has been committed, it is their duty to acquit. However the matter may have been regarded in former years, at the present time the Criminal Law rests on the foundation that, apart from statutory enactment to the contrary, the prosecution must prove the guilt of the prisoner; otherwise he must be acquitted. Earlier authorities, such as Sir Michael Foster in the Introduction to the Discourse of Homicide in that learned judge's work on Crown Law 2; Mackalley's case (1611) 9 Co. Rep. 65 b; Rex v. Legg (1674) Kelyng, 27; Rex v. Oneby(1727) 2 Ld. Raym. 1484, 1493; East, Pleas of the Crown (1803), p. 224; Rex v. Greenacre 8 C. & P. 35, 42; and Blackstone, Commentaries3, are concerned primarily with the definition of homicide and malice. Sir Michael Foster's description of murder is repeated in Archbold's Criminal Pleading and Evidence 4 and Russell on Crimes.5 The proper direction to the jury is thai which was given by Finlay J. at the former trial. That learned judge said: "The case for the prosecution is deliberate shooting. The defence is, Not Guilty of murder. They" (the prosecution) "prove the killing, and in the absence of explanation that is murder. The defence say 'Excusable, because accidental.' Consider whether you entertain the slightest doubt that this was a deliberate killing. If you have no doubt, it is your duty to convict. .... If the result of a dispassionate survey is to leave a reasonable doubt in your minds, then your duty as well as your pleasure is to acquit." It is for the prosecution to satisfy the jury on all the evidence that the prisoner is not an innocent man, but a guilty man. They must take the whole of the evidence into consideration and then it is not for the prisoner to say: "My explanation is such that it must satisfy you." It is enough for him if he says: "This is my explanation," and if the jury on considering it are left in a reasonable doubt. Then it is their duty to acquit the prisoner. "Where, a prima facie case having been made against him, the defendant offers an explanation, the jury must be directed that the onus of proof of guilt is still on the prosecution, and that, if on the whole evidence they are in doubt, they should acquit": Roscoe, Criminal Evidence. 6 This is the result of numerous decisions: Rex v. Stoddart (1909) 2 Cr. App. R. 217, 244; Rex v. Davies (1913) 29 Times L. R. 350; 8 Cr. App. R. 211; Rex v. Abramovitch (1914) 31 Times L. R. 88; Rex v. Aubrey (1915) 11 Cr. App. R. 182; Rex v. Grinberg (1917) 33 Times L. R. 428; Rex v. Sanders(1919) 14 Cr. App. R. 11; Lawrence v. The King. [1933] A. C. 699, 706
[The following cases were also referred to: Rex v. Sturgess (1913) 9 Cr. App. R. 120; Rex v. Davies (1913) 29 Times L. R. 350; 8 Cr. App. R. 211;Rex v. Hopper (1915) 11 Cr. App. R. 136; Rex v. Brain. (1918) 13 Cr. App. R. 197]

April 5. J. G. Trapnell K.C. and Reginald Knight for the respondent. The killing of any human creature is homicide: Blackstone, Commentaries. 7Felonious homicide is the killing of a human creature without justification or excuse. 8Manslaughter is the unlawful killing of another without malice either express or implied. 9 "When a man of sound memory, and of the age of discretion, unlawfully killeth .... any reasonable creature in rerum natura under the king's peace, with malice forethought, either expressed by the party, or implied by law" 10 this is murder. Then comes the question of proving the commission of the crime. The Crown must prove that the prisoner killed the man. The prisoner knows how he did it; formerly he could not give evidence, but he still knew. The dead man knew, but cannot say. In the absence of evidence of others, the Court must needs resort to inference. It considers how the death wound was inflicted; by a gun, or a knife, or a hammer or other lethal weapon. Such facts supply evidence of malice prepense. When all the knowledge is in the mind of the accused, it is most reasonable that he should state, or his advocate should suggest, how the death occurred. It is not necessary to press the point that, in the absence of other available evidence, killing is per se prima facie evidence of malice, because in the present case death was inflicted by a lethal weapon; but even so, one cannot with a light heart dismiss the statement of so high an authority as Sir Michael Foster 11, followed in East 12; Blackstone, Commentaries13; and repeated in Archbold, Criminal Pleading and Evidence 14, and Halsbury, Laws of England. 15 Moreover, the appellant's own explanation, that he intended to frighten his wife into obedience by threatening to shoot himself, and showing her the gun which he meant to use, discloses an unlawful intention and is sufficient evidence of malice aforethought.
The additional facts of the note found in the pocket of his coat, and the words: "May God forgive me for doing this but it is the best thing. .... Her mother is no good .... but I have no more cartridges only 2 one for her and one for me," show first, that the note was written before the deed, and secondly that he intended to shoot his wife and himself and that, if he had had a third cartridge, he would have used it also. Those facts together show that he went to the house with a malicious intention. If in pursuing a malicious intention a man, even by accident, kills another person, that is murder.
In that view the case is a proper one for the application of s. 4 of the Criminal Appeal Act, 1907.

Counsel was not called on in reply.

At the end of the argument for the respondent VISCOUNT SANKEY L.C. announced that the order of the Court of Criminal Appeal would be reversed and that the conviction would be quashed; and that their Lordships would give their reasons at a later date.

May 23. VISCOUNT SANKEY L.C.My Lords, the appellant, Reginald Woolmington, after a trial at the Somerset Assizes at Taunton on January 23, at which, after an absence of one hour and twenty-five minutes, the jury disagreed, was convicted at the Bristol Assizes on February 14 of the wilful murder of his wife on December 10, 1934, and was sentenced to death. He appealed to the Court of Criminal Appeal, substantially upon the ground that the learned judge had misdirected the jury by telling them that in the circumstances of the case he was presumed in law to be guilty of the murder unless he could satisfy the jury that his wife's death was due to an accident.
The appeal came before the Court of Criminal Appeal upon March 18 and was dismissed. The Court said "it may be that it might have been better" had the learned judge who tried the case said to the jury that if they entertained reasonable doubt whether they could accept his explanation they should either acquit him altogether or convict him of manslaughter only; but, relying upon s. 4, sub-s. 1, of the Criminal Appeal Act, 1907, which provides "that the court may, notwithstanding that they are of opinion that the point raised in the appeal might be decided in favour of the appellant, dismiss the appeal if they consider that no substantial miscarriage of justice has actually occurred," they dismissed the appeal.
Thereupon the Attorney-General gave his fiat certifying that the appeal of Reginald Woolmington involved a point of law of exceptional public importance and that in his opinion it was desirable in the public interest that a further appeal should be brought. The matter now comes before your Lordships' House.
The facts are as follows. Reginald Woolmington is 21 years old. His wife, who was killed, was 17 years old last December. They had known each other for some time and upon August 25 they were married. Upon October 14 she gave birth to a child. Shortly after that there appears to have been some quarrelling between them and she left him upon November 22 and went to live with her mother. Woolmington apparently was anxious to get her to come back, but she did not come. The prosecution proved that at about 9.15 in the morning of the 10th Mrs. Daisy Brine was hanging out her washing at the back of her house at 25 Newtown, Milborne Port. While she was engaged in that occupation, she heard voices from the next door house, No. 24. She knew that in that house her niece, Reginald Woolmington's wife, was living. She heard and could recognize the voice of Reginald Woolmington saying something to the effect "are you going to come back home?" She could not hear the answer. Then the back door in No. 24 was slammed. She heard a voice in the kitchen but could not tell what it said. Then she heard the sound of a gun. Upon that she looked out of the front window and she saw Reginald Woolmington, whose voice she had heard just before speaking in the kitchen, go out and get upon his bicycle, which had been left or was standing against the wall of her house, No. 25. She called out to him but he gave no reply. He looked at her hard and then he rode away.
According to Reginald Woolmington's own story, having brooded over and deliberated upon the position all through the night of December 9, he went on the morning of the 10th in the usual way to the milking at his employer's farm, and while milking conceived this idea that he would take the old gun which was in the barn and he would take it up that morning to his wife's mother's house where she was living, and that he would show her that gun and tell her that he was going to commit suicide if she did not come back. He would take the gun up for the purpose of frightening her into coming back to him by causing her to think that he was going to commit suicide. He finished his milking, went back to his father's house, had breakfast and then left, taking with him a hack saw. He returned to the farm, went into the barn, got the gun, which had been used for rook shooting, sawed off the barrels of it, then took the only two cartridges which were there and put them into the gun. He took the two pieces of the barrel which he had sawn off and the hack saw, crossed a field about 60 yards wide and dropped them into the brook. Having done that, he returned on his bicycle, with the gun in his overcoat pocket, to his father's house and changed his clothes. Then he got a piece of wire flex which he attached to the gun so that he could suspend it from his shoulder underneath his coat, and so went off to the house where his wife was living. He knocked at the door, went into the kitchen and asked her: "Are you coming back?" She made no answer. She came into the parlour, and on his asking her whether she would come back she replied she was going into service. He then, so he says, threatened he would shoot himself, and went on to show her the gun and brought it across his waist, when it somehow went off and his wife fell down and he went out of the house. He told the jury that it was an accident, that it was a pure accident; that whilst he was getting the gun from under his shoulder and was drawing it across his breast it accidentally went off and he was doing nothing unlawful, nothing wrong, and this was a pure accident. There was considerable controversy as to whether a letter in which he set out his grievances was written before or after the above events. But when he was arrested at 7.30 on the evening of the 10th and charged with having committed murder he said: "I want to say nothing, except I done it, and they can do what they like with me. It was jealousy I suppose. Her mother enticed her away from me. I done all I could to get her back. That's all."
The learned judge in summing-up the case to the jury said:-
"If you accept his evidence, you will have little doubt that she died in consequence of a gunshot wound which was inflicted by a gun which he had taken to this house, and which was in his hands, or in his possession, at the time that it exploded. If you come to the conclusion that she died in consequence of injuries from the gun which he was carrying, you are put by the law of this country into this position: The killing of a human being is homicide, however he may be killed, and all homicide is presumed to be malicious and murder, unless the contrary appears from circumstances of alleviation, excuse, or justification. 'In every charge of murder, the fact of killing being first proved, all the circumstances of accident, necessity, or infirmity are to be satisfactorily proved by the prisoner, unless they arise out of the evidence produced against him: for the law will presume the fact to have been founded in malice until the contrary appeareth.' That has been the law of this country for all time since we had law. Once it is shown to a jury that somebody has died through the act of another, that is presumed to be murder, unless the person who has been guilty of the act which causes the death can satisfy a jury that what happened was something less, something which might be alleviated, something which might be reduced to a charge of manslaughter, or was something which was accidental, or was something which could be justified."
At the end of his summing-up he added: "The Crown has got to satisfy you that this woman, Violet Woolmington, died at the prisoner's hands. If they must satisfy you of that beyond any reasonable doubt. If they satisfy you of that, then he has to show that there are circumstances to be found in the evidence which has been given from the witness-box in this case which alleviate the crime so that it is only manslaughter or which excuse the homicide altogether by showing that it was a pure accident."
In the argument before the Court of Criminal Appeal cases were cited by the learned counsel on either side and textbooks of authority were referred to, but the learned judges contented themselves with saying "there can be no question to start with that the learned judge laid down the law applicable to a case of murder in the way in which it is to be found in the old authorities." They repeated the learned judge's words and said: "No doubt there is ample authority for that statement of the law." They then relied, as I have already mentioned, upon the proviso tos. 4 of the Criminal Appeal Act, 1907, and dismissed the appeal.
It is true as stated by the Court of Appeal that there is apparent authority for the law as laid down by the learned judge. But your Lordships' House has had the advantage of a prolonged and exhaustive inquiry dealing with the matter in debate from the earliest times, an advantage which was not shared by either of the Courts below. Indeed your Lordships were referred to legal propositions dating as far back as the reign of King Canute (994-1035). But I do not think it is necessary for the purpose of this opinion to go as far back as that. Rather would I invite your Lordships to begin by considering the proposition of law which is contained in Foster's Crown Law, written in 1762, and which appears to be the foundation for the law as laid down by the learned judge in this case. It must be remembered that Sir Michael Foster, although a distinguished judge, is for this purpose to be regarded as a text-book writer, for he did not lay down the doctrine in any case before him, but in an article which is described as the "Introduction to the Discourse of Homicide." In the folio edition, published at Oxford at the Clarendon Press in 1762, at p. 255, he states: "In every charge of murder, the fact of killing being first proved, all the circumstances of accident, necessity, or infirmity are to be satisfactorily proved by the prisoner, unless they arise out of the evidence produced against him; for the law presumeth the fact to have been founded in malice, until the contrary appeareth. And very right it is, that the law should so presume. The defendant in this instance standeth upon just the same foot that every other defendant doth: the matters tending to justify, excuse, or alleviate, must appear in evidence before he can avail himself of them."
Now the first part of this passage appears in nearly every text-book or abridgment which has been since written. To come down to modern times, the passage appears in Stephen's Digest of the Criminal Law 16; also in the well known treatise of Archbold, Criminal Pleading, Evidence and Practice 4, which is the companion of lawyers who practise in the criminal courts. It also appears almost textually in Russell on Crimes 5and in the second edition of Halsbury's Laws of England 15, which purports to state the law as on May 1, 1933, where it is said: "When it has been proved that one person's death has been caused by another, there is a prima facie presumption of law that the act of the person causing the death is murder, unless the contrary appears from the evidence either for the prosecution or for the defence. The onus is upon such person when accused to show that his act did not amount to murder." The authority for that proposition is given as Foster, pp. 255, 290, and also the case of Rex v. Greenacre. 8 C. & P. 35
The question arises, Is that statement correct law? Is it correct to say, and does Sir Michael Foster mean to lay down, that there may arise in the course of a criminal trial a situation at which it is incumbent upon the accused to prove his innocence? To begin with, if that is what Sir Michael Foster meant, there is no previous authority for his proposition, and I am confirmed in this opinion by the fact that in all the text-books no earlier authority is cited for it. Before, however, one considers the earlier criminal law several facts have to be remembered.
First, it was not till 1907 that the Court of Criminal Appeal was set up. It is perfectly true that from time to time there have been famous occasions on which the Judges and Barons were called together to give their opinion upon the law bearing on murder. Examples of this will be found; in the year 1611, in the case of Mackalley 9 Co. Rep. 65b, all the Judges and Barons were moved to give their opinion; in 1706, in the case of Reg. v. Mawgridge (1706) Kelyng, 119; 17 St. Tr. 57, which case was argued before all the Judges and all of them except Lord Chief Justice Trevor were of opinion that Mawgridge was guilty of murder; and in 1843 in the case of Reg. v. M'Naughton (1843) 4 St. Tr. (N. S.) 847, where all the Judges gave answers to your Lordships' House upon the test of insanity.
M'Naughton's case (1843) 4 St. Tr. (N. S.) 847 stands by itself. It is the famous pronouncement on the law bearing on the question of insanity in cases of murder. It is quite exceptional and has nothing to do with the present circumstances. In M'Naughton'scase (1843) 4 St. Tr. (N. S.) 847 the onus is definitely and exceptionally placed upon the accused to establish such a defence. See Rex v. Oliver Smith (1910) 6 Cr. App. R. 19, where it is stated that the only general rule that can be laid down as to the evidence in such a case is that insanity, if relied upon as a defence, must be established by the defendant. But it was added that all the judges had met and resolved that it was not proper for the Crown to call evidence of insanity, but that any evidence in the possession of the Crown should be placed at the disposal of the prisoner's counsel to be used by him if he thought fit. See also Archbold, 29th Edition. 17, It is not necessary to refer to M'Naughton's case (1843) 4 St. Tr. (N. S.) 847 again in this judgment, for it has nothing to do with it.
It is true that at a later period certain cases were reserved by the judges for the consideration of the Court of Crown Cases Reserved, but many of the propositions with regard to criminal law are contained either in the summing-up of the judges or in text-books of authority as distinguished from a Court sitting in banc.
The learned author of Stephen's Digest of the Criminal Law 18 has an interesting note on the definition of murder and manslaughter. But his remarks are rather directed to the ingredients of the crime than to the proof of it. None the less, the author does not hesitate to tread a path of very robust criticism of the previous authorities. He speaks of the "intricacy, confusion and uncertainty of this branch of the law." He refers to the definition of Coke (1552-1623) and says "these passages, overloaded as Coke's manner is, with a quantity of loose, rambling gossip, form the essence of his account of murder." He describes Coke's chapter on manslaughter as "bewildering" and adds that Hale (1609-1676) treats manslaughter in a manner so meagre an yet so confused that no opinion of it can be obtained except by reading through chapters 38 to 40 and trying to make sense of them, and concludes by saying (p. 466) that Sir Michael Foster "to some extent mitigates the barbarous rule laid down by Coke as to unintentional personal violence."
Next it must be remembered that prisoners were not entitled to be represented by counsel, except in cases of felony, where counsel might argue the law on their behalf.
Thirdly, it must not be forgotten that the prisoner himself was not allowed to give evidence before the Act passed in 1898. 19
Bearing these considerations in mind, I now turn to some of the cases cited to us. I doubt whether in any of the early ones the question of the burden of proof was considered. Rather they were concerned with the ingredients of the crime of murder. One of the first difficulties was to settle the meaning of express and implied malice. It was not till 1825 that Bayley J, in Bromage v. Prosser (1825) 4 B. & C. 247, gave his famous definition of malice as meaning a wrongful act, done intentionally without just cause or excuse. The older cases were rather concerned to give examples of what might be malice. This was so in Mackalley's case. 9 Co. Rep. 65 b the prisoner was there accused of murdering a serjeant of London. The Courts were already considering cases of express or implied malice, and the passage in Coke appears simply to mean that if a man does acts calculated to kill, and actually does kill, that is evidence of malice or intent; in other words, evidence of one of the ingredients of murder, but it does not seem to be at all concerned with onus of proof or to support the statement of Sir Michael Foster on that point.
One of the most famous of the earlier treatises on criminal law was the History of the Pleas of the Crown by Sir Matthew Hale. That celebrated judge died on Christmas Day, 1675. It was known that he had left a treatise on the subject, and upon November 29, 1680, it was ordered by the House of Commons that the executors of Sir Matthew Hale be desired to print the manuscript relating to Crown Law and a Committee be appointed to take care of the printing thereof. It is not said that anything appears in Hale suggesting that the burden of proving his innocence lay on the prisoner. Looking at the edition of 1800 20 we find him again concerned with what malice is. It is headed "Concerning murder by malice implied presumptive, or malice in law," and Mackalley'scase 9 Co. Rep. 65 b is duly cited.
As appears from Foster's Pleas of the Crown, Sir Michael Foster was familiar with Hale's treatise (see his preface), and although in the course of his book he makes reference to Hale, he gives no authority for the proposition which is under discussion. It cannot be doubted that at that time in English Courts of justice the law of evidence was in a very fluid condition. Indeed in some civil cases it differed on different circuits. SeeWeeks v. Sparke (1813) 1 M. & S. 679, 687, 688 and also the note xx. in Stephen's Digest of the Law of Evidence. 21 It was only later that the Courts began to discuss such things as presumption and onus. In Wigmore on Evidence 22, a reference is made to the judgment of Weaver J. in the case of The State v. Brady (1902) Ia. 91 N. W. 801. This was cited in the case of Rex v. Stoddart 2 Cr. App. R. 217, 233:-
"The use of the terms 'presumption of guilt' and 'prima facie evidence of guilt' with reference to the possession of stolen goods has perhaps been too long indulged in by Courts and text-writers to be condemned; but we cannot resist the conclusion that, when so employed, these expressions are unfortunate, and often misleading. .... 'Presumptions' of guilt and 'prima facie' cases of guilt in the trial of a party charged with crime mean no more than that from the proof of certain facts the jury will be warranted in convicting the accused of the offence with which he is charged."
We were referred to the case of Rex v. Legg(6) Kelyng, 27, where it is said that at the Newgate Session in 1674 "one John Legg, being indicted for the murder of Mr. Robert Wise, it was upon the evidence agreed that if one man kill another, and no sudden quarrel appeareth, this is murder."Mackalley'scase 9 Co. Rep. 65 b is quoted as an authority and the report goes on: "and it lieth upon the party indicted to prove the sudden quarrel." With regard to Kelyng's Reports, the critics have greatly differed. Sir John Kelyng was Chief Justice of the King's Bench. He died in 1671 and whatever opinion may be held about him as a judge, upon which see Foss's Biographical Dictionary of The Judges of England 23, the critics have differed greatly upon the value of his Reports. Lord Campbell in his Life of Kelynge, Lives of the Chief Justices 24, says "He compiled a folio volume of decisions in criminal cases, which are of no value whatever." But, on the other hand, there are others who regard the book as of high authority: see Wallace on The Reporters 25.
The report of Legg's case Kelyng, 27 is meagre and unsatisfactory and cannot, I think, be held to mean that unless the prisoner prove the sudden quarrel, he must be convicted of murder. The word "onus" is used indifferently throughout the books, sometimes meaning the next move or next step in the process of proving or sometimes the conclusion of the whole matter.
Mawgridge's case Kelyng, 119; 17 St. Tr. 57, already referred to, was cited to us from Kelyng's Reports, but it was not reported by Kelyng for the simple reason that it was not tried till 1706. Campbell, in the Lives of the Chief Justices 26, says it was reported by Holt and makes caustic comments on Holt's English composition. It was added by Holt to his Edition of Kelyng's Reports and is described as a case of "great expectation" and gives the history of murder trials in English Courts from the earliest times. The case, however, is no authority for saying that the prisoner at any time is called upon to prove his innocence; quite the contrary. It is another of those cases which deal with malice and with what is such provocation as will make the act of killing to be manslaughter only.
In Hawkins' Pleas of the Crown 27: "It is also agreed, that no one can excuse the killing another, by setting forth in a special plea, that he did it by misadventure, or se defendendo, but that he must plead 'not guilty,' and give the special matter in evidence." This points to the fact that the verdict must be given not on any special pleading given by the prisoner but upon and as the result of the whole of the case, and it nowhere suggests that the burden of proof either at the beginning or at the end of a case is not on the prosecution.
The case of Rex v. Greenacre 8 C. & P. 35, 42 was certainly heard by a very distinguished judge, Tindal, C.J. But it is to be observed that the dictum relied upon by the prosecution in this case - namely: "that where it appears that one person's death has been occasioned by the hand of another, it behoves that other to show from evidence, or by inference from the circumstances of the case, that the offence is of a mitigated character, and does not amount to the crime of murder," was contained in the summing-up of the learned judge to the jury. It is the passage in Sir Michael Foster and this summing-up which are usually relied on as the authority for the proposition that at some particular time of a criminal case the burden of proof lies on the prisoner to prove his innocence. The presumption of innocence in a criminal case is strong: see Taylor On Evidence 28, and it is doubtful whether either of these passages means any such thing. Rather do I think they simply refer to stages in the trial of a case. All that is meant is that if it is proved that the conscious act of the prisoner killed a man and nothing else appears in the case, there is evidence upon which the jury may, not must, find him guilty of murder. It is difficult to conceive so bare and meagre a case, but that does not mean that the onus is not still on the prosecution.
If at any period of a trial it was permissible for the judge to rule that the prosecution had established its case and that the onus was shifted on the prisoner to prove that he was not guilty and that unless he discharged that onus the prosecution was entitled to succeed, it would be enabling the judge in such a case to say that the jury must in law find the prisoner guilty and so make the judge decide the case and not the jury, which is not the common law. It would be an entirely different case from those exceptional instances of special verdicts where a judge asks the jury to find certain facts and directs them that on such facts the prosecution is entitled to succeed. Indeed, a consideration of such special verdicts shows that it is not till the end of the evidence that a verdict can properly be found and that at the end of the evidence it is not for the prisoner to establish his innocence, but for the prosecution to establish his guilt. Just as there is evidence on behalf of the prosecution so there may be evidence on behalf of the prisoner which may cause a doubt as to his guilt. In either case, he is entitled to the benefit of the doubt. But while the prosecution must prove the guilt of the prisoner, there is no such burden laid on the prisoner to prove his innocence and it is sufficient for him to raise a doubt as to his guilt; he is not bound to satisfy the jury of his innocence.
This is the real result of the perplexing case of Rex v. Abramovitch(1914) 11 Cr. App. R. 45, which lays down the same proposition, although perhaps in somewhat involved language. Juries are always told that, if conviction there is to be, the prosecution must prove the case beyond reasonable doubt. This statement cannot mean that in order to be acquitted the prisoner must "satisfy" the jury. This is the law as laid down in the Court of Criminal Appeal in Rex v. Davies 29 Times L. R. 350; 8 Cr. App. R. 211, the headnote of which correctly states that where intent is an ingredient of a crime there is no onus on the defendant to prove that the act alleged was accidental. Throughout the web of the English Criminal Law one golden thread is always to be seen, that it is the duty of the prosecution to prove the prisoner's guilt subject to what I have already said as to the defence of insanity and subject also to any statutory exception. If, at the end of and on the whole of the case, there is a reasonable doubt, created by the evidence given by either the prosecution or the prisoner, as to whether the prisoner killed the deceased with a malicious intention, the prosecution has not made out the case and the prisoner is entitled to an acquittal. No matter what the charge or where the trial, the principle that the prosecution must prove the guilt of the prisoner is part of the common law of England and no attempt to whittle it down can be entertained. When dealing with a murder case the Crown must prove (a) death as the result of a voluntary act of the accused and (b) malice of the accused. It may prove malice either expressly or by implication. For malice may be implied where death occurs as the result of a voluntary act of the accused which is (i.) intentional and (ii.) unprovoked. When evidence of death and malice has been given (this is a question for the jury) the accused is entitled to show, by evidence or by examination of the circumstances adduced by the Crown that the act on his part which caused death was either unintentional or provoked. If the jury are either satisfied with his explanation or, upon a review of all the evidence, are left in reasonable doubt whether, even if his explanation be not accepted, the act was unintentional or provoked, the prisoner is entitled to be acquitted. It is not the law of England to say, as was said in the summing-up in the present case: "if the Crown satisfy you that this woman died at the prisoner's hands then he has to show that there are circumstances to be found in the evidence which has been given from the witness-box in this case which alleviate the crime so that it is only manslaughter or which excuse the homicide altogether by showing it was a pure accident." If the proposition laid down by Sir Michael Foster 29 or in the summing-up in Rex v. Greenacre 8 C. & P. 35, 42 means this, those authorities are wrong.
We were then asked to follow the Court of Criminal Appeal and to apply the proviso of s. 4 of the Criminal Appeal Act, 1907, which says: "the Court may, notwithstanding that they are of opinion that the point raised in the appeal might be decided in favour of the appellant, dismiss the appeal if they consider that no substantial miscarriage of justice has actually occurred." There is no doubt that there is ample jurisdiction to apply that proviso in a case of murder. The Act makes no distinction between a capital case and any other case, but we think it impossible to apply it in the present case. We cannot say that if the jury had been properly directed they would have inevitably come to the same conclusion.
In the result we decline to apply the proviso and, as already stated, we order that the appeal should be allowed and the conviction quashed.
My noble and learned friend Lord Atkin, who has to preside at the Privy Council to-day, asks me to say that he concurs in the opinion which I have delivered.

LORD HEWART C.J.My Lords, I concur.

LORD TOMLIN.My Lords, I also concur.

LORD WRIGHT.My Lords, I also concur.
Order of the Court of Criminal Appeal reversed, and conviction quashed: Further ordered that the cause be remitted back to the Court of Criminal Appeal to do therein as shall be just and consistent with this judgment.
Lords' Journals, April 5, 1935.

Solicitors for appellant: C. Butcher & Simon Burns, for Clarke, Willmott & Clarke, Taunton.
For the respondent: The Director of Public Prosecutions.


Tuesday, June 26, 2012

Supreme Court rulings against POLICE to handle Criminal cases in terms of investigation the cases


                                                 SUPREME COURT OF INDIA
                                                  (From Rajasthan High Court)
                                                  K.T. Thomas & R.P. Sethi, JJ
                                            IMPORTANT COURT RULINGS - I
                                                          2001(1) Supreme 263

Central Bureau of Investigation through S.P., Jaipur -   Appellant

Versus

State of Rajasthan & Anr. -   Respondents

Criminal Appeal No.1162 of 1998
With
Criminal Appeal Nos.1163-1166 of 1998
With
Criminal Appeal Nos.1163-1166 of 1998 and 42 of 2001
Decided on 19-1-2001

(i)  Code of Criminal Procedure, 1973 – Section 156(3) – Investigation into cognizable offences – Whether a Magistrate has power to order investigation by the CBI in non-cognizable cases ? (No) – Effect of Section 36 of the Code on Section 156(3) – Whether it substitutes or supplements? (the latter) – Delhi Special Police Establishment Act, 1964 – Sections 5 and 6 – Whether Sections 5 and 6 of Delhi Act confer power on a Magistrate to order the CBI to conduct investigation in exercise of power under Section 156 (3) of the Code?  (No) – Effects – Appeals allowed accordingly – Case Law reviewed.

Held:  What is contained in sub-section (3) of Section 156, is the power to order the investigation referred to in sub-section (1), because the words “order such an investigation as above-mentioned” in sub-section (3) are unmistakably clear as referring to the other sub-section.  Thus the power is to order an “officer in charge of a Police Station” to conduct investigation.

It is clear that a place or post declared by the Government as Police Station, must have a police officer in charge of it and if he, for any reason, is absent in the station house, the officer who is in next junior rank present in the Police Station, shall perform the function as officer in charge of that Police Station.  The primary responsibility for conducting investigation into offences in cognizable cases vests with  such police officer.  Section 156(3) of the Code empowers a magistrate to direct such officer in charge of the Police Station to investigate any cognizable case over which such magistrate has jurisdiction.

This means any other police officer, who is superior in rank to an officer in charge of a Police Station, can exercise the same powers of the officer in charge of a Police Station and when he so exercises the power he would do it in his capacity as officer   in charge of the Police Station.   But when a magistrate orders investigation under Section 156(3), he can only direct an officer in charge of a Police Station to conduct such investigation and not a superior police officer, though such officer can exercise such powers by virtue of Section 36 of the Code.  Nonetheless when such an order is passed, any police officer, superior in rank of such officer, can as well exercise the power to conduct investigation, and all such investigations would then be deemed to be the investigation conducted by the officer in charge of a Police Station.  Section 36 of the Code is not meant to substitute the magisterial power envisaged in Section 156(3) of the Code, though it could supplement the powers of an officer in charge of a Police Station.  It is permissible for any superior officer of police to take over the investigation from such officer in charge of the Police Station either suo moto or on the direction of the superior officer or even that of the government.

Section 5 of the Delhi Act enables the Central Government to extend the powers and jurisdiction of members of the Delhi Police Establishment to any area in a State.  Section 6 of the Delhi Act says that “nothing contained in Section 5 shall be deemed to enable any member of the Delhi Special Police Establishment to exercise powers and jurisdiction in any area in a State, not being a Union Territory or Railway area, without the consent of the Government of that State”.  A contention was made before us that when the State Government gives consent for the CBI to investigate any offence within the area of the State it would be permissible for the magistrate to direct the officer of the CBI to conduct such investigation.  What is envisaged in Sections 5 & 6 of the Delhi Act is not one of conferring power on a magistrate to order the CBI to conduct investigation in exercise of Section 156(3) of the Code.

That the magisterial power cannot be stretched under the said sub-section beyond directing the officer in charge of a Police Station to conduct the investigation.

Held consequently:  The appeals are accordingly allowed and the impugned orders of the magistrates as well as the judgments of the High Court are hereby set aside.  But this would not prejudice any investigation to be registered by the Police Station concerned in respect of the complaints involved in these appeals.
(ii)  Constitution of India – Articles 226 and 32 read with Article 142 (1) – Powers of High Court and Supreme Court to direct investigation into cognizable offences by CBI – Whether can be invoked?  (Yes, but sparingly) – Whether it has to be invoked in the facts of Criminal Appeal No.1165 of 1998? (Yes) – Order accordingly – Case Law referred.

Held:  Powers of the High Court under Article 226 of the Constitution and of the Supreme Court under Article 32 or Article 142(1) of the Constitution can be invoked, though sparingly, for giving such direction to the CBI to investigation in certain cases.

In Criminal Appeal No.1165 of 1998 when special leave was granted the orders of the magistrate directing the CBI to conduct investigation were stayed.  However, this Court permitted the complainant in the case, to move the magistrate again for appropriate order for investigation of the offences.  Pursuant thereto a direction was given by the magistrate concerned as the officer in charge of Hari Nagar Police Station, New Delhi, and on the strength of the said direction FIR No.32/99 was registered.  We considered the facts alleged in the said case and we deem it that it requires to be investigated by a specialised agency, like the CBI.  Hence we order the CBI to take up investigation in FIR No.32/99 of Hari Nagar Police Station.  These appeals are disposed of accordingly.

Cases referred:
1.                  State of West Bengal & Ors. V. Sampat Lal & Ors. 1985(1) SCC 317 : Distinguished.
2.                  State of Kerala v. Moosa Haji, 1993(2) KLT 609: 1994 Cr.L.J. 1268 (Ker.DB) (Affirmed by SC in Criminal Appeal No.410 of 1994 dated 8.4.1997).
3.                  Kashmiri Devi v. Delhi Administration & Anr., 1998 (Supp.) SCC 482: Relied on.
4.                  Maniyeri Madhavan v. Sub-Inspector of Police & Ors. 1994(1) SCC 536: Relied on.
5.                  Mohammed Anis v. Union of India & Ors., 1994 Supp.(1) SCC 145: Relied on.

Counsel for the Parties:
For the Appearing Parties: Altaf Ahmed, Additional Solicitor General, Ms. Indira Jaising, Sr. Advocate, T.C. Sharma, Hemant Sharma, P. Parmeswaran, A.D.N. Rao, Ms. Sumita Inna, Sushil Kumar Jain, A.P. Dhamija, Indeevar Goodwill (N.P), Ms. Manjula Gupta, Ms. Sanjay Ghosh, Ms. Anuja, Rohit Minocha, B.D. Sharma, Ajay Chaudhary, Sanjay Bansal, G.K. Bansal, Advocates.

VERY IMPORTANT POINTS
1. A Magistrate has no power to direct CBI to conduct investigation into any offence.  He  can direct an Officer-in-charge of a Police Station to conduct investigation into cognizable offence under Section 156(3) of Cr.P.C.
2. High Court has power under Article 226 and Supreme Court has power under Articles 32 and 142(1) of the Constitution for giving such direction to the CBI to conduct investigation in certain cases of cognizable offence within a State without the consent of that State Government or without any notification or order having been issued in that behalf under Section 6 of Delhi Special Police Establishment Act, 1946 under which CBI is an establishment.

JUDGEMENT
Thomas. J.  -  Has a magistrate power to direct the Central Bureau of Investigation to conduct investigation into any offence?  This question, seemingly ingenuous, has become compounded with divergent verdicts pronounced by different High Courts.  When the High Courts of Rajasthan and Delhi answered the question in the affirmative, the High Courts of Gujarat and Karnataka have answered it in the negative.  These appeals are filed at the instance of the Central Bureau of Investigation  (for short ‘CBI’) in challenge of the judgments of the High Courts of Rajasthan and Delhi by which the orders passed by certain magistrates were upheld.

2. It is not necessary to narrate the facts in each case.  The common feature in all the appeals is, when a complaint was filed before a magistrate alleging serious offences, he ordered investigation to be conducted by the CBI and on completion of the investigation final report was required to be filed.  We may now mention what happened thereafter to one of the cases before us.  The CBI challenged the order of the magistrate before the High Court of Delhi contending that the magistrate has no jurisdiction to order the CBI to conduct the investigation, at least without obtaining consent of the State Government concerned as required under Section 6 of the Delhi Special Police Establishment Act, 1946, (‘Delhi Act’ for short).  The CBI sought support for the said contention from some of the earlier decisions rendered by single judges of the Delhi High Court.  When the  matter was placed before a Division Bench of the Delhi High Court, a contrary view was taken and the Bench held that the magistrate has the power to do so.  The Division Bench of the Delhi High Court, in reaching the said view, has mainly relied on the observations made by this Court in State of West Bengal & Ors.,  Learned Judges highlighted the following observation contained in Sampat Lal:
“In our considered opinion, Section 6 of the Delhi Act does not apply when the Court gives a direction to the CBI to conduct an investigation and counsel for the parties rightly did not dispute this position.  In this view, the impugned order of the learned Single Judge and the appellate decision of the Division Bench appointing DIG of CBI to inquire into the matter would not be open to attack for want of sanction under Section 6 of the Delhi Act.”

3. Learned Judges gave emphasis to the words “when the court gives a direction to the CBI to conduct an investigation”.  The Division Bench of the High Court took it for granted that what this Court meant by the word “court” as used in the said observation in Sampat Lal should be understood as any court.  The Division Bench declined to accept the view of the Karnataka High Court (in one of the decisions) that what the Supreme Court, meant in Sampat Lal’s case is the High Court and not any court.

4.     It is unnecessary for us to resolve the controversy fomented up with the expression “court” in Sampat Lal because the question whether a magistrate has the power to direct the CBI to conduct the investigation was not the issue involved in Sampat Lal at all.  The fact situation in Sampat Lal was centered on the direction issued by the High Court.  That apart, it is not advisable to read more than what is contained in a judgment.

5.   For deciding the present question we may refer to the powers of the magistrate in ordering investigation.  There are three provisions in the Code of Criminal Procedure (for short “the Code”) by which a magistrate can order investigation to be conducted.  They are sections 155, 156 and 202 of the Code.  Among them Section 155 concerns only with the investigation into non-cognizable offences whereas Section 202 only enables a magistrate to have the assistance of an investigation conducted either by the police or by any other whether or not there is sufficient ground for proceeding with the complaint.  Hence we need not vex our mind with those two provisions.  It is Section 156 of the Code, which is relevant for the present purpose as it deals with investigation into cognizable offences.  The section reads thus:
“156.  Police officer’s power to investigate cognizable cases.-
(1)         Any officer in charge of a Police Station may, without the order of a Magistrate, investigate any cognizable case which a Court having jurisdiction over the local area within the limits of such station would have power to inquire into or try under the provisions of Chapter XIII.
(2)         No proceeding of a police officer in any such case shall at any stage be called in question on the ground that the case was one, which such officer was not empowered under this section to investigate.
(3)         Any Magistrate empowered under Section 190 may order such an investigation as above-mentioned.”

6. If the power of a magistrate to order investigation by the CBI  in non-cognizable cases cannot be traced in the above provision, it is not possible to trace such power in any other provision of the Code.  What is contained in sub-section (3) of Section 156, is the power to order the investigation referred to in sub-section (1), because the words ‘order such an investigation’ as above-mentioned in sub-section (3) are unmistakably clear as referring to the other sub-section.  Thus the power is to order an “officer in charge of a Police Station” to conduct investigation.

7. The two expressions “Police Station” and “officer in charge of a Police Station” have been given separate definitions in the Code.  Section 2(o) of the Code defines “officer in charge of a Police Station” as under:
“Officer in charge of a Police Station” includes, when the officer in charge of the Police Station is absent from the station-house or unable from illness or other cause to perform his duties, the police officer present at the station-house who is next in rank to such officer and is above the rank of constable or, when the State Government so directs, any other police officer so present.”
Section 2(s) defines a “Police Station” as under:
“Police Station” means any post or place declared generally or specially by the State Government, to be a Police Station, and includes any local area specified by the State Government in this behalf”.

8. It is clear that a place or post  declared by the Government as Police Station, must have a police officer in charge of it and if he, for any reason, is absent in the station house, the officer who is in next junior rank present in the Police Station, shall perform the function as officer in charge of that Police Station.  The primary responsibility for conducting investigation into offences in cognizable cases vests with such police officer.  Section 156(3) of the Code empowers a magistrate to direct such officer in charge of the Police Station to investigate any cognizable case over which such magistrate has jurisdiction.

9. In this context a reference has to be made to Section 36 of the Code which  says that “police officers superior in rank to an officer in charge of a Police Station may exercise the same powers, throughout the local area to which they are appointed, as may be exercised by such officer within the limit of his station”

10.   This means any other police officer, who is superior in rank to an officer in charge of a Police Station, can exercise the same powers of the officer in charge of a Police Station and when he so exercises the power he would do it in his capacity as officer in charge of the Police Station.  But when a magistrate orders investigation under Section 156(3), he can only direct an officer in charge of a Police Station to conduct such investigation and not a superior police officer, though such officer can exercise such powers by virtue of Section 36 of the Code. Nonetheless when such an order is passed, any police officer, superior in rank of such officer, can as well exercise the power to conduct investigation, and all such investigations would then be deemed to be the investigation conducted by the officer in charge of a Police Station.  Section 36 of the Code is not meant to substitute the magisterial power envisaged in Section 156(3) of the code, though it could supplement the powers of an officer in charge of a Police Station.  It is permissible for any superior officer of police to take over the investigation from such officer in charge of the Police Station either suo motto or on the direction of the superior officer or even that of the government.

11. In a decision rendered by the Kerala High Court the complaint was forwarded by  a magistrate to the Inspector General of Police (Criminal) for investigation under Section 156(3) of the Code.  When the State challenged the said order of the magistrate the High Court held that a magistrate cannot order any police officer, other than one who is in charge of a Police Station to conduct the investigation, though the Government in exercise of their executive powers can authorise any superior police officer to investigate a case and such direction can be issued by the higher officer to his subordinate officer in the police department.  The said decision is reported in State of Kerala v. Moosa Haji and also in 1994 Criminal law Journal 1268.  A two Judge Bench of this Court (G.N. Ray and G.B. Pattanaik, JJ) has affirmed the said decision of the Kerala High Court as per order dated 8.4.1997 in Criminal Appeal No.410 of 1994.  The principle involved in the said case would as well be applicable when the magistrate is approached  to direct the CBI for conducting the investigation.

12.   Section 5 of the Delhi Act enables the Central Government to extend the powers and jurisdiction of members of the Delhi Police Establishment to any area in a State.  Section 6 of the Delhi Act says that “nothing contained in Section 5 shall be deemed to enable any member of the Delhi Special Police Establishment to exercise powers and jurisdiction in any area in a State, not being a Union Territory or railway area, without the consent of the Government of  that State”.  A contention was made before us that when the State Government gives consent for the CBI to investigate any offence within the area of the State it would be permissible for the magistrate to direct the officer of the CBI to conduct such investigation.  What is envisaged in Sections 5 & 6 of the Delhi Act is not one of the conferring power on a magistrate to order the CBI to conduct investigation in exercise of Section 156(3) of the Code.

13.   True, powers of the High Court under Article 226 of the Constitution and of the Supreme Court under Article 32 or Article 142(1) of the Constitution can be invoked, though sparingly, for giving such direction to the CBI to investigate in certain cases, [vide Kashmiri Devi v. Delhi Administration and Anr. and Maniyeri Madhavan v. Sub-Inspector of Police and Ors.]  A two Judge Bench of this Court has by an order dated 10.3.1989 referred the question whether the High Court can order the CBI to investigate a cognizable offence committed within a State without the consent of the State Government or without any notification or order having been issued in that behalf under Section 6 of the Delhi Act.
“True it is that a Division Bench of this Court made an order on March 10, 1989 referring the question whether a court can order the CBI, an establishment under the Delhi Special Police Establishment Act, to investigate a cognizable offence committed within a State without the consent of that State Government or without any notification or order having been issued in that behalf.  In our view, merely because the issue is referred to a large Bench everything does not grind to a halt.  The reference to the expression ‘court’ in the order cannot in the context mean the Apex Court for the reason that the Apex Court has been conferred extraordinary powers by Article 142(1) of the Constitution so that it can do complete justice in any cause or matter pending before it”.

15.   As the present discussion is restricted to the question whether a magistrate can direct the CBI to conduct investigation in exercise of his powers under Section 156(3) of the Code it is unnecessary for  us to travel beyond the scope of that issue.  We, therefore, reiterate that the magisterial power cannot be stretched under the said sub-section beyond directing the officer in charge of a Police Station to conduct the investigation.

16. The appeals are accordingly allowed and the impugned orders of the magistrates as well as the judgments of the High Court are hereby set aside.  But this would not prejudice any investigation to be conducted on the FIR registered or to be registered by the Police Station concerned in respect of the complaints involved in these appeals.

17. In Criminal Appeal No. 1165 of 1998, when special leave was granted the orders of the magistrate directing the CBI to conduct investigation were stayed.  However, this Court permitted the complainant in the case, to move the magistrate again for appropriate order for investigation of the offences.  Pursuant thereto a direction was given by the magistrate concerned to the officer in charge of Hari Nagar Police Station, New Delhi, and on the strength of the said direction FIR No.32/99 was registered.  We considered the facts alleged in the said case and we deem it that it requires to be investigated by a specialised agency, like the CBI. Hence we order the CBI to take up investigation in FIR No. 32/99 of Hari Nagar Police Station.

18. These appeals are disposed of accordingly.
Appeals are accordingly allowed.

DP3 Complaint against Father-in-Law and Mother-in-Law [ Dowry Givers and Abettors] to Police Station,


                                                                                                             From:Complainant


To
The Station House Officer
O/o 498a Greedy Bench
498a Police Station.

Sir,
Sub: Complaint against 498a  FIL & others


I, Name,  S/o ??????, the Complainant herein, Age: atttained Puberty, Occupation: Private employee, R/o #2728, A.P. - 498.  hereby state that respectfully submit that


On Date  my wife Smt. 498a [aka: 498a-wifename ] filed a criminal complaint with FIR No.114/2010 & CC No. 170/2011 on the file of your [498a Bench] Police Station and Hon’ble Court of First Additional Metropolitan Magistrate respectively. The SHO/IO have reportedly investigated and verified the facts and filed a charge sheet.

In the complaint Smt. 498a  the de facto complainant claimed that she had given a sum of
Rs. 1,00,000 as dowry and  purportedly given to me during the marriage ceremony held on date  @ 498a marriage. The IO/SHO have reportedly investigated and verified the facts and filed a charge sheet with the memo of evidence these are part of your station records.  In your memo of evidence you have further affirmed and testified to a court of law to the fact of giving and taking of dowry and its related abetments by the concerned and named offenders.

In this connection it is submitted for you kind information that “dowry giving and its abetment” is a cognizable offence U/s 3 of DP Act, 1961. I need not emphasize or over state this aspect as your station authourities are not only well versed with penal code in general and specific case detail in particular. However, a FIR and a Criminal case ought to have being registered by the SHO which was not done for reasons best known to you.

This is therefore to lodge a formal complaint against Smt 498a, the offenders, the abettors of the crime as here under.

Dowry Givers: 1). 498a FIL [Occupation]
2). 498a MIL [Occupation]


Dowry Abettors: 3). 498a BIL [Occupation]
4). 498a SIL [Occupation]
                          5). 498a Relatives & Others 

It is submitted further that all these records and details are already with you and you have also testified in a court of law about the crime and its details.

This is therefore to request you to please book a case and register a FIR against the named offenders and abettors in terms of provision under section 3 of DPAct, 1961.

You may also kindly inform the reasons and justifications as to why you choose to ignore consciously and deliberately to file the instant case and register the FIR as soon as your received the details of the crime on 23/05/10 at your station.

Kindly expedite your investigation and keep me posted with details of FIR.

Thanking you, Yours faithfully,


                                                                                        [Complainant]


Copy to: 1) ACP O/o ACP, North Sub-divisional, Madhavara
2) DCP [Law and Order] O/o CP - Vizag City.
3) CP O/o CP - Vizag city.
4) IGP[Andhra Region] O/o DGP, Saifabad, Hyd.
5) DGP O/o DGP, Saifabad, Hyd.
6) Principal Secretary to Home Minsiter, O/o HM, Secretariat, Hyd.
7) Principal Secretary to Chief Secretary, O/o CS, Govt of AP Secretariat, Hyd.

Monday, June 25, 2012

FIR is not a precondition to get Anticipatory Bail


                                                        Andhra Pradesh High Court

K. Rajasekhara Reddy

vs

State Of A.P.

Date of judgment: 13 July, 1998

Equivalent citations: 1998 (4) ALD 677, 1998 (2) ALD Cri 191

Bench: B S Reddy

ORDER
1. A short but interesting and important question arises for consideration in this petition. The point for decision is whether this Court, in exercise of its power under Section 438 of Cr.P.C. can direct the release of a person against his anticipated arrest on a mere apprehension or suspicion that a person is likely to be arrested on a possible accusation of a non-bailable offence?

2. The petitioner says that he was the Manager of Vasundhara Chit Fund and Finance, Amangal. According to him, some disputes arose between the partners of the said Chit Fund and Finance. It is alleged that other partners started harassing the petitioner demanding huge amounts from him. Civil disputes amongst the partners are stated to be pending. While the matter stood thus, the other partners of the Chit Fund company are alleged to have given a complaint to the Inspector of Police, Amangal Police Station against the petitioner. Even according to that the Inspector of Police is demanding the family members of the petitioner to produce the petitioner immediately in the Police Station. It is stated that the Inspector of Police, Amangal Police Station is trying to harass him and obviously with an intention to extract some written documents from the petitioner to enable the other partners for recovery of money from the petitioner.

3. It is specifically stated that the petitioner has reasonable apprehension that he will be arrested by the Police and 'illegally detained' without registering a crime. The petitioner claims that the Court can direct his release in the event of his arrest, even though no crime as such is registered.

4. There is no material whatsoever available on record to satisfy the Court that the apprehension entertained by the petitioner is a reasonable one, except the averments made in the petition.

5. The learned Public Prosecutor, upon the instructions form the Inspector of Police, Amangal Police Station, submits that no complaint whatsoever has been received in the Police Station against the petitioner from any of the partners of the said Chit Fund company. According to the Police, the petitioner's presence is not required in connection with the investigation of any crime.

6. It would be appropriate to have a look at Section 438 of Cr.P.C.
"438. Direction for grant of bail to person apprehending arrest :--(1) When any person has reason to believe that he may be arrested on an accusation of having committed a non-bailable offence, he may apply to the High Court or the Court of Session for a direction under this Section; and that Court may, if it thinks fit, direct that in the event of such arrest, he shall be released on bail."

7. An analysis of the said Section would disclose that a person invoking the jurisdiction of the Court must have the reason to believe that he is likely to be arrested on an accusation of having committed a non-bailable offence.

8. In Gurbaksh Singh Sibbia etc. v. the State of Punjab, , the Apex Court observed that "the filing of a first information report is not a condition precedent to the exercise of the power under Section 438. The imminence of a likely arrest founded on a reasonable belief can be shown to exist even if an FIR is not yet filed."

9. A Division Bench of this Court in K.Dayanand Rao and others v. State of A.P., 1992 A.P.L.J. (Crl.) 281, held that "Section 438 Cr.P.C. does not contain a condition that unless the crime number is mentioned or the FIR is filed no application thereunder would lie. Therefore reading into the Section such a condition not imposed by the Statute. Mentioning of crime number in the application under Section 438 Cr.P.C. is not a pre-requisite for its maintainability.

10. In Thayyanbadi Meethal Kunhiraman and another v. S.I. of Police, Panoor, 1985 Crl. L.J. 1111, the Kerala High Court observed that:
"In order to invoke the provision, it is not necessary that a case has already been registered or even a first information has been lodged."
The Court however, observed that:
"The Court must be satisfied that there is a reasonable chance of arrest in connection with the specified accusation."
Similar is the view taken by the Calcutta High Court in Re: Digendra Sarkar and others, 1982 Crl.LJ. 2197. The Calcutta High Court observed:
"The filing of an FIR is not a condition precedent to the application for anticipatory bail and in such case, the person having reason to believe that he may be arrested on an accusation of non-bailable offence may appear before the High Court or the Court of Session, not for the purpose of being taken into custody of the Court but for getting an order for his release in case he is arrested."

11. It is thus clear that filing of an FIR and registration of a crime by the Police is not a condition precedent to the exercise of the power under Section 438 of Cr.P.C. Jurisdiction of this Court can be invoked by any person even in the absence of registration of a crime and there is no requirement of furnishing the crime number as such. There is also no requirement that a copy of the F.I.R. should be made available for the purpose of considering the application under Section 438 of Cr.P.C.

12. Does it mean that an applicant is entitled for the relief under Section 438 of Cr.P.C. on the basis of mere apprehension? It would be once again appropriate to refer to the principle laid down in Gurbaksh Singh's case (supra). The Apex Court held that:
"Section 438(1) of the Code lays down a condition which has to be satisfied before anticipatory bail can be granted. The applicant must show that he has "reason to believe" that he may be arrested for a
non-bailable offence. The use of the expression "reason to believe" shows that the belief that the applicant may be so arrested must be founded on reasonable grounds. Mere 'fear' is not 'belief, for which reason it is not enough for the applicant to show that he has some sort of a vague Apprehension that some one is going to make an accusation against him, in pursuance of which he may be arrested. The grounds on which the belief of the applicant is based that he may be arrested for a non-bailable offence, must be capable of being examined by the Court objectively, because it is then alone that the Court can determine whether the applicant has reason to believe that he may be so arrested. Section 438(1), therefore, cannot be invoked on the basis of vague and general allegations, as if to arm oneself in perpetuity against a possible arrest. Otherwise, the number of applications for anticipatory bail will be as large as, at any rate, the adult populace. Anticipatory bail is a device to secure the individual's liberty; it is neither a passport to the commission of crimes nor a shield against any and all kinds of accusations, likely or unlikely."

13. The belief entertained by an applicant that he may be arrested for a non-bailable offence must be capable of examining by the Court objectively. There must be clear and definite material before the Court to examine the basis on which the applicant entertained such apprehension. It cannot be left to the wild imagination of an applicant and threat of arrest must be an existing one and based on a reasonable apprehension. It does not contemplate any future contingency. The apprehension must relate to an accusation of having already committed a non-bailable offence. Such apprehension reasonably entertained by a person could be gathered from variety of circumstances. Such apprehension can reasonably be entertained by a person even before registration of a crime or filing of a first information report. But vague, indefinite allegations or mere suspicion entertained by an applicant is not enough to invoke the extraordinary power of this Court under Section 438 of Cr.P.C. The material produced, before the Court by an applicant in support of his plea of entertaining a reasonable apprehension that he is likely to be arrested in connection with the commission of a non-bailable offence must be capable of being examined objectively by the Court. Self-serving averments by the applicant would not be enough. A person invoking the jurisdiction of the Court under Section 438 of Cr.P.C. is duty bound to make available such material to the Court to enable the Court to examine that material objectively and to discern as to whether the apprehension entertained by such person is a reasonable one or not. "a belief can be said to be founded on reasonable ground only if there is something tangible to go by on the basis of which it can be said that the applicant's apprehension that he may be arrested is genuine." In the absence of such material, the Court cannot issue necessary directions to release the applicant in the event of his arrest, as the Court would not be in a position to specify as to in what connection and in respect of what accusation the applicant is required to be released. The Court is bound to indicate as against what accusation a person is required to be released by the Police in the event of arrest. In the absence of tangible material, any direction to release an applicant under Section 438 of Cr.P.C. would amount to grant of a blanket order of anticipatory bail.

14. The expression 'reason to believe' in Section 438 of Cr.P.C. is of definite connotation. It is the key in appreciating the content and scope of power of the Court. The expression 'reason to believe' mean that there must be some rational basis for an applicant to form the belief that he is likely to be arrested on an accusation of having committed a non-bailable offence. Such belief cannot be entertained by a person on mere suspicion, gossip or wild rumour. The words 'reason to believe' in the context of the expression 'reason to believe' that he may be arrested on an accusation of having committed a non-bailable offence 'would mean the sagacity of rationally inferring the commission of a non-bailable offence based on specially articulate fact. Mere belief is not enough. It must be a reasonable belief.

15. It may be difficult to give an exact meaning and definition of the word reason. Reason means "A faculty of the mind by which it distinguishes truth from falsehood, good from evil, and which enables the possessor to deduce inference from facts or from propositions. Also an inducement motive, or ground for action, as in the phrase "reasons for an appeal." (Black's Law Dictionary (Fifth Edition)). Reason to believe means "what a reasonable man would believe and not what each individual petitioner would believe" (Stroud's Judicial Dictionary (Fifth Edition)).

16. Therefore, vague assertion that a person is likely to be arrested on an accusation of having committed a non-bailable offence would not amount to entertaining a reasonable belief. Such reasonable belief can be entertained only on existing facts capable of rationally inferring the commission of a non-bailable offence. It cannot be left to the mere imagination of an applicant.

17. Judged in this back-ground, the averments made in the petition do not disclose any cause warranting interference of this Court. The concerned Police are yet to receive an accusation against the petitioner. The intention of the probable complainant to accuse the petitioner of having committed any non-bailable offence is yet to crystalise and at any rate not demonstrable. There is no such material made available by the petitioner. Such a threat or an attempt to implicate or accuse a person of having committed a non-bailable offence could be reasonably inferred from variety of factors and circumstances. The facts do not warrant any such inference and the averments made in the petition at the most may disclose some sort of suspicion or fear in the mind of the petitioner. It would not be enough that such suspicion or fear is entertained by the petitioner for granting the relief.

18. The petition fails and is accordingly dismissed.

19. The Court acknowledges the valuable assistance given by Sri. C. Padmanabha Reddy, learned Senior Counsel appearing as Amicus curaie.

Sunday, June 24, 2012

FIR not mandatory to get Anticipatory Bail

                                        IN THE SUPREME COURT OF INDIA
                                      CRIMINAL APPELLATE JURISDICTION
                                   CRIMINAL APPEAL NOS. 1178-1179 OF 2009
                                 (Arising out of S.L.P. (Criminal) Nos. 5563-5564 of 2008)


SAVITRI AGARWAL & ORS. -- APPELLANT (S)

VERSUS

STATE OF MAHARASHTRA & ANR. -- RESPONDENT (S)

JUDGMENT
D.K. JAIN, J.:

Leave granted.

2. Challenge in these two appeals is to the judgment and order dated 2nd July, 2008 passed by the High Court of Judicature at Bombay, Nagpur Bench, Nagpur in Criminal Applications No.250 and 2081 of 2008, whereby the said two applications filed by the State and the complainant respectively, have been allowed and the protection granted to the appellants by the Sessions Judge, Amravati vide order dated 18th December, 2007 in terms of Section 438 of the Code of Criminal Procedure, 1973 (for short `the Code') has been withdrawn. The appellants herein are the mother-in-law, father-in-law, husband and the younger brother of the father-in-law of the deceased-Laxmi. They are accused of having committed offences punishable under Sections 498A, 304-B read with Section 34 of the Indian Penal Code, 1860 (for short `the IPC') and Sections 3 and 4 of the Dowry Prohibition Act, 1961.

3.Material facts, leading to the filing of these appeals, are as follows: The deceased-Laxmi got married to appellant No.3 on 26th January, 2006. On 13th October, 2006, they were blessed with a baby boy. On 6th December, 2007 at about 4.30 p.m., appellant No.2 (father-in-law) is stated to have heard the cries of Laxmi and when he rushed to the second floor of the house, he saw her burning. He tried to douse the fire. Laxmi told him that her son was lying in the bathroom. He rushed to the bathroom and found that the child also had burns. Laxmi and her child were removed to the hospital. At  about 6.40 p.m., her statement was recorded by the Executive Magistrate wherein she stated that she and her son caught fire when she was pouring kerosene oil in the lamp which accidentally fell down; the oil got spilled over and both of them got burnt. At about 10.55 p.m., the minor child expired. On receiving the intimation, parents of Laxmi reached the hospital at about 11.30 p.m. the same night. On 7th December, 2007, at about 1.40 p.m. another statement of Laxmi was recorded by the Executive Magistrate wherein again she reiterated that she had got burnt accidentally.

4.On 8th December, 2007, father of Laxmi lodged a complaint with Police Station City Kotwali, Amravati against the appellants, inter alia, alleging that after the marriage of his daughter on 26th January, 2006, the appellants were torturing her for not meeting dowry demand of Rs.2 lakhs and earlier on 15th July, 2006, due to torture she had left the matrimonial home, intending to commit suicide but due to intervention of the relatives, she returned back to Amravati. On the said complaint, the police registered an FIR against the appellants for offences under Section 498A read with Section 34, IPC and Sections 3 and 4 of the Dowry Prohibition Act, 1961.

5.On 6th December, 2007 the appellants applied for grant of anticipatory bail before the Sessions Judge, Amravati, who, vide order dated 10th December, 2007, initially granted interim protection to them from arrest till the next date of hearing i.e. 17th December, 2007. On 16th December, 2007, Laxmi expired and offence under Section 304-B IPC came to be added against the appellants. On 18th December, 2007, after hearing both sides and upon taking into consideration the said two dying declarations made by the deceased - Laxmi, statements of the complainant and witnesses and after perusing the case diary, the learned Sessions Judge confirmed the anticipatory bail granted to the appellants.

6.Aggrieved, the State of Maharashtra and the complainant filed petitions before the High Court for cancellation of anticipatory bail granted to the appellants. As noted earlier, by the impugned order, the High Court has cancelled the anticipatory bail granted to the appellants, on the ground that the Sessions Judge had failed to apply his mind to certain vital circumstances viz. - absence of mention of lantern and match stick in the panchnama; necessity of lantern and its lighting at 4 p.m. in the afternoon when the house was equipped with an inverter; the daughter-in-law doing such risky work with one year old child, particularly when elders in the family were present in the house and had everything been well in the house, there was no occasion for the parents of the deceased to implicate her in-laws. Inter alia, observing that the evidence, which directly involved the appellants, had been ignored, rendering the order passed by the Sessions Judge perverse, as noted above, the High Court has set aside the said order. The High Court has also noted that offences complained of, being of serious nature, there was no ground to grant anticipatory bail to the appellants. Being aggrieved, the appellants are before us in these appeals.

7.Mr. Uday U. Lalit, learned senior counsel appearing for the appellants contended that the High Court has failed to appreciate the factual background of the case, particularly the fact that in both the dying declarations recorded by the Executive Magistrate, the deceased had not levelled any allegation against the appellants for demanding any dowry or for torturing her for any other purpose. It was strenuously urged that the second dying declaration recorded on 7th December, 2007 at about 1.40 p.m. was in the presence and perhaps at the instance of the father of the deceased, who admittedly had arrived in the hospital on 6th December, 2007 at 11.30 p.m., yet the deceased did not level any allegation against the appellants. Learned counsel argued that the anticipatory bail having been granted by the Sessions Judge upon consideration of the relevant material placed before him by the prosecution, viz. the dying declarations, the statements recorded by the investigating officer and the case diary, in the absence of any complaint by the Investigating Officer that the appellants were not cooperating in the investigations after the grant of interim protection on 10th December, 2007, or that they had misused the anticipatory bail granted to them, there was no other overwhelming circumstance before the High Court, warranting interference with the judicial discretion exercised by the Sessions Judge and cancellation of bail.

8.Per contra, Mr. Sekhar Naphade, learned senior counsel, appearing on behalf of the State strenuously urged that the circumstances relied upon by the High Court in its order cancelling the anticipatory bail point a needle of suspicion at the appellants and therefore, to elicit the truth custodial interrogation of the appellants would be necessary. Highlighting the fact that the deceased had left her matrimonial home on 15th July, 2006 intending to commit suicide because of torture by the appellants and had returned back to her matrimonial home on  being persuaded by the relatives of both sides on the assurance by the appellants that she would not be harassed, the incident in question raises presumption against the appellants in terms of Section 304-B IPC. Learned counsel for the complainant, supporting the orders passed by the High Court, submitted that since order granting anticipatory bail had been passed by the Sessions Judge by ignoring evidence and material on record and the nature of offence, in the light of the decision of this Court in Puran Vs. Rambilas & Anr.1, the High Court was justified in cancelling the bail.

9.Before examining the merits of the rival contentions, we deem it appropriate to re-capitulate the background in which Section 438 was inserted in the Code and the broad parameters to be kept in view while dealing with an application under the said provision because despite plethora of case law on the subject including a decision of the Constitution Bench in Shri Gurbaksh Singh Sibbia & Ors. Vs. State of Punjab2 certain misgivings in regard to the concept and scope of the said provision still seem to prevail. 1 (2001) 6 SCC 338. 2 (1980) 2 SCC 565

10.Sec. 438 of Code confers on the High Court and the Court of Session, the power to grant `anticipatory bail' if the applicant has `reason to believe' that he may be arrested on accusation of having committed a non-bailable offence. The expression `anticipatory bail' has not been defined in Code. But as observed in Balchand Jain Vs. State of M.P.3, `anticipatory bail' means `bail in anticipation of arrest'. The expression `anticipatory bail' is a misnomer inasmuch as it is not as if bail is presently granted by the Court in anticipation of arrest. When a competent court grants `anticipatory bail', it makes an order that in the event of arrest, a person shall be released on bail. There is no question of release on bail unless a person is arrested and, therefore, it is only on arrest that the order granting anticipatory bail becomes operative. The Court went on to observe that the power of granting `anticipatory bail' is somewhat extraordinary in character and it is only in `exceptional cases' where it appears that a person might be falsely implicated, or a frivolous case might be launched against him, or "there are reasonable grounds for holding that a person accused of an offence is not likely to abscond, or otherwise misuse his liberty while on bail" that such power may be exercised. The power being rather unusual in nature, it is entrusted only to the 3 (1976) 4 SCC 572 higher echelons of judicial service, i.e. a Court of Session and the High Court. Thus, the ambit of power conferred by Section 438 of the Code was held to be limited.

11.Historically, the Code of Criminal Procedure, 1898 (old Code) did not contain specific provision corresponding to Section 438 of the present Code of 1973. Under the old Code, there was a sharp difference of opinion amongst various High Courts on the question whether a Court had inherent power to make an order of bail in anticipation of arrest. The preponderance of view, however, was that it did not have such power. The Law Commission of India considered the question and vide its 41st Report, recommended introduction of an express provision in this behalf.

12.The suggestion of Law Commission was accepted by Central Govt. and in Draft Bill of CrPC of, 1970, Clause 447 conferred an express power on High Court & Court of Session to grant anti’tory bail.

13.The Law Commission again considered the issue and stated; "The Bill introduces a provision for the grant of anticipatory bail. This is substantially in accordance with the recommendation made by the previous Commission. We agree that this would be a useful addition, though we must add that it is in very exceptional cases that such a power should be exercised.
We are further of the view that in order to ensure that the provision is not put to abuse at the instance of unscrupulous petitioners, the final order should be made only after notice to the Public Prosecutor. The initial order should only be an interim one. Further, the relevant section should make it clear that the direction can be issued only for reasons to be recorded, and if the court is satisfied that such a direction is necessary in the interests of justice.
It will also be convenient to provide that notice of the interim order as well as of the final orders will be given to the Superintendent of Police forthwith". [Law Commission of India, Forty-eighth Report, para 31]

14. Keeping in view the reports of the Law Commission, Section 438 was inserted in the Code. Sub-section (1) of Section 438 enacts that when any person has reason to believe that he may be arrested on an accusation of having committed a non-bailable offence, he may apply to the High Court or to the Court of Session for a direction that in the event of his arrest he shall be released on bail, and the Court may, if it thinks fit, direct that in the event of such arrest he shall be released on bail. Sub-section (2) empowers the High Court or the Court of Session to impose conditions enumerated therein. Sub- section (3) states that if such person is thereafter arrested without warrant by an officer in charge of a police station on such accusation, he shall be released on bail.

15. In Gurbaksh Singh Sibbia (supra), the Constitution Bench was called upon to consider correctness or otherwise of principles laid down by the Full Bench of High Court of Punjab & Haryana in Gurbaksh Singh Sibbia Vs. State of Punjab4. The Full Bench of the High Court summarized the law relating to anticipatory bail as reflected in Section 438 of the Code and laid down eight principles which were to be kept in view while exercising discretionary power to grant anticipatory bail.

16. The Constitution Bench while disagreeing in principle with the constraints which the High Court had engrafted on the power conferred by Section 438 of the Code, inter alia, observed that the Legislature has conferred a wide discretion on the High Court and the Court of Session to grant anticipatory bail since it felt, firstly, that it would be difficult to enumerate the conditions under which AIR 1978 P&H 1 : 1978 Crl LJ 20 (FB)  anticipatory bail should or should not be granted and secondly, because the intention was to allow the higher courts in the echelon a somewhat free hand in the matter of grant of relief in the nature of anticipatory bail. The Court said;
Generalizations on matters which rest on discretion and the attempt to discover formulae of universal application when facts are bound to differ from case to case frustrate the very purpose of conferring discretion. No two cases are alike on facts and therefore, Courts have to be allowed a little free play in the joints if the conferment of discretionary power is to be meaningful. There is no risk involved in entrusting a wide discretion to the Court of Session and the High Court in granting anticipatory bail because, firstly, these are higher Courts manned by experienced persons, secondly, their orders are not final but are open to appellate or revisional scrutiny and above all because, discretion has always to be exercised by Courts judicially and not according to whim, caprice or fancy. On the other hand, there is a risk in foreclosing categories of cases in which anticipatory bail may be allowed because life throws up unforeseen possibilities and offers new challenges. Judicial discretion has to be free enough to be able to take these possibilities in its stride and to meet these challenges.

17. The Court felt that wide discretionary power conferred by the Legislature on the higher echelons in the criminal justice delivery system cannot be put in the form of straight-jacket rules for universal application as the question whether to grant bail or not depends for its answer upon a variety of circumstances, the cumulative effect of which must enter into the judicial verdict. A circumstance which, in a given case, turns out to be conclusive, may or may not have any significance in another case. While cautioning against imposition of unnecessary restrictions on the scope of the Section, because, in its opinion, over generous infusion of constraints and conditions, which were not to be found in Section 438 of the Code, could make the provision constitutionally vulnerable, since the right of personal freedom, as enshrined in Article 21 of the Constitution, cannot be made to depend on compliance with unreasonable restrictions, the Constitution Bench laid down the following guidelines, which the Courts are required to keep in mind while dealing with an application for grant of anticipatory bail:
i) Though the power conferred under Section 438 of the Code can be described as of an extraordinary character, but this does not justify the conclusion that the power must be exercised in exceptional cases only because it is of an extraordinary character. Nonetheless, the discretion under the Section has to be exercised with due care and circumspection depending on circumstances justifying its exercise.
ii) Before power under sub-section (1) of Section 438 of the Code is exercised, the Court must be
satisfied that the applicant invoking the provision has reason to believe that he is likely to be arrested for a non-bailable offence and that belief must be founded on reasonable grounds. Mere "fear" is not belief, for which reason, it is not enough for the applicant to show that he has some sort of vague apprehension that some one is going to make an accusation against him, in pursuance of which he may be arrested. The grounds on which the belief of the applicant is based that he may be arrested for a non-bailable offence, must be capable of being examined by the Court objectively. Specific events and facts must be disclosed by the applicant in order to enable the Court to judge of the reasonableness of his belief, the existence of which is the sine qua non of the exercise of power conferred by the Section.
iii) The observations made in Balchand Jain's case (supra), regarding the nature of the power conferred by Section 438 and regarding the question whether the conditions mentioned in Section 437 should be read into Section 438 cannot be treated as conclusive on the point. There is no warrant for reading into Section 438, the conditions subject to which bail can be granted under Section 437(1) of the Code and therefore, anticipatory bail cannot be refused in respect of offences like criminal breach of trust for the mere reason that the punishment provided for is imprisonment for life. Circumstances may broadly justify the grant of bail in such cases too, though of course, the Court is free to refuse anticipatory bail in any case if there is material before it justifying such refusal.
iv) No blanket order of bail should be passed and Court which grants anticipatory bail must take care to specify offence or offences in respect of which alone order will be effective. While granting relief u/S 438(1) of Code, appropriate conditions can be imposed u/s 438(2) so as to ensure an uninterrupted investigation. One such condition can even be that in event of the police making out a case of a likely discovery u/s 27 of Evidence Act, person released on bail shall be liable to be taken in police custody for facilitating recovery. Otherwise, such an order can become a charter of lawlessness and a weapon to stifle prompt investigation into offences which could not possibly be predicated when order was passed.
v) The filing of First Information Report (FIR) is not a condition precedent to the exercise of power u/s 438. The imminence of a likely arrest founded on a reasonable belief can be shown to exist even if an FIR is not yet filed.
vi) An Anti’ry Bail can be granted even after an FIR is filed so long as applicant has not been arrested.
vii) The provisions of Section 438 cannot be invoked after the arrest of the accused. After arrest, the accused must seek his remedy under Section 437 or Section 439 of the Code, if he wants to be released on bail in respect of the offence or offences for which he is arrested.
viii) An interim bail order can be passed under Section 438 of the Code without notice to the Public Prosecutor but notice should be issued to the Public Prosecutor or to the Government advocate forthwith and the question of bail should be re-examined in the light of respective contentions of the parties. The ad-interim order too must conform to the requirements of the Section and suitable conditions should be imposed on the applicant even at that stage.
ix) Though it is not necessary that the operation of an order passed under Section 438(1) of the Code be limited in point of time but the Court may, if there are reasons for doing so, limit the operation of the order to a short period until after the filing of FIR in respect of the matter covered by the order. The applicant may, in such cases, be directed to obtain an order of bail under Section 437 or 439 of the Code within a reasonable short period after the filing of the FIR.

18. At this juncture, it would be appropriate to note that the view expressed by this Court in Adri Dharan Das Vs. State of W.B.5 to the effect that while dealing with an application under Section 438 of the Code, the Court cannot pass an interim order restraining arrest as it will amount to interference in the investigation, does not appear to be in consonance with the opinion of the Constitution Bench in Sibbia's case (supra). Similarly, the observation that power u/s 438 5 (2005) 4 SCC 303 Section 438 is to be exercised only in exceptional cases seems to be based on decision in Balchand's case (supra), which has not been fully approved by the Constitution Bench. On this aspect, the Constitution Bench stated thus:
The observations made in Balchand Jain regarding the nature of the power conferred by Section 438 and regarding the question whether the conditions mentioned in Section 437 should be read into Section 438 cannot therefore be treated as concluding the points which arise directly for our consideration. We agree, with respect, that the power conferred by Section 438 is of an extraordinary character in the sense indicated above, namely, that it is not ordinarily resorted to like power conferred by Ss. 437 and 439. We also agree that the power to grant anticipatory bail should be exercised with due care and circumspection but beyond that, it is not possible to agree with the observations made in Balchand Jain in an altogether different context on an altogether different point". (Emphasis Supplied)

19. It would also be of some significance to mention that Sec. 438 has been amended by the Code of Criminal Procedure (Amendment) Act, 2005. The amended Sec. is more or less in line with parameters laid down in Sibbia's case (supra). However, the amended provision has not yet been brought into force.

20. Having considered the case in hand on the touchstone of the aforementioned parameters, we are of the opinion that the High Court has committed a serious error in reversing the order passed by the Additional Sessions Judge, Amravati granting anticipatory bail to the appellants. The learned Sessions Judge passed the order after due consideration of the facts and circumstances of the case, in particular, the two dying declarations, one recorded in the presence of the parents of the deceased and the statements of the members of the Women Cell who had dealt with the case when on 15th July, 2006, the deceased had left the house with intention to commit suicide and therefore, it cannot be said that the judicial discretion exercised in granting anticipatory bail was perverse or erroneous, warranting interference by the High Court. The order passed by the Sessions Judge was supported by reasons to the extent required for exercise of judicial discretion in the matter of grant of bail. It may be true that some of the circumstances, noticed by the High Court in the impugned order, viz., no reference to lantern in the spot panchnama or the necessity of cleaning the lantern at 4 p.m. and/or availability of an inverter in the house etc., could have persuaded the Sessions Judge to take a different view but it cannot be said that the factors which weighed with the Sessions Judge in granting bail were irrelevant  to the issue before him, rendering the order as perverse. Moreover, merely because the High Court had a different view on same set of material which had been taken into consideration by the Sessions Judge, in our view, was not a valid ground to label the order passed by the Sessions Judge as perverse.

21. It also appears to us that the High Court has overlooked the distinction of factors relevant for rejecting bail in a non-bailable case in the first instance and the cancellation of bail already granted. In Dolat Ram & Ors. Vs. State of Haryana6, while dealing with a similar situation where the High Court had cancelled the anticipatory bail granted by the Sessions Judge in a dowry death case, this Court had observed that rejection of bail in a non-bailable case at the initial stage and the cancellation of bail had to be considered or dealt with on different basis. Very cogent and overwhelming circumstances are necessary for an order directing the cancellation of bail already granted, which, in our opinion, were missing in the instant case. Nothing was brought to our notice from which it could be inferred that the appellants have not co-operated in the investigations or have, in any manner, abused the concession of bail granted to them. As a 6 (1995) 1 SCC 349 matter of fact, Mr. Naphade, learned senior counsel representing the State, stated that after grant of anticipatory bail to the appellants, no investigation in the case has been conducted.

22. For the foregoing reasons, in our judgment, the impugned order setting aside the anticipatory bail granted to the appellants by the learned Additional Sessions Judge, cannot be sustained. Accordingly, the appeals are allowed; impugned order is set aside and the order dated 18th December, 2007 passed by the Additional Sessions Judge confirming the ad-interim anticipatory bail to the appellants, is restored. It goes without saying that nothing said by the High Court or by us hereinabove shall be construed as expression of any opinion on the merits of the case.

23. Both the appeals stand disposed of, accordingly.

..................................J.
(D.K. JAIN)

..................................J.
(R.M. LODHA)

NEW DELHI;
JULY 10, 2009.