Holding

A judge of a High Court or the Supreme Court is a public servant under the Prevention of Corruption Act and may be prosecuted for criminal misconduct after prior sanction from the President, who is the authority competent to remove the judge.

Summary

The appellant, a former Chief Justice of the Madras High Court, was charged under the Prevention of Corruption Act, 1947 for possessing assets disproportionate to his known income. He sought to quash the criminal proceedings, arguing that judges are not "public servants" under the Act and that no prior sanction was required after his retirement. The Supreme Court held that a judge of a High Court or the Supreme Court is indeed a public servant within the meaning of the Act and may be prosecuted for criminal misconduct, provided prior sanction is obtained from the authority competent to remove him – the President of India, who must act on the advice of the Chief Justice of India. Since the appellant had retired before the charge sheet was filed, no sanction was required, and the High Court's dismissal of the petition was upheld. The appeal was dismissed.

Issues considered

Whether a judge of a High Court or the Supreme Court qualifies as a 'public servant' under Section 2 of the Prevention of Corruption Act, 1947.
Whether such a judge can be prosecuted for the offence of criminal misconduct under Section 5(1)(e) of the Act.
Who is the competent authority to grant prior sanction under Section 6(1)(c) of the Act for prosecuting a judge.
Whether prior sanction is required when the alleged offence is committed before the judge's retirement but the charge sheet is filed after retirement.
Whether the charge‑sheet complied with the statutory requirements of Section 173(2) of the Cr.P.C.

Legislation cited

Code of Criminal Procedure, 1973s. 154, s. 173(2), s. 482
Constitution of Indias. Article 121, s. Article 124(4), s. Article 124(5), s. Article 211, s. Article 217, s. Article 218, s. Article 361
Indian Evidence Act, 1872s. 106
Indian Penal Code, 1860s. 19, s. 21, s. 77
Prevention of Corruption Act, 1947s. 2, s. 5(1)(e), s. 6(1)(c)

Subjects

public servantPrevention of Corruption Actjudicial independenceprior sanctioncriminal misconductHigh Court judgeSupreme Court judgeconstitutional law

Judgment

K. VEERASWAMI
v. A
UNION OF INDIA AND OTHERS

JULY 25, 1991

{B.C. RAY, K. JAGANNATHA SHETIY, LAUT MOHAN B
SHARMA, M.N. VENKATACHALIAH AND J.S. VERMA, JJ.]

Prevention of Corruption Act, 1947: Ss. 2, 5( l)(e), 5(2), 6( 1)(c)-
Public servant-Possession of pecuniary resources or property dispro-
portionate to known sources of income-Prosecution after superannua-
tion-Previous sanction-Whether necessary.
c
Judge of High Court/Supreme Court-Whether 'public ser.vant',
liable to prosecution under the Act-Sanctioning authority-Who is.

Sanctioning authority-Whether vertically superior in the hier-
archy in which office of the public servant exists. D

Cl. (c) of s. 6( 1)-Whether independent of and separate from
clauses (a) and (b )-Rule of ejusdem generis-Applicability of.

Independence of Judiciary-Whether affected by application of
the Prevention of Corruption Act to Judges of High Court/Supreme E
Court-Issuance of guidelines by Court.

Indian Penal Code, 1860: Ss. 19, 21-"Judge"-Whether inclu-
des a High Court/Supreme Court Judge- Whether 'public servant'
under s. 2 of Prevention of Corruption Act.
F
Constitution of India, 1950: Articles 74, 79, 121, 211, 124, 2 17,
218-Provision for initiation of proceeding for removal of a ludge-
Whether a ground for withholding criminal prosecution of a Judge for
offence under s. 5( 1)(e) of the Prevention of Corruption Act, 1947.

Independence of Judiciary-Effect of application of Prevention of G
Corruption Act, J.947 to Judges of superior Courts.

Code of Criminal Procedure, 1973: Ss. 154, 173(2), 173(5)-
0ffence committed by public servant under s. 5( l)(e) of the Prevention
of Corruption Act, 1947-Complaint regarding-/ni1estigation of-
Requirements-Police report/Charge sheet-Contents of:· H

189
SUPREM E COURT REPORTS (1991] 3 S.C. R .

Evidence Act., 1872: S. 106-0ffence committed under s. 5( !)(e)
A
of Prevention of cbrruption Act, 1947-Possession of property dispro-
portionate to known sources-Whether fact within special knowledge
of thepublic servant-Burden of proof-On whom.

Words and Phrases: "sati~facrori/y account"-Meaning of.
B
Statutory Interpretation: Rule of ejusdem generis- Explalned.

A complaint against the appellant, a former Chief Justice of a -·
High Court, was made to the CBI on which a case under s. 5(2) read
withs. 5( l )(e) of the Prevention of Corruption Act, 1947 was registered
C on 24.2.1976. On 28.2.1976 the F.l.R. was filed in the court of Special
Judge. The appellant proceeded on leave from 9.3.1976 and retired on
8.4.1976 on attaining the age of superannuation.

The investigation culminated in the filing of charge-sheet/final
report under s. 173(2), Cr. P.C. against the appellant on 15. 12.1977
D before the Special Judge.

The Charge-sheet stated that the appellant after assuming office
of the Chief Justice on 1.5.1969 gradually comme~ced accumulation of -
assets and was in possession of pecuniary resources and property, in his
name and in the names of his wife and two sons, disproportionate to his
E known sources of income for the period between the date of his appoint-
ment as Chief Justice and the date of registration of the case, and
thereby he committed the offence of criminal misconduct under
s. S(l){e), punishable under s. 5(2) of the Prevention of Corruption Act,
1947. The Special Judge issued process for appearance of the appellant.
Meanwhile , the appellant moved the High Court under s. 482, Cr. P.C.
F to quash the said criminal proceedings .

The matter was heard by a Full Bench of the High Court which
dismissed the application by ~: 1 majority; but granted a certificate
under Articles 132(1) and 134( l)(c) of the Constitution in view of the
important question of law involved .
G
In appeal to this Court it was contended by the appellant that the
provisions of the Prevention of Corruption Act, 1947 do not apply to a
Judge of a superior Court as for such prosecution previous sanction of
anauthority competent to remove a public servant as provided under
s. 6 of the Prevention of Corruption Act, 1947 is imperative and power
H to remove a Judge is not vested in any single individual authority but is
~

K. VEERASWAMI v. U .0 .1. 191

vested in the two Houses of Parliament and the President under Article
A
124(4) of the Constitution; that the Parliament cannot be the sanction-
ing authority for the purpose of s. 6 and if the President is regarded as
the authority, he cannot act independently as he exercises his powers by
.and with the advice of his Council of Ministers and the Executive may
misuse the power by interfering with the judiciary; thats. 6 applies only
in cases where there is master and servant relationship between the B
public servant and the authority competent to remove him, and where
there is vertical hierarchy of public offices and the sanctioning authority
is vertically superior in the hierarchy in which office of the public
servant against whom sanction is sought exists; that no prosecution can
be launched against aJudge of a superior Court under the provisions of
the Prevention of Corruption Act except in the mode envisaged by Article
124(4) ofthe Constitution; that no law prohibits a public servant having
c
in his possession assets disproportionate to his known sources of income
and such possession becomes an offence only when the public servant is
unable to account for it; and that the public servant is entitled to an
opportunity by the investigating officer to explain disproportionality
between the assets and the known sources of income and the charge D
sheet must contain such an averment, and failure to mention that
requirement would vitiate the charge-sheet and render it invalid and,
no offence under s. 5(1)(e) of the Act could be made out.
On the questions: (I) whether a Judge of a High Court or of the
Supreme Court is a 'public servant' within the meaning of s. 2 of
the Prevention of Corruption Act, 1947; (2) whether a Judge of the E
High Court including the Chief Justice, or a Judge of the ·Supreme
Court can be prosecuted for an offence under the Prevention of Corrup-
tion Act, 1947; and (3) who is the competent authority to remove a
Judge either of the Supreme Court or of the High Court from his office
in order to enable that authority to grant sanction for prosecution of
F
the Judge under the provisions of s. 6 of the Prevention of Corruption
Act, 1947.

Dismissing the appeal, this Court,

HELD: (Per Majority-Ray, Shetty, Shanna and Venkatachaliah,
G
JJ).

1. A Judge of a High Court or of the Supreme Court is a 'public
servant' within the meaning of s. 2 of the Prevention of Corruption Act,
1947.
H
2. Prosecution of a Judge of a High Court, including the Chief
192 SUPREME COURT ""REPORTS [ 1991] 3 S.C. R.

A Justice, or a Judge of the Supreme Court can be launched after obtain-
ing sanction of the competent authority as envisaged by s . 6 of the
Prevention of Corrurtion Act.

Per Verma, J . (dissenting)-

B 1. (i) A Judge or Chief Justice of a High Court is a Constitutional
functionary, even though he holds a public otlice and in that sence he
may be included in the wide definition of a public servant. But a public
servant whose category for the grant of sanction for prosecution is not
en~isaged by s. 6 of the Act is outside the purview of the Act, not
intended to be covered by the Act.

C l(ii) The Prevention of Corruption Act, 1947, as amended by the
1964 amendment is inapplicable to Judges of the High Courts and the
Supreme Court.

(Per Majority-Ray, Shetty and Venkatachaliah, JJ.)
D 3. 1 For the purpose of s. 6(l)(c) of the Prevention of Corrup-
tion Act, 1947, the President of India is the authority competent
to give previous sanction for prosecution of a Judge of a superior
Court.

3.2 No criminal case shall be registered under s. 154, Cr. P.C.
E against a Judge of the High Court, Chief J ustice of the High Court or
a .Judge of the Supreme Court unless the Chief Justice of India is con-
sulted in the matter.

3.3 If the Chief Justice of India himself is the person against
whom the allegations of criminal misconduct are received, the
F <;overnment shall consult any other Judge or .lodges of the Supreme
Court.

3.4 There shall be similar consultation at the stage of examining
the question of granting sanction for prosecution and it shall be neces-
sary and appropriate that the question of sanction be guided by and in
G accordance with the advice of the Chief Justice of India . >-

Sharma. J. (contra)

As to who is precisely the a uthority for granting previous sanction
for prosecution of a Judge is a matter which did not arise in the instant
H case and will have to be finally decided when it directly arises. How-
K. VEER/:X~l v. U.0 .1. 193

ever, the issue~ of removal umler Art. 124( 4) of the Constitution and
sanction under s. 6 of the Act can be combined for getting clearance
from the Parliament.

Verma. J. (dissenting)

3. Section 6 of the Act is inapplicable to Judges of High Courts or of B
the Supreme Court and such Constitutional functionaries do not {all
within the purview of the Prevention of Corruption Act, 1947.

PerB.C. Ray, J.

~- I. A Judge of the High Court or of the Supreme Court comes
within the definition of public servant under s. 2 of the Prevention of
c
corruption Act, 19-'7. and he is liable to be prosecuted under the provi-
sions of the Act. [223E·Fl

2.1 A .Judge will be liable for committing criminal misconduct
within the meaning of s. 5( l)(e) of the Act, if he has in his possession b
pecuniary resources or property disproportionate to his known sources
of incorhe for which he cannot satisfactorily account. [217B]

2.2 A Judge of a superior Court will not be immune from pro-
secution for criminal offences committed during the tenure of his office
under the provisions of the Act. [223F] E

3.1 In order to launch a prosecution against a Judge of a su11erior
Court for criminal misconduct falling under s. 5( l)(e) of the Act. pre·
\'ious sanction of the authority competent to remoH a Judge, including
Chief Justice of a High Court, from his office is imperative. [217C-D; 221G]
F
3.2 The President of India has the power to appoint as well as to
remove a .Judge from his office on the ground of proved misbehaviour
or incapacity as provided in Article 124 of the Constitution and, there-
fore , he, being the authority competent to appoint and to remove a
Judge , of course. in accordance with the procedure envisaged in clauses
Hl and (5) of Article 124, may be deemed to be the autbroity to grant G
sanction for prosecution of a Judge under the provisions of s. 6(1)(c) in
respect of the offences provided ins. S(l)(e) of the Act. [225G-H; 226A-Bl

J.J In order to adequately protect a .Judge from frivolous pro-
secution and unnecessary harassment the President will consult the
Chief .Justice of India who will consider all the materials placed before H
194 SUPREME ~u-REPORTS - [1991] 3 S.C.R"."'/

him and tender his ~dvice to the President for giving sanction to launch
A
prosecution or for filing FIR against the Judge concerned after being
satisfied in the matter. The President shall act in accordance with the
advice given by the Chief .Justice of India. [226B-C I

If the Chief Justice of India is of opinion that it is not a fit case for
B grant of sanction for prosecution of the Judge concerned, the President
shall not accord sanction to prosecute the Judge. This will save the
.I udge concerned from unnecessary harassment as well as from frivol-
ous prosecution against him. [226C)

In the case of the Chief Justice of the Supreme Court, the Presi-
dent shall consult such of the Judges of the Supreme Court as he may
c deem fit and proper and shall act in accordance with the advice given to
him by the Judge or Judges of the Supreme Court. [226D]

3.4 In the instant case, the appellant had resigned from his
office and ceased to be a public servant on the date of lodging the f .l.R.
D against him by the C.H.1. and, therefore, no sanction under s. 6(l)(c) of
the Aet was necessary . [227A; 228C]

R.S. Nayak v. A.R. Aniulay, (1984] 2 SCR 495, referred to.

4. 1 A Judge of the Supre.m.e Court as well as a Judge of the High
E Court is a constitutional functionary and to maintain the independence
of the judiciary and to enable the Judge to effectively discharge his
duties as a judge and to maintain the rule of law, even in respect of /is
against the Central Government or the State Government, he is made
totally independent of the control and influence of the executive by
mandatorily embodying in Article 124 or Article 217 of the Constitution
F that a Judge can only be removed from his office in (he manner pro-
vided in clauses (-l) and (5) of Article 124. [222B-D)

4.2 Power to remove by intpeachment or address, a person hold-
ing office during good behaviour, is an essential counterpart to the
independence secured to the holders of high office by making their
G tenure orie of good behaviour instead of at pleasure. [224D-E]

4.3 A .Judge of the Supreme Court or of the High Court can only
be removed on the ground of proved misbehaviour or incapacity by an
order of the President passed after following the mandatory procedure
expressly laid down in Article 124(4) of the Constitution. Without an
H address by each of the Houses of tht> Parliament, the President is not
K. VEERASWAMI v. U.0.J. 195

empowered under the Constitution to order removal of a Judge of the
A
Supreme Court or of the High Court from ·his office on the ground of
proved misbehaviour or incapacity. Therefore, the repository of this
power is not in the Pr~sident alone but it is exercised after an address by
each of the Houses of Parliament in the manner provided in Artide
124(4). [218B-H; 219A]
B
Union of India v. Sakalchand, AIR 1977 SC 2328 and S. P. Gupta
and Ors. v. President of India and Ors, AIR 1982SC149. referred to.

5. There is no master and servant relationship or employer ancf
employee relationship between a Judge and the l'resident of India in
whom the executive power of the Union is vested under the provisions of
Article 53 of the Constitution. [222E] c
6. It is necessary to evolve some method commensurate with the
grant of sanction in cases of serious allegations of corruption and
.acquisition or the possession of disproportionate assets which the Judge
cannot satisfactorily account for or possession of property dispropor- D
tionate to the sources of income of the Judge. Otherwise, it will create a
serious inroad on the dignity, respect and credibility and integrity of the
high office which a superior Judge occupies resulting in the erosion of
the dignity and respect for the high office of the Judges in the estimation
of the public. [225E-F]
E
7 .1 The purpose of grant of previous sanction before prosecuting
a public servant including a Judge of the High Court or of the Supreme
Court is to protect the Judge from unnecessary harassment and frivo-
lous prosecution more particularly to save the Judge from the biased
prosecution for giving judgment in a case which goes against the
(;overnment or its officers though based on good reasons and rule F
of law. (2260-E]

7.2 Frivolous.prosecution cannot be launched against a Judge for
giving a judgment against the Central· Government. or any of its officer~
inasmuch as such decision(does not amount to misbehaviour within the
meaning of Article 124 of the Constitution. (226G-H] G

Shamsher Singh & Anr.. v. State of Punjab, [1975] l SCR 81-l and
G.K. Daphtary v. O.P. Gupta, AIR 197.l SC 1132, r eferred to.

Per Shetty, a1,1d Venkatacha.liah, JJ.
H
196 SUPREME COURT REPORTS [1991] 3 S.C.R~~;;
A' .J. The expression "public servant" as defined under s. 2 of the
Prevention of Corruption A•!, 1947 means a public servant as defined
in s. 21, I.P.C. From the very commencement of the I.P.C. "Every
Judge'' finds a place in the categories of public servant defined under s.
2 i and this expression indicates all Judges and all Judges of all Courts.
It is a general term and general term in the Act should not be narrowly
B construed. It must receive comprehensive meaning unless there is posi-
tive indication to the contrary. There is no such indication to the con-
trary in the Act. A Judge of the superior Court cannot therefore be
excluded from the definition o.f 'public servant'. [237C; 240D; 242A-B]

c
2.1 A public servant cannot be prosecuted for offences speci-
fied in s. S of the Prevention of Corruption Act, 1947, unless there
is prior sanction under s. 6 for prosecution from the competent
~nthority, [237E]
-
2.2 There are two requirements for the applicability of clause (c)
of s. 6(1) to a Judge of the higher judiciary-the Judge must be a public
D servant, and there must be an authority competent to remove him from
his office. If these two requirements are complied with. a Judge cannot
escape from the operation of the Act. [240B-CJ
..
2.3 The Judges are liable to be dealt with just the same way as
any other person in respect of criminal offence. It is only in taking of
E bribes or with regard to the offence of corruption the sanction for
criminal prosecution is required. There is no law providing protection
for Judges from criminal prosecution. [252A-B]

It is not objectionable to initiate criminal proceedings against
public servant before exhausting the disciplinary proceedings, and a
F fortiori, the prosecution of a Jud~e for criminal misconduct before his
removal by Parliament for proved misbehaviour is unobjectionable. [252D-E]

The uproved misbehaviour" which is the basis for removal of a
Judge under clause (4) of Article 124 of the Constitution may also in
certain cases involve an offence of criminal misconduct under s. S( I) of
G the Act. But that is no ground for withholding criminal prosecution till
the Judge is removed by Parliament. One is the power of Parliament
and the other i> the jurisdiction·ota·criininal court. Both are mutually
exclusive. [251A-CJ

J,J .For the purpose of s. 6(l)(c}of the Act, the President of India
H is the authority competent to give previous sa.nction for the prosecution
K. VEERASWl\MI ''· U.0.1. 197

of a Judge of the Supreme Court and the High Court.
A
3.2 Section 6(1) brings within its fold all the categories of public
servants as defined ins. 21 of the I.P.C. Clauses (a) and (b) would cover
the cases of public· servants who are employed in connection with the
affairs of the Union or State and are not removable from their office
save by or with the sanction of the respective government. Clause (c) B
states that in the case of any other person the sanction would be of the
authority competent to remove him from his office. [238E-F]

The provisions of clanses (a) and (b) of s. 6 [(!)] cover certain
categories of public servants and the 'other' which means remaining
categories are brought within the scope of clause (c). Clause (c) is inde-
pendent of and separate from the preceding two clauses. The structure
c
of the section does not permit the applicability of the rule of ejusdem
generis. [240A-B]

3.3 The application of the ejusdem generis rule is only to general
word following words which are less general, or the general word fol- [
lowing particular and specific words of the same nature. In such a case,
the general word or expression is to be read as comprehending only
things of the same kind as that designated by the preceding specific
-...f words or expressions. The general word is presumed to be restricted to
the same genus as those of the particular and specific words. [239F-G I
E
3.4 The construction which would promote the general legislative
purpose underlying the prov~sion, is to be preferred to a construction
which would not. [247 A]

--" If the literal meaning of the legislative language used would lead
to results which would defeat the purpose of the Act, the Court would F
be justified in disregarding the literal meaning and adopt a liberal
construction which effectuates the object of the legislature. [247 A-Bl

S.A .. Venkataraman v. The State, [1958] SCR 1040 and M.
Narayanan v. State of Kera/a, [1963] 2 Suppl. SCR 724, referred to.
G
Craies on Statute Law, (6th Edn. p. 531) referred to.

3.5 In view of the composition of Parliament, ihe nature of trans-
acting b1:~iness or proceeding in each House, the prohibition by Article
121 on discussion with respect to the conduct of any Judge of the
Supeme Court or of a High Court, in the discharge of his duties except H
198 SUPREME COURT REPORTS I1991] 3 S.C.R.
upon a motion for presenting an ~ddress to the President praying for his
A
removal, the Parliament cannot be the proper authr,rity for granting
sanction for the prosecution of a .Judge, That does not, however, follow
that the Judges of superior Courts are entitled to be excluded from the
scope of the Act. [245C-F]

B 3.6 Section 6 requires to be liberally construed. It is not a penal
provision but a measure of protection to public servants in the penal
enactment. It indicates the authorities without whose sanction a public
servant cannot be prosecuted. It is sufficient that the authorities pre-
scribed thereunder fall within the fair sense of the language of the
section. [247B-C]
c The expression "the authority competent to remove" used in
s. 6(1)(c) is to be construed to mean also an authority without whose
order or affirmation the public servant cannot be removed. The order of
the President for removal of a Judge is mandatory. The motion passed
by each House of Parliament with the special procedure prescribed
D under Art. 124(4) will not proprio vigore operate against the Judge. It
will not have the consequence of removing the Judge from the office
unless it is followed by an order of the President. Clause (4) of Art. 124
is in the negative terms. The order of the President is sine qua non for
removal of a Judge. The President alone could make that order. [247C-E, 248C]

E 3. 7 The relationship of master and servant as is ordinarily under-
stood in common law does not exist between the Judges of higher
judiciary and the Government. The Judges are not bound nor do they
undertake to obey any order of the Government within the scope of
their duties. Indeed, they are not Judges if they allow themselves to be
guided by the Government in the performance of their duties. [239B-D] -""~
F
Union of India v. H.S. Seth, [1978] 1SCR423, referred to.

3.8 It is not necessary that the authority competent to give sanc-
tion for prosecution or the authority competent to remove the public
servant should be vertically superior in the hierarchy in which the office
G of the public servant exists. There is no such requirement under s. 6 of
the Act. The power to give sanction for prosecution can be conferred on
any authority. Such authority may be of the department in which th<;. ,,__
public servant is working or an outside authority. All that is required is
.that the authority must be in a position to appreciate the materials
collected against the public servant ti' judge whether the prosecution
H contemplated is frivolous or speculative. [249B-C]
K. VEERASWAMI v. U.0.1. 199

R.S. Nayak v. A.R. Antulay, [1984] 2 SCC 183, distinguished.
A
The President is not an outsider so far judiciary is concerned. He
appoints the Judges of the High Court and the Supreme Court in exer-
cise of his execntive powers. [249E]

Shamsher Singh v. State of Punjab, ]1975] l SCR 365 and S.P. jJ
Gupta v. Union of India, [1982] 2 SCR 365, referred to.

Parliament has no part to play in the matter of appointment of
Judges except that the Executive is responsible to the Parliament. [249G-HJ

3.9 In the .instant case, the view taken by the High Court. that
no sanction for prosecution of the appellant under s. 6 of the Act c
was necessary since he had retired from the service on attaining
the age of superannuation and was not a public servant on the date
of filing the charge-sheet, is unassailable. The question is no longer
res integra. [254G-H; 255CI
D
S.A. Venkataraman v. The State, [19581SCR1040; C.R. Bansi v.
State of Maharashtra, [19711 3 SCR 236 and K.S. Dharmadatan v.
Central Government & Ors., [197913 SCR 832, referred to.

R.S. Nayak & Ors v. A.R. Antulay, [198412 SCR 183, referred
to. E

4. l There are various protections afforded to Judges to preserve
the independence of the judiciary. They have protection from civil
liability for any act done or ordered to be done by them in discharge
of their judicial duty whether or not such judicial duty is performed
within the limits of their jurisdiction, as provided under s. I of Judicial F
Officers Protection Act, 1850. Likewise s. 77, I.P.C. gives them protec-
tion from criminal liability for an act performed judicially. A discussion
on the conduct of the Judges of the Supreme Court and the High Courts
in the discharge of their duties shall not .take place in Parliament or in
the State Legislatures, as envisaged by Articles 121 a_nd 211 of the Con-
stitution. The Supreme Court and the High Courts have been constituted G
as Courts of Record with the power to punish for committing contempt
as laid down by Articles 129 and 215. The Contempt of Courts Act,
1971 provides power to t"oke civil and crim_inal contempt proceedings.
The Executive is competent to appoint the Judges but not empowered to
remove them. The power to remove is vested in Parliament by the
process anal()gous to impeachment as envisaged by Article 124 of the H
Constitution. [25IE-H; 242EJ
200 SUPREME COURT REPORTS [1991) 3 S.C.R.

~.2 Previous sanction of the competent authority as contemplated
A
by s. 6 is only to protect the honest public servants from frivolous and
vexatious prosecution. The comr.etent authority may refuse sanction for
prosecution if the offence alleged has no material to support or it Is
frivolous or intended to harass the honest officer. But he is duty bound
to grant sanction if the material collected lend credence to the offence
B complained of. The discretion to prosecute a public servant is taken
away from the prosecuting agency and is vested in the authority compe-
tent to remove the public servant. The latter would be in a better
position than the prosemting agency to assess the material collected in a
dispassionate and reasonable manner and determine whether or not the
sanction for prosecution deserves to be granted. [237F-G; 238A-C I
c 4.3 The apprehension, that the Executive being the largest litigant
i; likely to misuse the power to prosecute the Judges, in our over-
litigious society is rot unjustified or unfounded. The Act provides cer-
tain safeguards like s. 6 and trial by the court which is independent of
the Executive. But these safeguards may not be adequate. Any comp-
D laint against a Judge and its investigation by the CBI, if given publicity,
will have a far reaching impact on the Judge and the litigant public. The
need, therefore, is a judicious use of taking action under the Act. Care
should be taken that honest and fearless Judges are not harassed. They
should be protected. [252G-H; 253A-CI

E 5.1 There is no need for a separate legislation for the Judges. The
Act is not basically defective in its application to judiciary. All that is
required is to lay down certain guidelines lest the Act may be misused.
This Court being the ultimate guardian of rights of people and inde-
pendence of the judiciary will not deny itself the opportunity to lay
down such guidelines. This Court is not a Court of limited jurisdiction
F of only dispute settling. Almost from the beginning, this Court has been
a law maker, albiet, 'interstitial' law maker. Indeed the Court's role
today is much more. It is expanding beyond dispute settling and inter-
stitial law making. It is a problem solver in the nebulous areas. [253E-G]

5.2 The Chief Justice of India is a participatory functionary in
G the matter of appointment of Judges of the Supreme Court and the
High Courts; he is to be consulted by the President of India even for
transfer of a Judge from one High Court to another; and question of age
of a Judge of a High Court shall be decided by the President after
consulting him. The Chief Justice of India being the head of the
Judiciary is primarily concerned with the integrity and impartiality of
H the judiciary. Hence it is necessary that the Chief Justice of India is not
K. VEERASWAMI v. U .0.1. 20 I

kept out of the picture of any criminal case contemplated against a A
Judge. He would be in a better position to give his opinion in the case
and consultation with the Chief .Justice of India would be of immense
assistance to the Government in coming to the right conclusion. [253H; 254A-BI

5.3 It is the responsibility and duty of this Court to apply the
existing law in a form more conducive to the independence of the B
Judiciary. [253G]

5.4 In the instant case then the Chief Justice of India was
requested to give his opinion whether the appellant could be proceeded
under the Act. It was only after the Chief Justice expressed his views
that the appellant could be proceeded under the provisions of the Act,
the case was registered against him. [2530 I
c

6.1 No criminal case shall be registered under s. 154, Cr. P.C.
against a Judge of a High Court, Chief Justice of a High Court or a
Judge of the Supreme Court unless the Chief Justice of India is
consulted in the matter. [254C I D

6.2 Due regard must be given by the Government to the opinion
expressed by the Chief Justice of India. If he is of opinion that it
is not a fit case for proceeding under the Act, the case shall not be
registered. [2540 I
E
6.3 If the Chief Justice of India himself is the person against
whom the allegations of criminal misconduct are received, the Govern-
·-"""' men! shall consult any other Judge or Judges of the Supreme Court.
There shall be similar consultation at the stage of examining the ques-
tion of granting sanction for prosecution and it shall be necessary and
appropriate that the question of sanction be guided by and in accord- F
ance with the advice of the Chief Justice of India. [2540-E]

The apprehension that the Act is likely to be misused by the
Executive for collateral purpose _would thus be allayed. [254E]

7. It is inappropriate to- state that conviction and sentence are no G
bar for the Judge to sit in the Court. If a Judge is convicted for the
offence of criminal misconduct or any other offence involving moral
turpitude, it is but proper for him to keep himself away from the Court.
He must voluntarily withdraw from judicial work and await the outcome
of the criminal prosecution. If he is centenced in a criminal case he
should forthwith tender his resignation unless he obtains stay of his H
202 SUPREME COURT REPORTS [1991] 3 S.C.R.

A conviction and sentence. He shall not insist on his right to sit on the
Bench till he is cleared from the charge by a Court of competent
jurisdiction. [250D-F]

The judiciary has no power of the purse or the sword. It survives
only by public confidence and it is important to the stability of the
B society that the confidence of the public Is not shaken. The Judge whose
character is clouded and whose standards of morality and rectitude are
in doubt may not have the judicial Independence and may not command
confidence of the public. He must voluntarily withdraw ftom the judi-
cial work and administration. [250F-GI

Jackson's Machinery of Justice by J.R. Spencer, 8th Edn. pp.
c 369· 70 referred to.

8.1 Section S(l)(e) of the Act creates a statutory offence which
must be proved by the prosecution. The first part of the Section relates
to the proof of assets possessed by the public servant. It is for the
D prosecution to prove that the accused or any person on his behalf has
been in possession of pecuniary resources or property di•proportionate
to his known sources of income. When that onus is discharged by the
prosecution the offence of criminal misconduct is attributed to the
public servant. However, it is open to him to satisfactorily account for
such disprop~rtionality of the assets. But it does not mean that there is
E rio offence till· the public servant is able to account for th.e excess of
assets. If one possesses assets beyond his legitimate means, it goes
without saying that the excess is out of ill-gotton gain. [259D-E; 260E-F]

8.2 It is for the public servant to prove the source o~ income or
the means by which he acquired the assets. That is the substance of
F clause (e) of s. 5(1). The ~ction makes available the statutory defence
which must be proved by the accused. It is a restricted defence that is
accorded to the accused to account for the disproportionality of the
assets over the income. But the legal burden of proof placed on the
accused is not so onerous as that of the prosecution. _However. it is just
not throwing some doubt on the prosecution version. [260F-G, 259E-F]
G ~
The legislature has advisedly used the expression "satisfactory
account". The emphasis must be on the word "satisfactorily". That
means the accused has to satisfy the court that his explanation is worthy
of acceptance. The burden of proof placed on the accused is an eviden-
tial burden though not a persuasive burden. The accused, however,
H could discharge that burden of proof "on the balance of probabilities"
K. VEERASWAMI v. U.0.1. 203

either from the evidence of the prosecution and/or evidence from the
A
defence. l259F-G]

8.3 Parliament is competent to place the burden on certain
aspects on the accused as well and particularly in matters "especially
within his knowledge". (s. 106 of the Evidence Act). Adroitly the pro-
secution cannot, in the very nature of things, be expected to know the B
affairs of a public servant found in possession of resources of property

-
I ,,
disproportionate to his known sources of income. It is for him to
explain. Such a statute placing burden on the accused cannot be
regarded as unreasonable, unjust, or unfair. Nor can it he regarded as
contrary to Article 21 of the Constitution. The principle that the burden
of proof is always on the prosecution and never shifts to the accused is
not a universal rule to be followed in every case. The principle is applied
c
only in the absence of statutory provision to the contrary. [260A-C] ·

Woolmington v. Director of Public Prosecution, [1935] A.C. 462;
C.S.D. Swamy v. The State, [1960] 1 SCR 461; Surajpal Singh v. The
State of U.P., [1961] 2 SCR 971; Sajjan Singh v. The State of Punjab, D
[1964] 4 SCR 630; Rig v. Hunt, [1986] 3 WLR 1115 and Maharashtra v.
K K. S. Ramaswamy, [1978] l SCR 274, referred to.

State of Maharashtra v. Wasudeo Ramchandra Kaidalwar, [1981]
3 SCR 675, referred to.
E
9.1 To state that after collection of all material, the investigating
officer must give an opportunity to the accused and call upon him to
account for the excess of the assets over the known sources of income
and then decide whether the accounting is satisfactory or not, would be
elevating him to the position of an enquiry officer or a judge. He is not
holding an enquiry against the conduct of the public servant or de- F
termining the disputed issues regarding the disproportionality between
the assets and the income of the accused. He just collects material from
all sides and prepares a report which he files in the Court as a charge-
sheet. The investigating officer is only required to collect material to
find out whether the offence alleged appears to have been committed.
lo the course of the investigation, he may examine the accused. G
Indeed, fair investigation requires that the accused should not be
kept in darkness. He should he taken into confidence if he is willing to
cooperate. [261B-E]

10.1 The charge-sheet is nothing but a final report of the police
officer under s. 173(2) of the Cr. P.C. Section 173(2) provides that on H
204 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

completion of the investigation the police officer investigating into a
A
cognizable offence shall submit a report, which must be in the form
prescribed by the State Government. The statutory requirement of the
report under s. 173(2) would be complied with if the various details
prescribed therein are included in the report and it accompanies all the
documents and statements of witnesses as required by s. 172(5) Cr.
B P.C. Nothing more need be stated in the report of the investigating
officer. It is also not necessary that all the details of the offence must he
stated. The details of the offence are required to be proved to bring
home the guilt of the accused at a later stage in the course of the trial of
the case by adducing acceptable evidence. [261E-H; 262A-C]

Satya Narain Musadi and Ors. v. State of Bihar, [1980] 3 SCC
c 152, referred to.

10.2 In the instant case, the charge sheet contained all the
requirements of s. 173(2), Cr.P.C. It stated that the investigation
showed tliat between l.5.1969 and 24.2.1976 the appellant had been in
D possession of the pecuniary resources and property in his own name and
in the names of his wife and two sons, which were disproportionate to
the known sonrces of income over the same period and he cannot
satisfactorily account for such disproportionate pecuniary resources
and property. The details of properties and pecuniary resources of the
appellant also were set.out in clear terms. No more was required to be
E stated in the charge sheet. It was fully in accordance with the terms of
s. 173(2), Cr.P .C. and clause (e) of s. 5(l)(e) of the Act. {262C-E]
11. The society's demand for honesty in a Judge is exacting and
absolute. The standards of judicial behaviour, both on and off the Bench,
are normally extremely high. For a judge to deviate from such standards
F of honesty and impartiality is to betray the trust reposed on him. No
excuse or no legal relativity can condone such betrayal. From the stand-
point of justice the size of the bribe or scope of corruption cannot be the
scale for measuring a judge's dishonour. A single dishonest judge not
only dishonours himself and disgraces his office but jeopardises the
integrity of the entire judicial system. [262F-H; 263AJ
G A judicial scandal has always been regarded as far more deplor-
able than a scandal involving either the Executive or a member of the
Legislature. The slightest hint of irregularity or impropriety in the
Court is a cause for great anxiety and alarm. [263A-B]

Per Sharma, J.:
H
l. The expression "public servant" used in the Prevention of
K. VEERASWAM! v. U.O.l. 205

Corruption Act, 1947 is undoubtedly wide enough to denote every
A
Jlidge, iildliding the Judges of the High Courts and the Supreme Court. IWD J

2.1 Section 2 of the Act adopts the definition of "public servant"
as given ins. 21, I.P.C. which includes "Every Judge". If the legisla-
tiire had intended to exclude Judges of the High Courts and the
Sitprenie Court from the field of s. 5 of the Act, it could have said so in B
ilriambiguous ternis insieatl of adopting the wide meaning of the expres-
sion "public servant" as given in the Indian Penal Code. [266E-F]

2;2 Nb person is above the law. In a proceeding tinder Article 124
of the Constitution, a Judge can merely be removed from his office. He
cannot be conviCted aitd puriished. In a case where there is a positive
finding recorded iti such a proceeding against the Judge and on that
c
groiind he is removed from his office, it cannot be said that he will
escape the criminal liability. hi a civilised society the law cannot be
assumed to be leading to such disturbing results. [265G; 266A-B]

2.3 It is not safe to assume that the Prevention of Corruption Act D
intended to make in its application any discrimination between the
lower and ihe higher judiciary. There cannot be any rational ground on
the basis of which a member of a higher judiciary may be allowed to
escape prosecution while in identical circumstances a member of the
subordinate judiciary is tried and convicted. Such an interpretation of
the Act will militate againsi its constitutional validity and shoµld not, E
iiietefore, be preferred. [265C,E]

3.1 The power to remove a High Court Judge from his office does
_...:l exist and has to be exercised In appropriate circumstances according to
the provisions of Article i24 of the Constitution. It cariitot, therefore, be
said that previillis sanction for his prosecution cannot be made F
avaiiable.· [266D-E]

3,2 Section 6(l)(t) of the Act speaks of the "authority competent
to retiioVe;, the pliblic servant "from his office". An answer in the
negative to the question as to whether there is some authority competent
to remove a Judge of a High Court will be inconsistent with Article 124 G
clauses (4) and (5) read with Article 218 of the Constitution. Although
itiore ihan one person are involved in the process, it is not permissible to
say that no authority exists for the purpose of exercising the power to
i'eniove a Higii Court Judge from his office. [264A-C]

As to who is precisely the authority in this regard is a matter H
206 SUPREME COURT REPORTS I 1991] 3 S.C.R.

which does not arise in the instant case, but the vital question whether
A
such an authority exists at all must be answered in the affirmative. [264C-D]

4.1 If the President is held to be the appropriate authority to
grant the sanction without reference to the Parliament, he will be bound
by the advice he receives from the Council of Ministers. This will seri.-
B ously jeopardise the independence of judiciary which is undoubtedly a
basic feature of the Constitution. [267D-E]

4.2 Since the Constitution itself has considered it adequate in the
matter of dealing with serious accusations against the Judges by
incorporating the provisions of clauses (4) and (5) in Article 124, they
must be treated to be appropriate and suitable; and should be resorted
c to in the matter of prosecution also, in view of the Parliament enacting
s. 6 of the Act in the language which attracts the constitutional
,provisions. [268B-C]

4.3 It is true that the grant of sanction will be delayed until the
D accusation is examined according to the law enacted under Clause (5) of
Article 124, but once that stage is over and a finding is recorded against
the Judge, there should not be any hitch in combining the two matters--
the removal and the grant of sanction-which are obviously intertwined,
for getting clearance from Parliament. [268E-H; 269A]

E 5.1 Protection to the public servant in general is provided under
Article 3ll of the Constitution and the interest of the subordinate
judiciary is further taken care of by the High Courts, and this alongwith
the provisions regarding previous sanction shields them from unjusti-
fied prosecution. Similarly, protection is available to the High Court
and Supreme Court Judges through the provisions of clauses (4) and (5)
F of Article 124 of the Constitution. So far this aspect is concerned, the
two categories of Judges-High Court and Supreme Court Judges on
ihe one hand and the rest on the other-have not been treated by the
law differently. [265C-E]

5.2 The protection tp the independence of the Judiciary is in section 6
G of the Prevention of Corruption Act, 1947, which by providing for
previous sanction of the authority empowered to remove the Judge,
leads to Article 124 of the Constitution. [268A-B]

6.1 Taking into consideration the independence of Judiciary as
envisaged by the Constitution, if the President of India is treated as the
H sanctioning authority in the case of a Judge, and the Chief Justice of
K. VEERASWAMI v. U.0.1. 207

India is consulted in the matter and steps· are taken in accordance with
A
his advice, and the executive follows this rule strictly, a further protec-
tion from harassment of the Judges is uncalled for and unjustified
criminal prosecution shall be not made available. But such a binding
direction cannot be issued by this Court on the basis of the provisions of
the Constitution and the Act. The approval of the Chief Justice of India
can be introduced as a condition for prosecution only by the Parliament and B
not by this Court. If the Court starts supplementing the law as it stands now,
it will be encroaching upon the legisjative field. [266G-H; 267A-B; F-H; 268A]

7. Section S(l)(e) does not contemplate a notice to be served on
the accused. If the prosecuting authority after making a suitable
enquiry, by taking into account the relevant documents and questioning
relevant persons, forms the opinion that the accused cannot satisfac-
c
torily account for the accumulation of disproportionate wealth in his
possession the section is attracted. [269B-DI · ·

8. In the instant case, the records clearly indicate that after duly
taking all the appropriate steps it was stated that the assets found in the [)
possession of the appellant in his own name and in the names of his wife
and two sons, were disproportionate to his known sources of income
during the relevant period and for which he "cannot satisfactorily
account". [269D-E]
,-
Per Verma, J. (dissenting)- E

I. I A Judge or Chief Justice of a High Court is a Constitutional
functionary, even though he holds a public office and in that sense he
___..' may be included in the wide definition of a 'public servant'. However,
the holder of an office who may be a public servant according to the
wide definition of the expression in the prevention of corruption Act. F
but whose category for grant of sanction for prosecution is not envisaged
by s. 6 is outside the purview of the Act, not intended to be covered
by the Act. [289F; 286D-EJ

1.2 Section 6( l)(c) of the Prevention of Corruption Act, 1947,
is inapplicable to a Judge of a High Court or the Supreme Court G
and such constitutional functionaries do not fall within the purview of
the Act. [296B]

1.3 Previous Sanction under s. 6 of the Prevention of Corruption
Act, 1947, is a condition precedent for taking cognizance of an offence
punishable under the Act, of a public servant who is prosecuted during H
208 SUPREME COURT REPORTS [1991] 3 S.C.R.

A his continnance in the office. The public servant falling within the
purview of the Act must invariably fall within one of the three clauses in
s. 6(1). If the holder of an office, even though a public servant according
to the definition in the Act does not fall within any of the clauses (a), (b)
or (c) of sub-section (I), he must be deemed to be outside the purview of
the Act since this special enactment was not enacted to cover that cate-
B
gory of public servants in spite of the wide definition of 'public servant'
in the Act. [286A-B]

1.4 Section 6(l)(c) speaks of 'authority competent to remove',
which plainly indicates the substantive competence of the authority to
remove, not merely the procedural or formal part of it. The authority
c itself should be competent to remove or the one to decide the question of
removal and not one which merely obeys or implements the decision of
some other authority. It contemplates that the removing authority
should have the competence to take a decision on the material placed
before it for the purpose of deciding whether the public servant, against
whom sanction is sought, has been prima facie guilty of abuse of his
D
office so that there is occasion to bring about cessation of interrelation
between the office and abuse by the holder of the office by his removal
therefrom. [29IA-CJ

R.S. Nayak v. A.R. Antulay, [1984] 2 SCC 183, referred to.
E 1.5 The competent sanctioning authority envisaged bys. 6(l)(c) is
a vertical superior in the hierarchy having some power of superinten-
dence over the functioning of the public servant. Where no such rela-
tionship exists in the absence of any vertical hierarchy and the holder of
the public office is a constitutional functionary not subject to power of
superintendence of any superior, s. 6 can have no application by virtue
F of the scheme engrafted therein. [29IC-D]

1.6 Construction of s. 6(l)(c) of the Act treating the President as
the competent authority to remove a High Court Judge wouid conflict
with the provisions enacted in clauses (4) and (5) of Article 124 read
with Article 218 of the Constitution. Such a construction has to be
G avoided. [295B-C]

I. 7 The Prevention of Corruption Act is wholly workable in its
existing form for the public servants within its purview and there is no
impediment in its applicability to the large number of public servants
H who have been dealt with thereunder ever since its enactment. [274A]
K. VEERASWAMI v. U.0.1. 209

1.8 In view oftbe special provisions enacted in clauses (4) aud (5)
of Article 124 read with Article 218 of the Constitution, non-application
of s. 6(1) of the Prevention of Corruption Act, 1947 to the Constitu-
tional functionaries such as Judges of the High Courts and the Supreme
Court, would result only in the failure of the attempt to bring them
within the purview of the Act, while the Act would continue to apply to
the public servants in general who fall within the scheme of s. 6 of the B
Act for the purpose of grant of previous sanction for prosecution which
is a condition precedent for cognizance of an offence punishable under
that Act. [295A-E]

2.1 The construction made of the provisions of the Act must also
fit iJ1 within the scheme of clauses (4) and (5) of Article 124 read with
Article 218 of the Constitution in order to present a harmonious
c
scheme. [294C-B]

2.2 There can be no doubt that the expression 'misbehaviour' is
of wide import and includes within its ambit criminal miscondust as
defined in sub-section (l) of s. 5 of the Act as also lesser misconduct of a D
Judge falling short of criminal misconduct. The special law envisaged by
Article 124(5) for dealing with the misbehaviour of a Judge covers the
field of 'investigation' and 'proor of foe 'misbehaviour' and the only
punishment provided is by Article 124(4) of removal from office. [2940-E]

2.3 Article 124(5) of the Constitution is wide enough to include f.
within its ambit every condµct of a Judge amounting to misbehaviour
i11~!uding criminal misconduct and prescribes the procedure for investi-
gation and proof thereof. [294E]

2.4 Even for the procedure for investigation into any misbehavi-
our of a Judge as well as jts proof, a law enacted by the Parliament F
under Article 124(5) is envisaged in the constitutional scheme. Such a
law in the form of .the Judges (Inquiry) Act, 1968 and the Rules framed
thereunder bas been enacted. These provisions were made in the
Constitution and the law thereunder enacted when the Prevention of
Corruption Act, 1947 was in the statute book. l294F-G]
~ G
2.5 The prior enactment and existence of the Prevention of
Corruption Act, 1947 at the time when clauses (4) and (5) of Article 124
of the Constitution were framed, does indicate the constitutional
scheme that a separate parliamentary law to deal with the investigation
and proof of misbehaviour of a Judge was clearly contemplated by
providing a special machinery for this category of constitutional func- H
210 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

tionaries notwithstanding the general law available and applicable to
A
the public servants in general, which included the Prevention of Cor-
ruption Act, 1947. [294G-H; 295A]

2.6 In view of the special provisions in the form of clauses (4) and
(5) of Article 124 and Article 218 of the Constitution, and the special
B enactment by the Parliament under Article 124 (5) provided in the
Constitutional scheme for Judges of the High Courts and the Supreme
Court, it cannot be said that they are governed by the general pro-
visions in addition to these special provisions enacted only for them.
The need for these special provisions is a clear pointer in the direc-
tion of inapplicability to them of the general provisions applicable
C to the public servants holding other public offices, not as constitutional
functionaries. [295A-B]

2. 7. The view that Judges of the High Courts and the Supreme
Court are outside the purview of the Ps~ention of Corruption Act, fits
in with the constitutional scheme and is also in harmony with the
D several nuances of the entire existing law relating to the superior Judges
while the contrary view fouls with it at several junctures and leaves
many gaping holes which cannot be filled by judicial exercise. [303F-G]

2.8 The Prevention of Corruption Act, 1947, as amended by the
1964 amendment, is inapplicable to Judges of the High Courts and the
E Supreme Court. [304A]
46 Am. fur. 2d. $ 84, referred to.
3.1 There is practical difficulty in applying criminal misconduct,
defined in clause (e) of sub-section (I) of s. 5 of the Act to a Judge of a
High Court or the Supreme Court. l296C]
F 3.2 The words in clause (e) of s. 5 (I) of the Act have to be given
some meaning which would place the burden on the prosecution,
howsoever light, to make out a prima facie case for obtaining sanction
of the competent authority under s. 6 of the Act and this can .be done
only if it is read as a part of the scheme under which the public servant •
is required to furnish particulars of his assets with reference to which
G the disproportion and his inability to satisfactorily account can be
inferred. l297A-B]

3.3 While according sanction to prosecute under s. 6 of the Act,
the competent authority has to satisfy itself about the public servant's
inability to satisfactorily account for possession of disproportionate
H assets. The competent authority before granting sanction has to apply
K. VEERASWAMI v. U.0.1. 211

its mind and be satisfied about the existence of a prima facie case for A
prosecution of the public servant on the basis of the material placed'
"-,. before it. In order to form an o'>jective opinion, the competent autho-
rity must have before it the version of the public servant on the basis of
which the conclusion can be reached whether it amounts to satisfactory
account or not. [296E-F]
B
3.4 The rules applicable to the public servants in general regulat-
ing their conduct requite them to furnish periodical information of
their assets which form a part of their service record. In the case of such
public serl':mts whenever sanction to prosecute is sought under s. 6, the
competent authority can form the requisite opinion on the basis of the
available material including the service record of the public servant to C
come to the conclusion whether the offence under clause (e) ofs. S (I) of
possession of disproportionate assets which the public servant cannot
satisfactorily account is made out prima facie. [296F-G, 297C-D I

3.5 In the case of Judges of the High Courts and the Supreme D
Court, there is no requirement under any provision of furnishing
particulars of their assets so as to provide a record thereof with refe-
rence to which such an opinion can be formed and there is no vertical
superior with legal authority enabling obtaining of information from
the concerned Judge. This too is a pointer in the direction that even
after the 1964 amendment of the Act the Legislature did not intend to E
include Judges of the High Courts and the Supreme Court within the
purview of the enactment. [297D-F]

· 4.1 If the Act is applicable to Judges of the High Courts and the
Supreme Court, it is obvious that the same must apply also to the Chief
Justice of India, the Comptroller and Audiltoc General and the Chief F
Election Commissioner. Incongruous results would follow in such an
event. [297F-G I

4.2 If the involvement of the Chief Justice of India is necessary
even for commencing the investigation into the offence, and the Presi-
_J dent while granting the sanction under s. 6(1)(c) is also assumed to act G
on the advice of the Chief Justice of India and if it is permissible to do so
in the absence of a~y ·such provision in the Act, the problem would arise
where such action is contemplated against the Chief Justice of India
himself. [297G-H; 298A]

4.3 Any provisioo which cannot apply to the Chief Justice of H
212 SUPREME COURT REPORTS I19911 3 S.C.R.
India, cannot apply to the Judges of the Supreme Court, or for that
A
matter even to the High Court Judges, since the Chief Justice of India is
not a vertical superior of any of them, there being no such vertical
hierarchy and the Chief Justice of India having no power of superh1-
tendence even over the High Court Judges, much less the Supreme
Court Judges. [298A-B]
B
4.4 In the case of the Comptroller and Auditor General and the
Chief Election Commissioner, the situation would be more piquant.
The Chief Justice of India cannot be involved in the process relating to
them and there is none else to fill that role in that situation. The
Constitution, while providing that their position would be akin to that
of a Judge of the Supreme Court, could not have intended to place them
c on a pedestal higher than that of a Supreme Court Judge. If the Act was
intended to apply to these constitutional functionaries, it could not have
been enacted leaving such gaping holes which are incapable of being
plugged to present a comprehensive scheme for this purpose. [298C-E]

D 5.1 The need for sanction under s. 6 of the Act for prosecution of
the holder of a public office indicates the ambit and scope of the enact-
ment for deciding whether the holder of a public office falls within the
purview of the enactment. No sanction for prosecution under s. 6 is
required after the public servant ceases to hold office, but it does not
imply that every holder of a public office after ceasing to hold that office
E is within the purview of the enactment, even though during the tenure
in office, only those public servants are within its ambit in whose case
sanction under s. 6 must be obtained. [298F-H; 299A]

5.2 The ambit of the enactment is to be determined on the basis of
the public office held by the public servant, which office is alleged to
F have been abused during the tenure for committing the offence of crimi.-
nal misconduct under the Act and it is not the fact of continuance in that
office or ceasing to hold it which decides the ambit of the enactment. If
the holder of a public office during his tenure in office cannot be pro-
secuted without sanction under s. 6, then, no sanction for his prosecu-
tion after ceasing to hold the office may be necessary, but his prosecu-
G tion is made because while in office he could be prosecuted with the
previous sanction under s. 6. Conversely, if the holder of a public office
while continuing in that office could not be prosecuted under this Act on
account of inapplkability of s. 6 and, therefore, the non-feasibility of
previous sanction for prosecution under s. 6, then on his ceasing to hold
the office, he is not brought within the purview of the Act. [299A-C]
H
K. VEERASWAMI v. U.0.1. 213

5.3 It is for the purpose of construing the provisions of the enact- A
ment and determining the scope and ambit thereof and for deciding
...... whether the holder of a public office comes within the purview of the
enactment that the feasibility of previous sanction for prosecution and
applicability of s. 6 of the Act is important since it holds the key which
unlocks the true vistas of the enactment. [299D-E]
B
5.4 The concept of the sanction for prosecution by a superior is so
inextricably woven into th.e fabric of the enactment that the pattern is
incomplete without it. The clear legislative intent is that the enactment
applies only to those in whose case sanction of this kind is contemplated
and those to whom the provision of sanction cannot squarely apply are
outside its ambit. The provision for sanction is like the keystone in the
arch of the enactment. Remove the keystone of sanction and the arch
c
crumbles. [299E-G]

R.S. Nayak v. A.R. Antulay, (1984] 2 SCC 183, distinguished.

6.1 The higher judiciary was treated differently in the Constitu- D
lion indicating the great care and attention bestowed in prescribing the
machinery for making the appointments. It was expected that any devia-
tion from the path of rectitude at that level would be" rare phenomenon
and for the exceptional situation the provision of removal in accordance
with clause (4) of Article 124 was made, the difficulty in adopting that
course being itself indicative of the rarity with which it was expected to E
be invoked. It appears that for a rare aberrant at that level, unless the
Judge resigned when faced with such a situation, removal from office in
accordance with Article 124( 4) was envisaged as the only legal sanction.
If this was the expectation of the framers of the Constitution and their
vision of the moral fibre in the higher echelons of the judiciary in free
India, there is nothing surprising in the omission to bring them within F
the purview of the Prevention of Corruption Act, 1947, or absence of a
similar legislation for them alone. This position continued even during
the deliberations of the Santham Committee which clearly mentioned in
its Report submitted in 1964 that it has considered the judiciary outside
the ambit of its deliberations. Clearly, it was expected that the higher
judiciary whose word would be final in the interpretation of all laws G
including the Constitution, will be comprised of men leading in the
spirit of self-sacrifice concerned more with their obligations then rights,
so that there would be no occasion for any one else to sit in judgment
over them. [305H; 306A-D]

·6.2 The fact that the Parliament did not enact any other law for H
214 SUPREME COURT REPORTS [1991] 3 S.C.R.

A
the investigation into allegations of corruption against a superior Judge
and for his trial and punishment for that offence and rest content
merely with enacting the Judges (Inquiry) Act, 1968, to provide for the
procedure for removal of a Judge under Article 124 (4) is a clear pointer
in the direction that the Parliament has not as yet consiclered it expe-
dient to enact any such lnw for the trial and punishment on the charge
B of corruption of a superior Judge, except by his removal from office in
the manner prescrihed. The provisions of the Judges (Inquiry) Act,
1968, provide the procedure for investigation and proof of an allegation
of corruption against a superior Judge and.if the Prevention of Corrup-
tion Act, 1947 is held applicable to them, then there would be two
separate procedures under these two enactments providing for investi-
gation into the same charge. This anomaly and incongruity cannot be
c attributed to a conscious act of the Parliament while enacting the
.Judges (Inquiry) Act, 1968, after the 1964 amendment in the Preven-
tion of Corruption Act. [3010-F]

7. I The constitutional functionaries namely Judges of High
D Courts, Judges of the Supreme Court, the Comptroller and Auditor
General and the Chief Election Commissioner were never intended to
fall within the ambit of the Act as initially enacted in 1947, when provi-
sions similar to Articles 124(4) and (5) of the Constitution were present
in the Government of India Act, 1935, nor was any such attempt made
by amendment of the Prevention of Corruption Act in 1964 and the
E same position continues in the Prevention of Corruption Act, 1988. [300A-B]

F
7.2 If there is now a felt need to provide for such a situation, the
remedy lies in suitable parliamentary legislation for the purpose pre-
serving the independence of judiciary free from likely executive influ-
ence while providing a proper and adequate machinery for investiga-
lion into allegations of corruption against such.constitutional func-
tionaries and for their trial and punishment after the investigation. The
-
remedy is not to extend the existing law and make it workable by
reading into it certain guidelines for which there is no basis in it. since
the Act was not intended to apply to them. [300B-C]

G 7 .3 The test of applicability of the existing law would be the legal
sanction and justiciability of the proposed guidelines without which it is •
unworkable in the case of such persons. In fact, the very need to read the
proposed guidelines in the existing law by implication is a clear indica- ,.
tion that the law as it exists does not apply to them. Making the law
applicable with the aid of the suggested guidelines, is not in the domain
H of judicial craftsmanship, but a naked usurpation of legislative power in
a virgin field. [300C-D]
- K. VEERASWAMI v. U.0.1. 215

IS.I Laying down guidelines to be implicitly obeyed, if they find no
A
place in the existing enactment and to bring the superior Judges within
the purview of the existing law on that basis, would amount to enacting
a new law outside the scope of the existing law and not merely constru-
ing it by supplying the deficiencies to make it workable for achieving the
object of its enactment. [273E-F]
B
S.P. Sampath Kumar v. Union of India, [1987] I SCC 124,
distinguished.

8.2 In case a legislation like the Prevention of Corruption Act for
superior Judges also is considered necessary at this point of time, the
.Parliament can perform its function by enacting suitable legislation, it
being a virgin field of legislation. [274B I
c

8.3 There is no material to indicate that corruption in judiciary
was a mischief to be cured when the Prevention of Corruption Act was
enacted. For this reason, the desirability now expressed of having such
a law cannot be an aid to construction of the existing law to widen its D
ambit and bring these constitutional functionaries within it. [273B-C]

8.4 .Judicial activism can supply the deficiencies and fill gaps in
an already existing structure found deficient in some ways, but it must
stop sort of building a new edifice where there is none. [2730I
E
8.5 If it is considered that the situation has altered requiring
scrutiny of the conduct of even Judges at the highest level, and that it is
_j -~ a matter for the Parliament to decide, then the remedy lies in enacting
suitable legislation for that purpose providing for safeguards to ensure
independence of judiciary since the existing law does not provide for
that situation. [3060-E] F

8.6 Any attempt to bring the Judges of the High Courts and the
Supreme Court within the purview of the Prevention of Corruption Act
by a seemingly constructional exercise of the enactment, appears to be
an exercise to fit a square peg in a round hole when the two were never
intended to match. [306E-F] G

CRIMINAL APPELLATE JURISDICTION: Criminal Appeal
No. 400 of 1979.

From the Judgment and Order dated 27.4.79 of the Madras High
Court in Criminal Misc. P. No. 265 of 1978. H
216 SUPREME COURT REPORTS [1991] 3 S.C.R.

A Kapil Sibal, B.R.L. Iyengar, K.V. Mohan, S.R. Setia, K.R.
Nambiar and A.K. Nigam for the Appellant.

A.O. Giri, Solicitor General, K.T.S. Tulsi, Additional Solicitor
General, A.M. Khanwilkar and P. Parmeswaran for the Respondent.
B
The Judgment of the Court was delivered by

RAY, J. I have had the advantage of deciphering the two draft
judgments prepared by my learned brothers She tty and Verma, JJ. I
agree with the conclusions arrived at by my learned brother Shetty, J.
Yet considering the great importance of the questions involved in this
C matter, I deem it just and proper to consider the same and to express
my own views.

Three very important q<1estions fall for decision in this case. First
of all whether a Judge of the Supreme Court or a Judge of a High
0 Court is a public servant within the meaning of Section 2 of the
Prevention of Corruption Act, 1947. Section 2 of the Prevention of
Corruption Act interprets a public servant as meaning a public servant
as defined in section 21 of the Indian Penal Code i.e. Act 45 of 1860.
Section 21 of the_ Indian Penal Code states that a public servant
denotes a person falling under any of the description mentioned
E therein:

'Third-Every Judge including any person empowered by
law to discharge, whether by himself or as a member of any
body of persons any adjudicarory functions." . "\...

Thus, the definition of a pubhc servant is very wide enough to
include Judges of the Supreme Court as well as Judges of the High
Court. Section 77 of the Indian Penal Code provides immunity to the
Judges in respect of any act done by a Judge when acting judicially in
the exercise of any power which is, or which in good faith he believes
to be, given to him by.law.
G
The next question is whet\ler a judge of the Supreme Court or a
Judge of High Court including the Chief Justice of the High Court can
be prosecuted for having committed the offence of criminal miscon-
duct as r~ferred to in clause (e) of sub-sectio~ I of section 5 of the
Prevention of Corruption Act, 1947. Provisions of clause (e) of section
H 5(l)areasfollows:- ·
K. VEERASWAMl v. u.o.r. [RAY, J.J 217

"if he or any person on his behalf is in possession or has, at
A
any time during the period of his office, been in possession,
for which the public servant cannot satisfaciorily account,
of pecuniary resources or property disproportionate to his
known sources of incOme."

Therefore, it is clear that a Judge will be liable for committing criminal
misconduct within the meaning of clause (e) of sub-section (1) of
section 5 of the said Act if he has in his possession pecuniary resources

-
or property disproportionate to his known sources of income for which
the public servant (or a Judge as the public servant) cannot satisfacto-
rily account. Section 6(1)(c) specifically enjoins that no court shall
take cognizance of an offence punishable under Section 5 of this Act,
alleged to have been committed by a public servant i.e. the Judge of c
the High Court including the Chief Justice of the High Court as in the
present case, except with the previous sanction under clause (c) in the
case of any other person, of the authority competent to remove him
from his office. So to initiate a proceeding against a Judge of a
Supreme Court for criminal misconduct falling under Section :i(l)(e), .D

- previous sanction of the authority who is competent to remove a Judge
including Chief Justice of the High Court from his office, is
imperative.

A Judge of the Supreme Court as well as a Judge of the High
Court is a constitutional functionary appointed under Article 124 arid E
under Article 217 of the Constitution respectively. Sub-article 2 of
Artide 124 further provides that every Judge of the Supreme Court
shall be appointed by the President by wa.rrant under his hand and seal
J ...- after consultation with such of the Judges of the Supreme Court and of
the High Courts in the States as the President may deem necessary for
the purp.ose and shall hold office until he attains the age of sixty-five F
years. It also provides that in the case of appointment of a Judge other
than the Chief Justice, the Chief Justice of India shall always be con-
sulted. Article 217'provides that every Judge of a High Court shall be
appointed by the President by warrant under his hand and seal after
consultation with the Chief Justice of India, the Governor of the State,
and in the case·of appointment of a Judge other than the Chief justice, G
·----' the Chief Justice of the High Court. Sub-article 4 of the said article 124
further en joins that a Judge of the Supreme Court shall not be
removed from his office except by an order of the President passed
after an address by each House of Parliament supported by a majority
of the total membership of that House and by a majority of not less
than two-thirds of the members of that House present and voting has H
218 SUPR.IOME COURT REPORTS I1991] 3 S.C.R.

A been presented to the President in the same session for such removal
on the ground of proved misbehaviour or incapacity. Sub-article (5)
also provides that Parliament may by law regulate the procedure for
the presentation of an address and for the investigation and proof of
the misbehaviour or incapacity of a Judge under clause (4). Article 218
states that provisions of clauses (4) and (5) of Article 124 shall apply in
B relation to a High Court.

On a plain reading of the provisions of sub-article 4 of Article
124, a Juilge of the Supreme Court can only be removed on the ground

c
of proved misbehaviour or incapacity by an order of the President
passed after an address by each House of Parliament supported by a
majority of the total membership of that House and by a majority of
not less than two-thirds of the members of that House present and
-
voting, has been presented to the President in the same session for
such removal on the ground of proved misbehaviour or incapacity. Jn
other words, the President cannot on its own remove a Judge of the
Supreme Court unless an address by each House of Parliament sup-
D ported by a majority of the total membership of that House and by a
majority of not less than two-thirds of the members of that House
present and voting, is passed and presented to him for removal of the
Judge on the ground of proved misbehaviour or incapacity. Therefore,
the repository of this power is not in• the President alone but it is
exercised after an address by each House of Parliament supported by a
E majority of the total membership of that House and by a majority of
not less than two-third of the members of that House is presented to
the President. Without such an address by each of the House of the
Parliament, the President is not empowered under the Constitution to
order removal of a Judge of the Supreme Court from his office. Article
218 lays down that a Judge of the High Court may be removed from his
F office by the President in the man.ner provided under clauses (4) and
(5) of Article 124. So viewing the aforesaid constitutional provisions
for removal of a Judge for proved misbehaviour or incapacity, it is
imperative that each House of the Parliament shall make an address to
the President after the same is wpported by a majority of the total
membership of that House and by a majority of not less than two-
G thirds of the members of that House present and voting. Unless that
address is presented to the President in the same session for such
removal, the President is not empowered under the Constitution to
make the order for removal of the Judge of the Supreme Court of
India or of the Judge of the High Court on the ground of proved
misbehaviour or incapacity. Of course, the power of the President to
H remove a Judge of the Supreme Court or of the High Court is to be
K. VEERASWAMI v. U.0.1. [RAY. J.J 219

exercised by the President in the manner expressly laid down in clause
A
4 of Article 124. In the case of Union of India v. Sankalchand, AIR
1977 (SC) 2328 it has been observed by majority of the Constitution
Bench that there is no need or justification, in order to uphold or
protect the independence of the judiciary, for construing Article
222(1) to mean that a Judge cannot be transferred from one High
Court to another without his consent. B

"The power to transfer a High Court Judge is conferred by
the Constitution in public interest and not for the purpose

- of providing the executive with a weapon to punish a Judge
who does not toe its line or who, for some reason or the
other, has fallen from its grace. The executive possesses no
c
such power under our Constitution and if it can be show-n-
though we see the difficulties in such showing-that a trans-
fer of a High Court Judge is made in a given case for an
extraneous reason, the exercise of the power can appro-
priately be struck down as being vitiated by legal ma/a
fides. The extraordinary power which the Constitution has D

- conferred on the President by Art. 222(1) cannot be exer-
cised in a manner which is calculated to defeat or destroy in
one stroke the object and purpose of the various provisions
conceived with such care to insulate the judiciary from the
influence and pressures of the executive. The power to
punish a High Court Judge, if one may so describe it. is to E
be found only in Art. 218 read with Art. 124(4) and (5) of the
Constitution, under which a Judge of the High Court can
be removed from his office by an order of the President
.> "" passed after an address by each House of Parliament, sup-
a
ported by majority of the total membership of that House
and by a majority of not less then two-thirds of the members F
of that House present and voting, has been presented to the
President in the same session for such removal on the
ground of proved misbehaviour or incapacity. Thus, if the
power of the President, who has to act on the advice of the
Council of Ministers, to transfer a High Court Judge for
reasons not bearing on public interest but arising out of G
whim, caprice or fancy of the executive or its desire to bend
a Judge to its own way of thinking, !here is no possibility of
any interference with the independence of the judiciary if a
Judge is transferred without his consent.

The same view about the independence of the judiciary from the con- H
220 SUPREME COURT REPORTS I 19911 3 S.C.R.

A trol of the executive has been spelt out by the observations of the
Constitution Bench of Seven Judges in the case of S.P. Gupta & Ors.
v. President of lndia and Ors .. AIR 1982 (SC) 149.

"The concept of independence of judiciary is a noble
concept which inspires the Constitutional Scheme and con-
B stitute the foundation on which rests the edifice of our
democratic polity. If there is 'one principle which runs
through the entire fabric of the Constitution, it is the
principle of the rule of law and under the Constitution, it is
the judiciary which is entrusted with the task of keeping
every organ of the State within the limits of the law and
thereby making the rule of law meaningful and effective. It
c is to aid the judiciary in this task that the power of judicial
review has been conferred upon the judiciary and it is by
exercising this power which constitutes one of the most
potent weapons in armoury of the law, that the judiciary
seeks to protect the citizen against violation of his constitu-
D tional or legal rights or misuse of abuse of power by the
State or its officers. The judiciary stands between the citi-
zen and the State as a bulwark against executive excesses
and misuse or abuse or power by the executive and there it .•
is absolutely essential that the judiciary must be free from
executive pressure or influence and this has been secured
E by the Constitution makers by making elaborate provisions
in the Constitution to which detailed reference has been
made in the judgments in Sankalchand Sheth's case (AIR
I977 SC 2326) (supra). But it is necessary to remind
ourselves that the concept of independence of the judiciary
is not limited only to independence from executive pres-
F sure or influence but it is a much wider concept which takes
within its sweep independence from many other pressures
and prejudices. It has many dimensions, namely fearless-
ness of other power centres, economic or political, and
freedom from prejudices acquired and nourished by the
class of which the Judges belong. If we may again quote the
G eloquent words of Justice Krishna Iyer:

"Independence of the judiciary is not genuflexion;
nor is it opposition to every proposition of Government. It
is neither judiciary made to opposition measure nor
Government's pleasure.
H
K. VEERASWAMI v. U.0.1. [RAY, l.J 221

The tyc<'on, the communalist, the parochialist, the
A
faddist, the extremist and radical reactionary lying coiled up
and sub-consciously shaping judicial mentations are
menaces to judicial independence when they are at
variance with parts Ill and IV of the Paramount Parchment".

Judges should be of stern· stuff and tough fibre, B
unbending before power, economic or political, and they
must uphold the core principle of the rule of law which says
"Be you ever so high, the law is above you." This is. the
. principle of independence of the judiciary which is vit1l for
the establishment of real participatory democracy, main-
tenance of the rule of law as a dynamic concept and deli-
very of social justice to the vulnerable sections of the com- c
munity. It is this principle of independence of the judiciary
which we must keep in mind while interpreting the relevant
· provisions of the Constitution.

The third most crucial question that falls for consideration in this D
case is who is the competent authority to remove a Judge either of the
Supreme Court or of the High Court from his office in order to enable
that authority to grant sanction for prosecution of the Judge under the
provisions as enjoined by Section 6 of the Prevention of Corrup!ion
Act, 1947. Section 6 has been couched in negative terms to the follow-
ing effect: E

"No Court shall take cognizance of an offence punishable

,; - under Section 16 I or Section 164 or Section 165 of the
Indian Penal Code (45 of 1860), or under sub-section (2) or
sub-section (3A) of Section 5 of this Act, alleged to have
been committed by a public servant, except with the previ- F
ous sanction, ... ~-· ~ ..

(c) in the case of any 6\her person, of the autC.ority compe-
tent to remove him from his office.

In order' to launch a prosecution against a Judge either of the G
Supreme Court or of the High Court or the Chief Justice of the High
Court previous sanction of the authority competent to remove a Judge
from his office is mandatorily required. The question, therefore, arises
who is the authority competent to grant sanction. The Judge of the
Supreme Court or the Judge of the High Court is appointed under the
provisions of Article 124 or under the provisions of Article 217 respec- H
222 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

A tively. A Judge of the Supreme Court shall be appointed by the Presi-
dent by the warrant under his hand and seal after consultation with
such Judges of the Supreme Court and of the High Court in the State
as the President may deem necessary for the purpose and shall hold
office until he attains the age of 65 years. Similarly, a Judge of the
High Court shall be appointed by the President by the warrant under
B his hand and seal after consultation with the Chief Justice of India, the
Governor of the State, and in case of an appointment of the Judge
other than the Chief Justice, the Chief Justice of the High Court and
shall hold office except in the case of an additional judge till he attains
the age of 62 years. It is, therefore, evident that a Judge of the
Supreme Court as well as a Judge of the High Court is a constitutional --
functionary as has been observed by this Court in the decisions cited
c hert;inbefore and to maintain the independence of the judiciary and to
enable the Judge to effectively discharge his duties as a Judge and to
maintain the rule of law, even in respect of !is against the Central
Government or the State Government. The Judge is made totally inde-
pendent of the control and influence of the executive by mandatorily
D embodying in article 124 or article· 217 that a Judge can only be
removed from his office in the manner provided in clause (4) and (5) of
article 124. Thus, a Judge either of the High Court or of the Supreme
Court is independent of the control of the executive while deciding
cases between the parties including the Central Government and State
Government uninfluenced by the State in any manner whatsoever. It is
E beyond any pale of doubt that there is no master and servant relation-
ship or employer and employee relationship between a Judge of the
High Court and the President of India in whom the executive power of
the Union is vested under the provisions of Article 53 of the Constitu-
tion. The President has not been given the sole power or the exclusive
power to remove a Judge either of the Supreme Court or of the High
F Court from his office though the President appoints the Judge by war-
-'
rant under his hand and seal after consultation with such of the Judges
of the Supreme Court and of the High Court in the States as he may
deem necessary for that purpose and in case of the appointment of the
Judge of the High Court, the President appoints a Judge by warrant
under his hand and seal after consultation with the Chief Justice of
G India, the Governor of the State and in a case of appointment of a
Judge other than the Chief Justice, the Chief Justice of the High
Court. The only mode of removal of a Judge from his office on the
ground of proved misbehaviour or incapacity is laid down in clauses
(4) and (5) of Article 124. It is has been eloquently and vehemently
urged on behalf of the appellant that since the Judge of the Supreme
H Court as well as of the High Court is a constitutional functionary and
K. VEERASWAMI v. U.O.l. [RAY, J.] 223

there is no employer and employee relationship or master and servant
A
relationship between the fodge and the President of India and for that
the Central Government or the State Government there is no autho-
, '""'" rity to remove the Judge from his office by the executive except by
taking recourse to procedure of impeachment as envisaged in Article
124(4) and (5) of the Constitution of India. It has been further urged in
this connection that if it is assumed that the President has the power to B
remove a Judge of the Supreme Court or of the High Court from his
office it will do away with the independence of the judiciary and will
being the judiciary under the control of the executive indirectly in as
much as under Article 74 of the Constitution of India, the President
while exercising his executive power has to act on the aid and advice of
the Council of Ministers with the Prime Minister at the Head, as has
been held by this Court in Shamsher Singh & Anr. v. State of Punjab, c
[1975] l SCR 814 and S.P. Gupta & Ors. etc. etc. v. Union of lnida &
Ors. etc. etc., (supra). It has been, therefore, urged that Section
6(1)(C) of the Prevention of Corruption Act, 1947 is not applicable to
the case of a Judge of the Supreme Court or of the High Court. No
prosecution can be launched against a Judge of the Supreme Court or D

- of the High Court under the provisions of the said Act except in the
mode envisaged in Article 124, clauses 4 and 5 of the Constitution for
removal of the Judge. The FIR in question, which has been lodged
against the appellant should be quashed and set-aside. Section 2 of the
Prevention of Corruption Act denotes a public servant as defined in
Section 21 of the Indian Penal Code (45 of 1860). It has been noticed E
hereinbefore that the third clause particularly of Section 21 of the
Indian Penal Code includes every Judge including any person
empowered by law to discharge whether by himself or as a member of
any body of persons any adjudicatory functions. Therefore a Judge of
the High Court or of the Supreme Court comes within the definition of
public servant and he is liable to be prosecuted under the provisions of F
the Prevention of Corruption Act. It is farthest from our mind that a
Judge of the Supreme Court or that of the High Court will be immune
from prosecution for criminal offences committed during the tenure of
his office under the provisions of the Prevention of Corruption Act.

In these circumstances the only question to be considered is who G
~i will be the authority or who is the authority to grant sanction for
prosecution of a Judge of the High Court under section 6(1)(c) of the
said Act. The Judge as a constitutional functionary being appointed by
the President can only be removed by mandatory procedure provided
under Article 124 of the Constitution and in no other manner. The
Judges (Inquiry) Act, 1968 has been enacted by Parliament to regulate H.
224 SUPREME COURT REPORTS [1991] 3 S.C.R.

A the procedure for the investigation and proof of the misbehaviour or
incapacity of a Judge of the Supreme Court under clause (5) of sub-
section 1 of Article 124 of the Constitution. The Judges (Inquiry)
Rules, 1969 have been framed under section 7(4) of the Judges
(Inquiry) Act, I968. The said Act and the Rules made thereunder only
provide for removal of a Judge on the ground of proved misbehaviour
B or inability. It does not provide for prosecution of a Judge for offences
under section 5(1)(e) of the Prevention of Corruption Act. It is
apropos to mention in this connection that in England, before the full
development of ministerial responsibility, impeachment was a weapon
enabling the Commons to call to account ministers appointed by, and
responsible to, the Crown. As the commons acquired direct control
over ministers, there was no need to employ the cumbersome machi-
c nery of impeachment and there has been no impeachment since 1805.
As impeachment of political offenders might involve not only depri-
vation of office but other penalties, the royal prerogative of pardon
does not extend to preventing impeachment but extends to pardoning
punishments inflicted on an impeachment. In England, offices held
D during good behaviour may in the event of misconduct be determined
by impeachment. In practice, however, an address to the Crown for
the removal of a judge must originate in the House of Commons; the
procedure is judicial and the judge is entitled to be heard. There is no
-
instance of the removal of a judge by this method since the Act of
Settlement. This power to remove by impeachment or address, a
E person holding office during good behaviour, is an essential counter-
part to the independence secured to the holde;s of high office by
making their tenure one of good behaviour instead of at pleasure.

Under Art. II, s. 4, U.S. Constitution, the President, Vice-
President and all civil officers of the United States can be removed
F from office on impeachment for, and conviction uf, "Treason, Bribery
or other high Crimes and misdemeanours". Since the President of the
United States who is the.highest executive authority of the State, an
impeachment has been provided for and in fact, President Johnson was
impeached in 1867 for high crimes and misdcmeanours. Jn 1913,
Justice Archibald of the Commerce Court was'removed from office by
G impeachment for soliciting for himself and others, favours from rail-·
road companies, some of which were at the time litigants in his court;
in 1936 the removal of Judge Wright of the Florida Court for conduct
in relation to a receivership which evoked serious doubts as to this
integrity, although he was acquitted of specific charges, seem to have
restored the wider view. For, in neither case, were the two judges
H found guilty of an indictabie offence. It has been said that:
K. VEERASWAMJ v. U.0.1. [RAY, J.) 225

"As to the Judges of the United States at least lack of 'good
A
behaviour' and 'high crimes and misdemeanours' are over-
lapping if not precisely coincidental concepts."

(Seervai's Con•oitutional Law of India, Third Edition, Vol.II, page
1698 paras 18.8 and 18.9).
B
It has been urged by the Solicitor General as well as the Addi-
tional Solicitor General that the Judges of the High Coui': cannot be
said to be exempted from prosecution in respect of offences provided
in the Prevention of Corruption Act. It has been urged further that
under Article 361, the President and the Governor have been given
protection from being answerable to &ny court for the exercise and
performance of the powers and duties of his office or for any act done c
or purporting to be done by him in the exercise and performance of
those powers and duties. Clause 2 of the said Article further provides
that no criminal proceedings whatsoever shall be instituted or con-
tinued against the President, or the Governor of a State, in any court
during his term of office. No such immunity from criminal prosecution D
has been provided for in the case of a Judge of the High Court or of the
Supreme Court. It has, therefore, been urged that the High Court
should ensure modalities for launching prosecution against a Judge
under the said Act. Undoubtedly, respect for the judiciary and its
public credibility and dignity has to be maintained in order to ensure
respect for the Judges in public and aha for the decisions rendered by E
the Judges. It is, therefore, necessary to evolve some method com-
mensurate with the grant of sanction in cases of serious allegation' .
c<Jrruption and acquisition or the possession of dispropm tionate assets
which the Judge cannot satisfactorily account for or possession of
property disproportionate to the sources of income of the Judge. If
these things are allowed to go unnoticed it will create a serious inroad F
on the dignity" respect, and credibility and integrity of the High Office
which a Judge of the Supreme Court and of the High Court occupies
resulting in the erotion on the dignity and respect for the high office of
the Judges in the estimation of the public. As has been suggested by
my learned Brother Shetty, J. that the President is given the power to
appoint the Judges of the Supreme Court as well as of the High Court G
by warrant under his hand and seal and similarly even after passing of an
address by' both the Houses of the Parliament in the manner provided
in Article 124, clauses (4) and (5) and placed oefore the President, a
Judge cannot be removed from his office unless and,order to that effect
is passed by the President. The President, therefore, has the power to
appoint as well as to remove a Judge from his office on the ground of H
226 SUPREME COURT REPORTS I1991] 3 S.C.R.

A proved misbehaviour or incapacity as provided in Article 124 of the
Constitution. The President, therefore, being the authority competent
to appoint and to remove a Judge, of course in accordance with the
procedure envisaged in Article 124, clauses (4) and (5) of the Constitu-
tion, may be deemed to be the authority to grant sanction for prosecu-
tion of a Judge under the provisions of Section 6( l)(c) in respect of the
B offences provided in section 5(1)(e) of the Prevention of Corruption
Act, 1947. In order to adequately protect a Judge from frivolous pro-
secution and unnecessary harassment the President will consult the
Chief Justice of India who will consider all the materials placed before him
and tender his advice to the President for giving sanction to launch
pro~ecution or for filing FIR against the Judge concerned after being
satisfied in the matter. The President shall act in accordance with
c advice given by the Chief Justice of India. If the Chief Justice is of
opinion that it is not a fit case for grant of sanction for prosecution of
the Judge concerned the President shall not accord sanction to prose-
cute the Judge. This will save the Judge concerned from unnecessary
harassment as weil as from frivolous prosecution against him as sug-
D gested by my learned brother She tty, J. in his judgment. Similarly in
the case of Chief Justice of the Supreme Court the President shall
consult such of the Judges of the Supreme Court as he may deem fit
and proper and the President shall act in accordance with the advice
given to him by the Judge or Judges of the Supreme Court. The
purpose of grant of previous sanction before prosecuting a public
E servant i.e. a Judge of the High Court or of the Supreme Court is to
protect the Judge from unncessary harassment and frivolous prosecu-
tion more particularly to save the Judge from the biased prosecution
for giving judgment in a case whch goes against the Government or its
officers though based on good reasons and rule of law. Mention may
be made in this connection to the decision in C.K. Daphtary v. O.P.
F Gupta, A.LR. 1971 SC 1132, wherein it has been observed:

"It seems to us that whoever drafted the Impeachment
Motion drafted it with a view to bring the facts within the
meaning of the express "misbehaviour" in Article 124(4)
for he must have realised that to say that a Judge has com-
G mitted errors, even gross errors, cannot amount to
)---
"misbehaviour".

The contention that frivolous prosecution can be launched against a
Judge for giving a jud5ment against the Central Government or any of
its Officers is of no avail in as much as such decision does not amount
H to misbehaviour within the meaning of the Article 124 of the
Constitution.
K. VEERASWAMI v. U.0.I. [RAY, J.J 227

It is also necessary to mention in this connection that the appel-
lant resigned fas post of Chief Justice when FIR was lodged by the CBI
A
and so he ceased to be a public servant on the date of lodging the FIR
against him by the CBI. The scope and applicability of section 6 of the
Prevention of Corruption Act came to be considered in the case of
R.S. Nayak v. A.R. Antulay, [1984] 2 SCR 495 before a Constitution
Bench of this Court where it has been observed: B

"Section 6 bars the Court from taking cognizance of the
offences therein enumerated alleged to have been commit-
ted by a public servant except with the previous sanction of
the competent authority empowered to grant the requisite
sanction ............. Saction 6 creates a bar to the court
from taking cognizance of offences therein enumerated c
except with the previous sanction of the authority set out in
clause (a) (b) & (c) of sub-sec. (I). The object underlying
such provision was to save the public servant from the
harassment of frivolous or unsubstantiated allegations. The
policy underlying Sec. 6 and similar sections, is that there 0
should not be unnecessary harassment of public servant
(C.R. Bansi v. State of Maharashtra), [1971] 3 S.C.R. 236.
Existence thus of a valid sanction is a pre-requisite to the
taking of cognizance of the enumerated offences alleged to
have been committed by a public servant. The bar is to the
taking of cognizance of offence by the court. Therefore, when E
the court is called upon to take cognizance of such
offences, it must enquire whether there is a valid sanction
to prosecute the public servant for the offence alleged to
have been committed by him as public servant. Undoub-
tedly the accused must be a public servant when he is
alleged to have committed the offence of which he is F
accused because Sections 161, 164, 165 !PC and Sec. 5(2) of
the 1947 Act clearly spell out that the offences therein
defined can be committed by a public servant. If it is con-
templated to prosecute public servant who has committed
such offences, when the court is called upon to take cogni-
zance of the offence, a sanction ought to be available G
otherwise the court would have no jurisdiction to take
cognizance of the offence. A trial without a valid sanction
where one is necessary under section 6 has been held to be
a trial· without jurisdiction by the court. (R.R. Chari v.
State of U.P., and S.N. Bose v. State of Bihar), In Mohd.
Iqbal Ahmed v. State of A.P., it was held that the terminus H
228 SUPREME COURT REPORTS [1991] 3 S.C.R.

A a quo for a valid sanction is the time when the court is
called upon to take cognizance of the offence. Therefore,
when the offence is alleged to have been committed the
accused was a public servant but by the time the court is
called upon to take cognizance of the offence committed by
him as public servant, he has ceased to be public servant,
B no sanction would be necessary for taking cognizance of
the offence against him. This approach is in accord with the
policy underlying Sec. 6 in that a public servant is not to be
exposed to harassment of a frivolous or speculative pro-
secution. If he has ceased to be a public servant in the
meantime, this vital consir!eration ceases to exist."
c In the present appeal the appellant ceases to be a public servant as he
resigned from the office. Therefore at the time of filing the FIR the
appellant ceases to be a public servant and so no sanction under Sec.
6(1)(c) of the said act is necessary. The main plank of the argument
regarding sanction is, therefore, non-existent. ·
D
In these circumstances the judgment and order of the High Court
dismissing the application under Sec. 482 of the Code of Criminal
Procedure is in my considered opinion, wholly in accordance with law
and as sµch the Order of the High Court has to be upheld in any
circumstances. I agree with the conclusion of my learned brother
E Shetty, J. The appeal is, therefore, dismissed. The trial of Criminal
Case No. 46/77 filed by the Respondent be proceeded with.

K. JAGANNATHA SHETTY, J. This appeal by certificate ..,.. .
under Articles 132(1) and 134( l)(e) of the Constitution has been filed
by the former Chief Justice of the Madras High Court against the Full
F Bench decision of the same High Court refusing to quash the criminal
proceedings taken against him. The appeal raises the questions of
singular importance and consequence to Judges of the High Courts
and this Apex Court. T<he central issue is whether the Judges could be
prosecuted for offence under the Prevention of Corruption Act, 1947
('the Act').
G
The background of the case in the barest outliue is as follows:
The appellant started his life as an Advocate in the High Court of
Madras. He joined the Madras Bar in 1941. In 1953, he was appointed
as Assistant Government Pleader. In 1959 he became Government
Pleader. He held that post till 20 February 1960 when he was elevated
H to the Bench as a permanent Judge of the Madras High Court. On
K. VEERASWAMI v. U.O.I. [SHETIY, J.] 229

l May 1969, he became the Chief Justice of the Madras High Court.
A
During his tenure as the Judge and Chief Justice he was said to have
acquired assets disproportionate to the known source of income. The
complaint in this regard was made to the Delhi Special Police.
Establishment ("CBI"). On 24 February 1976, the CBI registered a
case against him with issuance of a First Information Report w.hich w.as
filed in one of the Courts at New Delhi. It w·as alleged in the Firs.I B
Information ;Report that taking .into corisideration th"e sou.rces of
income of the appellant.as a Judge and Chief Justice of the High Court
and the mode and· style of his living with the ·probable expenses
required during the period of his Judgeship/Chief Justiceship, it is
reasonably believed that the appellant cannot satisfactorily account for
the possession of assets which are far disproportionate to his known
source of income. H was further alleged that he has committed c
offences under Section 5(2)read with clauses (b)(d) and (e) of Section
5( I) of the Act. On 28 February 1976, a copy of the First Information
Report was pers.onally taken by the Investigating Officer to Madras
and it was filed before the Court of Special Judge, Madras. The appel-.
lant on coming to know of these developments proceeded on leave . .D
from 9 March 1976 and subsequently retired o.n 8 April 1976 on attain,
ing the age of superannuation.

The investigation of the case by CBI was however, coniinued
with the culmination of filing a final report. On 15 December 1977, a
final report under Section 173(2) of the Code of Criminal "Procedure · E
(Cr. P.C.) was filed against the appellant before the Special Judge,
Madras. The report under Section 173(2) is generally called as th~
' - charge sheet, and we would also prefer to term it as the charg.e sheet.
The charge sheet inter alia states that the appellant after assuming
office as the Chief Justice of Madras gradually commenced accumula-
tion of disproportionate assets etc. That for the period between 1 May F
1969 to 24 February 1976, •he Was in po·ssessfon of the pecuniary
resources and property disproportionate by ~Rs.6.41,416.36 to the•
known so~rces of i11:come over the same period. [fwas in his o~n name
and in the names of his wife Smt. Eluthai Ammal and his two sons Shr.i
V. Suresh and Shri V. Bhaskar. The appellant cannqi sati.sfactorily
account for such disproportionate assets. The appellant has thereby G
committed the offence of criminal misconduct under clause (e) of
Section 5( 1) which is punishable under Section 5(2) of the Act. The
particulars of the disproportionate assets and the income of the appel-
lant during the aforesaid period have been fully sei out in the .charge
sheet. On perusing the charge .sheet the learned Special Judge appears
to have issued process for appearance of .the appellant but .th.e appel- H
230 SUPREME COURT REPORTS [1991) 3 S.C.R.

Iant did not appear there. He moved the High Court of Madras under
A
Section 482 ofthe Cr. P.C. to quash that criminal proceedings before the
High Court he contended that the proceedings initiated against him were
unconstitutional, wholly without jurisdiction, illegal and void. The Full
Bench of the High Court by majority view has dismissed his case. How-
ever, in view of the importance of the Constitutional questions involved
B in the case the High Court granted certificate for appeal to this Court.

It may be noted that before the High Court every conceivable
point was argued. fhey are various and varied. We may briefly refer to
those contentions not for the purpose of examining them, since most of
them have not been pressed before us, but only to indicate as to how
the appellant projected his case. It was inter a/ia, contended that the
c Judges of the High Court and Supreme Court shall not be answerable
before the ordinary criminal courts but only answerable to Parliament.
The Parliament alone could deal with their misbehaviour under the
provisions of Articles 124(4) and (5) read with Articles 217 and 218 of
the Constitution. The Judge sl .all hold office unt.il the age of superan-
D nuation subject to earlier removal for proved misbehaviour or incapac-
ity. This protection to Judges will be defeated if they are compelled to
stand trial for offence committed while discharging duties of their
office even before retirement. Even the Parliament or the State Legis-
latures are not competent to make laws creating offences in matters
relating to discharge of Judge's duties. Any such law would vitiate the
E scheme and the federal structure of the Constitution particularly the
scheme of Article 124(4) read with Article 217 and 218. If the Legisla-
tures are held to have powers to create offence for which Judges could
be tried in ordinary criminal Courts then, it may affect the very inde- ,_ '
pendence of the Judiciary and the basic structure of the Constitution.
Though the definition of "public servant" under Section 21 of the
F Indian Penal Code may include a Judge of the Higher Judiciary, since
the Judge is not 'employed in connection with the affairs of the Union
or State', the definition should be narrowed down only to Judges other
than the Judges of the Higher Judiciary. ·

The jurisdiction of the CBI to register the case against the appel-
G !ant and to investigate the offence was also questioned. The issuance
of the First Information Report and the subsequent filing of the charge
sheet were impeached. It was alleged that they were actuated by col-
lateral considerations. Alternatively, it was claimed that even assum-
ing that all the allegations against the appellant are true, it will not
constitute an offence under clause (e) of Section 5(1) of the Act since
H ingredients of the offence are not present in the case. The last and
K. VEERASWAMI v. U.0.1. [SHETIY, J.l 231

perhaps the most important contention urged before the High Court A
"as regarding the neceS>ity to obtain prior sanction from the compe-
tent authority for prosecution of the appellant as required under
Section 6 of the Act. And since there was no such sanction obtained
the Court has no jurisdiction to take cognizance of the case.
B
Mr. Justice Mohan, with whom Mr. Justice Natarajan, (as he
then was) joined rejected all the contentions in a well considered
judgment. The views expressed by Mohan, J., on all the issues except
on the last one need not be set out here since all those issues have not
been raised before us. On the last aspect relating to the requirement of
prior sanction for prosecution of the appellant, the learned Judge, held
that since the appellant has retired from service and was no longer a c
'public servant' on the date of filing the charge sheet, the sanction for
his prosecution required under Section 6 of the Act is not warranted.
The third Judge Mr. Justice Balasubramanyan in a separate judgment
has collcurred with the majority views on most of the questions. He
has ,however, differed on three points out of which one alone need be
D
mentioned. The other two have not been supported before us by
counsel for the appellant. The learned Judge has dealt with the ingre-
dients of the offence under clause (e) of Section 5(1) with which the
appellant was charged. While analysing ingredients of the offence, he
went on to state that the gist of the offence is not the possession of
assets merely. Nor even the sheer excess of assets over income, but the
inability ef the public servant in not being able to satisfactorily account E
for the excess. He observed that clause (e) of Section 5(1) of the Act
places the burden of establishing unsatisfactory accounting squarely on

' - the prosecution. In order to properly discharge this burden cast by the
section, it would be necessary for the Investigating Officer first of all to
call upon the public servant to account for the disproportionate assets.
He must then proceed to record his own finding on the explanation of F
the public servant. He must state whether it is satisfactory or not. And
the offence complained of under clause (e) of Section 5(1) is not made
out without such exercise and finding by the Investigating Officer. The
learned Judge, however, was careful enough to modulate his reasoning
so that it may be in conformity with the constitutional protection
guaranteed to the accused under Article 20(3) of the Constitution. G
Article 20(3) provides that no person accused of any offence shall be
compelled to be a witness against himself. The learned Judge said that
in view of Article 20(3) the Investigating Officer has no power to
compel the accused to give his explanation for his disproportionate
assets, but he must necessarily ask the public servant for an account.
H
232 SUPREME COURT REP'ORTS [1991] 3 S.C.R.

In this case. the accused-appellant has voluntarily submitted his
A
statement of assets and income to the Investigating Officer in the
course of investigation. Balasubramanyan. J., however, seems to
have ignored that ~tatcment and focussed his attention on the default
of the Investigating Officer in not calling ~pon the appellant to account
for the disproportionate assets. In that view. he held that the charge-
B shcet could not be sustained and accordingly quashed the prosecution.

Before us, counsel for the appellant advanced only twG> proposi-
tiGns. The first concerns with the ingredients of the offence alleged and
the requirements of the charge-sheet filed against the appellant. It also
involves the duties of the Investigating Officer. Jn this regard counsel
sought to support the views expressed by Balasubramanyan, J., in his
c dissenting judgment. ,The second proposition relates to the inapplica-
bility of the Act to Judges of the High Courts and Supreme Court. The
essence of the submissions made on this aspect is based on the special
status and role of Judges of the higher judiciary and in the need to
safeguard judicial inc!epend.;nce consistent with the constitutional
D prov1S1ons.

We will take up the second question fast for consideration _.,-
because, if it is determined in favour of the appellant, the first
becomes academic and \Ve rr1ay conveniently leave it out. For a proper
consideration of the submissions made by counsel on both sides the
E attention may be drawn to the relevant provisions of the Act.

Section 2 provides:

"2. For th.e purposes of this Act, "public servant" means a - '
public servant as defined in Section 21 of the Indian Penal
F Code."

Section 4 provides:

4. [( l)] Where in any trial of an offence punishable under
section 16 J or section 165 of the Indian Penal Code (or of
G an offence referred to in clause (a) or clause (b) of sub-
section (I) of section 5 of this Act punishable under sub-
section (2) thereof), it is proved that an accused person has
accepted or obtained, or has agreed to accept or attempted
to obtain, for himself or for any other person, any gratifica-
tion (other than legal remuneration) or any valuable thing
H from any person, it shall be presumed unless the contrary is
K. VEERASWAMJ v. U.0.1. [SHETIY, J.l 233

proved that he accepted or obtained, or agreed to accept or A
attempted to obtain, that gratification or that valuable
thing, as the case may be, as a motive or reward such as is
mentioned in the said section 161, or, as the case may be,
without consideration or for .a consideration which he
knows to be inadequate.
B
(2) Where. in any trial of an offence punishable under
section 165A of the Indian Penal Co<le {or under clause (ii)
of sub-seciion (3) of section 5 of this Act) it is proved that
any gratification (other than legal remuneration) or any
valuable thing has been given or offered to be given or
atiempted to be given by an accused person, it shall be
presumed unless the contrary is proved that he .gave or C
offered to give or attempted to giv~ that gratification or
that valuable thing, as the case may be, as a motive or
reward such as is mentioned in section 161 of the Indian
Penal Code or, as the case may be, with.out consideration
or for a consideration which he knows to be inadequate. D

(3) Notwithstanding anything contained in sub-sections ( 1)
and (2) the court may decline to draw the presumption
"· referred to in either of the said sub-sections, if the gratifica-
tion or thing aforesaid is, in its opinion, so trivial .that no
inference ·of corruption may fairly be .drawn."
'' .
E
. .

Two other provisions are more material namely section 5 and
section 6 and must be set out in full. · ·

Section 5 provides:
F
"5(1) A public servant is said to commit the offence of
criminal mi£conduet-

(a) if he habitually accepts or obtains or agrees to accept or
attempts to obtain from any person for himself or for any
other person, any gratification (other than !~gal remunera- G
tion) as a motive or i-eward such as is mentioned in section
161 of the Indian Penal Code, or

(b) if he habitually accepts or obtains o~ agrees to accept
or attempts to obtain for himself or for any other person,
any valuable thing w;thout coneideration or for a con- H
234 SUPREME COURT REPORTS I 1991) 3 S.C.R.

sideration which he knows to be inadequate, from any
A
person whom he knows to have been, or to be, or to be
likely to be concerned in any proceeding or business trans-
acted or about to be transacted by him, or having any con-
nection with the official functions of himself or of any
public servant to whom he is subordinate, or from any
B person whom he knows to be interested in or related to the
person so concerned, or

(c) if he dishonestly or fraudulently misappropriates or
otherwise converts for his own use any property entrusted
to him or under his control as a public servant or allows any
other person so to do, or
c
(d) if he, by corrupt or illegal means or by otherwise abus-
ing his position as public servant, obtains for himself or for
any other person any valuable thing or pecuniary advan-
tage (or)
D
(e) if he or any person on his behalf is in possession or has,
at any cime during the period of his office, been in posses-
sion, for which the public servant cannot satisfactorily
account, of pecuniary resources or property disproportio-
nate to his known sources of income.
E
(2) Any public servant who commits criminal misconduct
shall be punishable with imprisonment for a term which
shall not be less than one year but which may extend to
seven years and shall also be liable to fine: ,..

F Provided that the court may, for any special reasons
recorded in writing, impose a sentence of imprisonment of
less than one year.

(3) Whoever habitually commits-

G (i) an offence punishable under section 162 or
section 163 of the Indian Penal Code, or

(ii) an offence punishable under section 165 A of the
Indian Penal Code,

H shall be punishable with imprisonment for a term which
K. VEERASWAMI v. U.0.I. [SHEITY, J.J 235

shall not be less than one year but which may extend to
A
seven years, and shall also be liable to fine:

Provided that the court may, for any special reasons
recorded in writing, impose a sentence of imprisonment of
less than one year.
B
(3A) Whoever attempts to commit an offence referred to
in clause (c) or clause (d) of sub-section (I) shall be punish-
able with imprisonment for a term which may extend to
three years, or with fine, or with both.

(3B) Where a sentence of fine is imposed under sub-
section (2) or sub-section (3), the court in fixing the
c
amount of fine shall take into consideration the amount or
the value of the property, if any, which the accused person
has obtained by committing the offence or where the con-
viction is for an offence referred to in clause (e) of sub-
section(!), the pecuniary resources or property referred to D
in that clause for which the accused person is unable to
account satisfactorily.

(4) The provisions of this section shall be in addition to,
and not in derogation of, any other law for the time being
in force, and nothing contained herein shall exempt any E
public servant from any proceeding which might, apart
from this section; be instituted against him.

Section 6 is in the following terms:

"6. No court shall take cognizance of an offence punish- · F
able under section 161 (or section 164) or section 165 of the
Indian Penal Code, or under sub-section (2) (or sub-section
3A) of section 5 of this Act, alleged to have been commit-
ted by a public servant, except with the previous sanction,

(a) in the case of a person who is employed in connection G
with the affairs of the (Union) and is not removable from
his office save by or with the sanction of the Central
Government (of the) State Government;

(b) in the case of a person who is employed in connection
with the affairs of (a State) and is not removable from his H
236 SUPREME COURT REPORTS [1991] 3 S.C.R.

office save by or with the sanction of the Central Govern-
A
ment (of the) State Government

(c) in the case of any other person, of the authority compe-
tent to remove him from his office.

B (2) Where for any reason whatsoever ahy doubt arises
whether the previous sanction as required under sub-section
( 1) should be given by the Central or State Government or
any other authority, such sanction shall be given by that
Government or authority which would have been compe-
tent to remove the public servant from his office at the time
when the offence was alleged to have been committed.
c
It will be convenient, if at this stage, we also read Section SA.
Omitting the immaterial clauses, Section SA is in these terms:

"SA. Notwithstanding anything contained in the Code of
b Criminal Procedure, 1898, no police officer below the
rank-

(a) in the case of the Delhi Special Police Establishment,
of an Inspector of Police;

E (b) in the presidency-towns of Calcutta and Madras, of an
Assistant Commissioner of Police;

(c) in the presidency-towns of Bombay, of a Superinten-
dent of Police; and · ,_ .
(d) elsewhere, of a Deputy Superintendent of Police,

shall investigate any offence punishable under Sectio"n 161,
section 16S or section 16SA of the Indian Penal Code or
under section S of this Act without the order of a Presi-
dency Magistrate or a Magistrate of the first class, as the
G case may be, or make any arrest therefor witho_ut a
warrant:

Provided thai if a police officer not below the rank of an
Inspector of Police is authorised by the State Government
in this behalf by general or special order, he may also
H investigate any such offence without the order of a Presi-
K. VEERASWAMI v. U.0.J. ISHETIY, J.J 237

dency Magistrate or a Magistrate of the first class, as the
A
case may be, or make arrest therefor without a warrant:

Provided further that an offence referred to in clause (e) of
sub-section(!) of Section 5 shall not be investigated with-
out the order of a police officer not below the rank of a
Superintendent of Police. B

The Act was intended to suppress bribery and corruption m
public administration and it contains stringent provisions. Section 4
raises presumption unless the contrary is proved by the accused in
respect of offence punishable under section 161 or section 165 of the
Indian Penal Code or of an offence referred to in clause (a) or clause
(b) of section 5(1) of the Act. Section 5 of the Act creates offence of
c
criminal misconduct on the part of a public servant. The public servant
defined under section 2 means a public servant as defined in Section 21
of the !PC. Section 21 of the !PC is not really defining "public servant"
but enumerating the categories of public servants. It has enumerated
as many as twelve categories of public servants. Section 5(2) provides D
punishment for such an offence of criminal misconduct up to a term of
7 years or with fine, or with both. Section 6 prohibits Courts from
taking cognizance of an offence unless certain condition is complied
with. We will have an occasion to consider the provisions of Section 6
in detail' and for the present we may deal only with the condition
prescribed by the Section for a Court to take cognizance of an offence. E
The condition prescribed therein is the previous sanction of a compe-
tent authority. The public servant cannot be prosecuted for offences
specified in the Section unless there is prior sanction for prosecution
from the competent authority. It may be of importance to remember
that the power to take cognizance of an offence is vested in the Court
of competent jurisdiction. Section 6 is primarily concerned to see that F
prosecution for the specified offences shall not commence without the
sanction of a competent authority. That does not mean that the Act
was intended to condone the offence of bribery and corruption by
public servant. Nor it was meant to afford protection to public servant
from criminal prosecution for such offences. It is only to protect the
honest public servants from frivolous and vexatious prosecution. The G
competent authority has to examine independently and impartially the
material on record to form his own opinion whether the offence
alleged is frivolous or vexatious. The competent authority may refuse
sanction for prosecution if the offence alleged has no material to sup-
port or it is frivolous or intended to harass the honest officer. But he
cannot refuse to grant sanction if the material collected has made out H
238 SUPREME COURT REPORTS [1991] 3 S.C.R.

A the commission of the offence alleged against the public servant.
Indeed he is duty bound to grant sanction if the material collected lend
credence to the offence complained of. There seems to be another
reason for taking away th.e discretion of the investigating ag"l!cy to
prosecute or not to prosecute a public servant. When a public servant
is prosecuted for an offence which challenges his honesty and integrity,
B the issue in such a case is not only between the prosecutor and the
offender, but the State is also vitally concerned with it as it affects the
morale of public servants and also the administrative interest of the
State. The discretion to prosecute public servant is taken away from
the prosecuting agency and is vested in the authority which is compe-
tent to remove the public servant. The authority competent to remove
c the public servant would be in a better position than the prosecuting
agency to assess the material collected in a dispassionate and reason-
able manner and determine whether sanction for prosecution of a
public servant deserves to be granted or not.

/section 6 may now be analysed. Clause (a) of Section 6(1) covers
D public servants employed in connection with the affairs of the Union.
The prescribed authority for giving prior sanction for such persons
would be the Central Government. Clause (b) of Section 6(1) covers
public servants employed in connection with the affairs of the State.
The authority competent to give prior sanction for prosecution of such
persons would be the State Government. Clauses (a) and (b\ would
E thus cover the cases of public servants who are employed in connection
with the affairs of the Union or State and are not removable from their
office save by or with the sanction of the Central Government or the
State Government. That is not the end. The Section goes further in
clause (c) to cover the remaining categories of public servants. Clause
(c) states that in the case of any other person the sanction-would be of
F the authority competent to remove him from his office. Section 6 is
thus all embracing bringing within its fold all the categories of public
servants as defined under Section 21 of the !PC/

It is common ground that clauses (a) and (b) of Section 6(1) of
the Act cannot cover the Judges of the High Courts and the Supreme
G Court since they are not employed in connection with the affairs of the
Union or State. The question is whether they could be brought within
the purview of clause (c) of Section 6( 1). Mr. Kapil Sibal learned
Counsel for the appellant stressed the need to read clause (c) in
"ejusdem generis" to clauses (a) and (b). According to him the entire
Section 6 seems to apply only to such public servants where there is
H relationship of master and servant between them and their employer.

•
K. VEERASWAMI v. U.0.1. [SHETTY, J.l 239

If there is no relationship of master and servant, as between public
A
servant and the authority to appoint him, clause (c) has no application
to the public servant. So far as the Judges of the High Courts and the
Supreme Court are concerned, it was contended that there is no rela-
~>-
tionship of master and servant between them and the Government and
clause {c) of Section 6(1) is inapplicable to them.
B
It is true that the relationship of master and servant as is ordina-
rily understood in common law does not exist between the Judges of
higher judiciary and the Government. Where there is relationship of
master and servant the master would be in commanding position. He
has power over the employee not only to direct what work the servant
is to do, but also the manner in which the work is to be done. The
"" servant undertakes to serve the master and obey the reasonable orders
c
within the scope of his duty. It is implicit in such relationship that the
servant may disobey the master's order only at his peril. But there is
no snch relationship between the Judges and their appointing autho-
rity that is, the Government. The Judges are not bound nor do they
undertake to obey any order of the Government within the scope of D

- ~
their duties. Indeed, they are not Judges if they allow themselves to be
guided by the Government in the performance of their duties. In
Union of India v. S.H. Sheth, (1978] 1 SCR 423 at 450 Chandrachud,
J., as he then was, has illumined this idea: "the Judges owe their
appointment to the Constitution and hold a position of privilege under
it. They are required to 'uphold the Constitution and the laws', 'with- E
out fear' that is without fear of the Executive; and 'without favour'
that is without expecting a favour from the Executive. There is thus a
fundamental distinction between the master and servant relationship
~ ~
between the Government and the Judges of High Courts and the
Supreme Court." But we cannot accept the contention urged for the
appellant that clause (c) should be read in "ejusdem generis" to F
clauses (a) and {b) of Section 6(1) of the Act. The application of the
ejusdem generis rule is only to general word following words which are
less general, or the general word following particular and specific
words of the same nature. In such a case, the general word or expres-
sion is to be read as comprehending only things of the same kind as
that designated by the preceding specific words or expressions. The G
·general word is presumed to be restricted to the same genus as those of
r----C
the particular and specific words. (See Maxwell on The Interpretation
of Statutes, 12th Ed. p. 297). What do we have here? Section 21 of the
!PC while defining "public servant" has denoted as many as twelve
categories of persons. It includes not only the State and Central
Government employees but also others like Judge, juryman, assessor H

,
240 SUPREME COURT REPORTS [19911 3 S.C.R.

and arbitrator. It also includes every person in the service or pay of the
A
Government or remunerated by fees or commission by the Govern-
ment. Each category is different from other and there is hardly any
relationship of master and servant in some of the categories.fThe
provisions of clauses (a) and (b) of Section 6(1) of the Act covers
certain categories of public servants and the 'other' which means
B remaining categories are brought within the scope of clause (c).fClause
( c) is independent of and separate from the preceding two clauses. The
structure of the section does not permit the applicability of the rule of
ejusdem generis.

There are, however, two requirements for the applicability of
clause (c) of Section 6(1) to a Judge of the higher judiciary. First, the
c Judge must be a public servant. Second, there must be an authority
competent to remove the Judge from his office. If these two require-
ments are complied with, a Judge cannot escape from the operation of
.
the Act. On the first requirement there is little doubt and also not
seriously disputed by counsel for the appellant. His approach how-
D ever, is to limit the operation of clause (c) only to Judges of the
Subordinate judiciary. But we do not find any sustainance in that
approach. From the very commencement of the IPC "Every Judge"
finds a place in the categories of "public servant" defined under
Section 21 of !PC. It was· specifically denoted in the third category of
public servant under Section 21 of !PC.
E
In 1962, the Government of India constituted a Committee
chaired by C.K. Santhanam, MP to suggest improvements in the provi-
sions of the Act. Nine specific terms of references were made to the
Committee. The Fourth term of reference made to the Committee
reads: "to suggest changes in law which would ensure speedy trial of
F cases of bribery, corruption and criminal misconduct, and make the
law otherwise more effective." The Committee collected a lot of mate-
rial from the public relating to the nature of corruption in the administ-
ration. It was represented to the Committee by the public that corrup-
tion has increased to such an extent that people have started losing
faith in the integrity of public administration. "We heard from all
G sides", the Committee reported, "that corruption has, in recent years,
spread even to those levels of administration from which it was cons,
picuously absent in the past." (See: Santhanam Committee Report,
paras 2.12,2.15 and 2.16). The Committee submitted its report on 31st
March 1964. While examining the Fourth term of reference extracted
above, the Committee in Section 7 of its report considered the ques-
H tion of amendments to the IPC. The Committee drew particular
K. VEERASWAMI v. U.0.I. [SHETTY, J.J 241

attention to the definition of 'public servant' in Section 21 of the IPC. A
Under paragraph 7.6 of the Report, the Committee has suggested that
the present definition of 'public servant' under Section 21 of the IPC
requires to be enlarged. It has stated, among others that 'a further
category should be added to include all persons discharging adjudi-
catory functions under any Union or State Law for the time being in
B
force.' Under para 7.7, the Committee recommended that the third
category under Section 21 of the !PC may be amended as stated below:

"Third-Every Judge including any person entrusted with
adjudicatory functions in the course of enforcement of any
law for the time being in force."
c
This recommendation led to the enactment of Anti Corruption
Laws (Amendment) Act 1964 (Act No. 40 of 1964), The Parliament by
passing this enactment has reenacted Section 21 with the third cate-
gory as follows:
D
"21. 'public servant'-The words "public servant' denote a
person falling under any of the descriptions hereinafter fol-
". lowing, namely;

Third-Every Judge including any person empowered by
law to discharge, whether by himself or as a member of any
E
body of persons, any adjudicatory functions."

It will be seen that the Parliament has not only retained the expression
"Every Judge" in the original enumeration of public servant under
Section 21 of the !PC but also enlarged the expression to include any
person empowered by law to discharge any adjudicatory functions.
Reference may also be made to Section 19 of the !PC, in which F
"Judge" is defined. Section 19 reads:

"19. "Judge"-The word "Judge" denotes not only every
person who is officially designated as a Judge, but also
every person
G
who is empowered by law to give, in any legal proceeding,
civil or criminal, a definitive _judgment, or a judgment
which, if not appealed against, would be definitive, or a
judgment which, if confirmed by some other authority,
would be definitive, or
H
242 SUPREME COURT REPORTS [1991] 3 S.C.R.

who is one of a bodx of persons, which body of persons is
A empowered by law to give such a judgment."

The expression "Every Judge" used in the third category of
Section 21 indicates all Judges and all Judges of all Courts. It is a
general term and general term in the Act should not be narrowly
B construed. It must receive comprehensive meaning unless there is
positive indication to the contrary. There is no such indication to the
contrary in the Act. A Judge of the superior Court cannot therefore be
excluded from the definition of public servant. He squarely falls within
the purview of the Act provided the second requirement under clause
( c) of Section 6( 1) is satisfied.
c The second requirement for attracting the provisions of clause
(c) of Section 6(1) to a Judge of the superior Judiciary is that for the
purpose of granting sanction for his prosecution, there must be an
authority and the authority must be competent to remove the Judge. It
is now necessary to identify such authority in relation to the higher
D judiciary. In our country, the Judges of higher Judiciary are safe and
secure. They are high dignitaries and constitutional functionaries.
They are appointed by the President in the exercise of his executive
power but they are independent of the Executive. They hold office till
they attain the age of superannuation. The High Court Judge retires at
62, whiie the Supreme Court Judge retires at 65. They are liable to be
E removed for proved misbehaviour or incapacity. The Executive is
competent to appoint the Judges but not empowered to remove them.
The power to remove them is vested in Parliament by the process
analogous to impeachment. The power is located under Article 124 of
the Constitution. Article 124 provides, so far as material, as follows:

F "124. Establishment and constitution of Supreme Court-

xxxxx xxxxx xxxxx

(4) A Judge of the Supreme Court shall not be removed
from his office except by an order of the President passed
G after an address by each House of Parliament supported by
a majority of the total membership of that House and by a
majority of not less than two-thirds of the members of that
House present and voting has been presented to the Presi-
dent in the same session for such removal on the ground of
proved misbehaviour or incapacity.
H
K. VEERASWAMI v. U.0.I. [SHEITY, J.] 243

( 5) Parliament may by law regulate the procedure for the
A
presentation of an address and for the investigation and
... ~
proof of the misbehaviour or incapacity of a Judge under
clause (4).

Article 218 provides that the provisions of clauses (4) and (5) of
Article 124 shall apply in relation to a High Court as they apply in B
relation to the Supreme Court.

Jn exercise of the power vested under clause (5) of Article 124,
the Parliament has passed the Judges (Inquiry) Act, 1968 prescribing
_, the procedure for presentation of an address and for the investigation
and proof of misbehaviour or incapacity of a Judge. It will be useful to
refer to the relevant provisions of the Judges (Inquiry) Act, 1968. c
Section 3( 1) provides for giving notice of a motion for presenting an
address to the President praying for the removal of a Judge, (a) in the
case of a notice of motion given in the House of the People, it should
be signed by not less than one hundred members of that House; (b) in
the case of a notice given in the Council of States, it should be signed D
by not less than fifty members of that Council. The notice of motion
._.; should be given to the Speaker or, as the case may be, to the Chairman
who may, after consulting such persons, as he thinks fit and after
considering such materials, if any, as may be available to him, either
admit the motion or refuse to admit the same. Section 3(2) states that
if the motion referred to in sub-section (1) is admitted, the Speaker or, E
as the case may be, the Chairman shall constitute a Committee for
making an investigation into the grounds on which the removal of a
Judge is prayed for. There shall be three members of the Committee;
of whom one shall be chosen from among the Chief Justice and other
Judges of the Supreme Court; one shall be chosen from among the
Chief Justices of the High Courts and one shall be a person who is, in F
the opinion of the Speaker or, as the case may be, the Chairman, a
distinguished jurist. The section further provides that the Committee
shall frame definite charges against the Judge on the basis of which the
investigation is proposed to be held and the Judge shall be given a
reasonable opportunity of presenting a written statement of defence.
There are Rules called the Judges (Inquiry) Rules, 1969 formed under G
.--.-;
the Judges (Enquiry) Act prescribing procedure for holding an inquiry
against the Judge. Section 4( 1) of the Judges (Inquiry) Act, 1968 states
that at the conclusion of the investigation, the Committee shall submit
its report to the Speaker or, as the case may be, to the Chairman,
stating therein its findings on each of the charges separately with such
observations on the whole case as he thinks fit. The Speaker or the H
244 SUPREME COURT REPORTS [1991] 3 S.C.R. ...
Chairman, as the case may be, shall cause that report to be laid before ••
A
the House of People and the Council of States. Section 6 provides that
if the report of Committee contains a finding that the Judge is not
guilty of any misbehaviour or does not suffer from any incapacity,
then, no further step be taken in either House of Parliament.

B Section 6(2) states that if the report of the Committee contains a
finding that the Judge is guilty of any misbehaviour or suffers from any
incapacity, then, each House of Parliament shall take further steps.
The motion to. present an address to the President together with the
report of the Committee, shall be taken up for consideration by the
•
House in which it is pending. That address praying for removal of the
Judge must be adopted by each House of Parliament in accordance
c with the provisions of clause (4) of Article 124. Clause (4) of Article
124 provides that the address must be passed by each House of Parlia-
ment supported by a majority of the total membership of that House
and by a majority of not less than two-thirds of the members of that
House present and voting. Thereafter it shall be presented to the
D President for removal of the Judge. Incidentally, it may be mentioned
that the same procedure has been made applicable for removal of the
.'
Comptroller and Auditor-General of India. (See clause (1) of Article
148 and for removal of the Chief Election Commissioner. (See clause
(5) of Article 324 of the Constitution.

E Counsel for the appellant while referring to the aforementioned
provisions of the Constitution pointed out that the power to remove a
Judge is not vested in any single individual or authority. No single
person or authority is competent to tak.e e.ven cognizance of any alle-
gation of misconduct of a Judge, or to take legal action for his
removal. The power to remove a Judge is vested in the two Houses of
F Parliament and the President. The process and power are both
integrated in Parliament and Parliament alone is competent to remove
a Judge. But Parliament, counsel contended, cannot be the sanction-
ing authority for the prosecution of a Judge./The grant of sanction r-
JO"'

req mres consideration of material collected by the investigating
agency and Parliament cannot properly consider the material. Parlia-
G ment is wholly unsuitable to that work.III would be reasonable to
presume that the Legislature while enacting clause (c) of Section 6(1)
of the Act could not have intended Parliament to be the sanctioning
authority. The other authority cannot be involved to grant sanction for
prosecution of a Judge since it would be inconsistent with the provi-
sions of the Act and the Constitutional requirements. Counsel asserted
H that it is necessary to exclude the Judges of the Supreme Court and of
K. VEERASWAMI v. U.0.I. [SHEITY, J.j 245

the High Courts from the operation of the Act.
A
Mr. Tulsi, learned Additional Solicitor General, on the other
hand, emphasised on the role of the President ii) relation to removal of
a Judge. He pointed out that the order of the President for removal of
a Judge is imperative under clause (4) of Article 124 of the Constitu-
tion and the President could be the proper authority under clause (c) B
of Section~U) of the Act. "

Such, then, put qui(e shortly, were the contentions addressed to
us on the autho1:ty competent to grant sanction for prosecution. of
J 4dges of the superior judiciary. ·

We agree with counsel for the appellant that Parliament could
c
not l)ave been intended to be the sanctioning authority under clause
(c) of Section 6(1). The cqmposition of Parliament coosisting of the
president and two Houses (Article 79) makes it unsuitable to the task;
The nature of transacting business or proceeding in each House
renders it impracticable. The individual Member of the House takes D
part in a proceeding usually by speech and voting; but the conduct of
Judge in the discharge of his duties cannot be discussed. Article 121
provides "that no discussion shall take place in Parliament with respect
to the conduct of any Judge of the Supreme Court or of a High Court
in the discharge of his duties except upon a motion for presenting an
address to the President prayh1g for the removal of the Judge as E
hereinafter provided." The 0 nly exception made in the Constitution
for discussion on the conduct of a Jl!dge is when the motion is titl<en up
for his removal. On no other occasion the cohdl!Ct of a Judge in the
. discharge of duties could be the subject matter of discussion in the two
Houses of Parliament. Without cliscussion, it would be difficult for
Parlaiment to make an objective judgmeJI( with regard to grant of F
sanction for prosecution. Parliament cannot therefore be the proper
authority for granting sanction for the prosecution of a Judge.

Tnat does not howeyer, follow that the Judges of superior Courts
<tre eµtitled to be excluded from toe scope of the Act as contended for
the aPPellant. That would be defeating the object of the Act. The Act G
was intended to cover all categories of public servants. The apparent
policy of the legislation is to ensure a clean public administration by
weeding out corrupt officials. The Preamble of the Act indicates that
\he Aci was intended to prevent more effectively the bribery and cor-
rl!Ption by public servanis. This Court l]as <1n occasion to examine tlie
broad outlines of the Act. Imam. J.; in S.A. Venl;ataraman v: The H
246 SUPREME COURT REPORTS [1991) 3 S.C.R.

A State, [ 1958] SCR 1040 whil~. analysing the provisions of the Act ob-
served (at 1048): "that the provisions of the Act indicate that it was
intention of the legislature to treat more severely than hitherto corrup-
tion on the part of a public servant and not to condone it in any manner
whatsoever." Reference may also be made to the observations of
Subba Rao. J., as he then was, in M. Narayanan v. State of Kera/a,
B [1963] 2 Suppl. SCR 724. The learned Judge said that the Act is a
socially useful measure conceived in the public interest and it should
be liberally constured. To quote his own words (at 729):

"The Preamble indicates that the Act was passed as it was
expedient to make more effective provisions for the pre-
vention of bribery and corruption. The long title as well as
c the preamble indicate that the Act was passed to put down
the said social evil i.e. bribery and corruption by public
servant. Bribery is a form of corruption. The fact that in
addition to the word 'bribery' the word 'corruption' is used
shows that the legislation was intended to combat also ·
D other evils in additon to bribery. The existing law. i.e.
Penal Code was found insufficient to eradicate or even to
control the growing evil of bribery and corruption corrod-
ing the public service of our country. The provisions
broadly include the existing offences under ss. 161 and 165
of the Indian Penal Code committed by public servants and
E enact a new rule of presumptive evidence against the
accused. The Act also creates a new offence of criminal
misconduct by public servants though to some extent it
overlaps on the pFe-existing offences and enacts a rebutt-
able presumption contrary to the well-known principles of
Criminal Jurisprudence. It also aims to protect honest
F public servants from harassment by prescribing that the
investigation against them could be made only by police
officials of particular status and by making the sanction of
the Government or other appropriate officer a pre-condi-
tion for their prosecution. As it is a socially useful measure
conceived in public interest, it should be liberally construed
G so as to bring about the desired object i.e. to prevent cor-
ruption among public servants and to prevent harassment
of the honest among them.''

In Craies on Statute Law. (6th ed. p. 531) it is stated that "the
distinction between a strict and a liberal construction has almost disap-
H peared with regard to all classes of statutes, so that all statutes,
K. VEERASWAMI v. U.0.I. [SHETIY, J.] 247

whether penal or not, are now construed by substantially the same
A
rules ..... They are construed now with reference to the true meaning
.1
. ~
and real intention of the Legislature." The construction which would
promote the general legislative purpose underlying the provision in
question, is to be preferred to a construction which would not. If the
literal meaning of the legislative language used would lead to results
which would defeat the purpose of the Act the Court would be B
justified in disregarding the literal meaning and adopt a liberal con-
struction which effectuates the object of the legislature. Section 6, with
which we are concerned indeed, requires to l:le liberally construed. It is
_, not a penal provision but a measure of protection to public servants in
the penal enactment. It indicates the authorities without whose sane-
tion a public servant cannot be prosecuted. It is sufficient that the
authorities prescribed thereunder fall within the fair sense of the c
language of the Section. The expression "the authority competent to
remove" used in clause (c) of Section 6(1) is to be construed to mean
also an authority without whose order or affirmation the public servant
cannot be removed. In this view, the President can be considered as
the authority to grant sanction for prosecution of a Judge since the D
order of the President for the removal of a Judge is mandatory. The
~ motion passed by each House of Parliament with the special procedure
prescribed under clause (4) of Article 124 will not proprio vigore
operate against the judge. It will not have the consequence of remov-
ing the Judge from the office unless it is followed by an order of the
President. E

The importance of an order of the President for removal of a
Judge could be seen by contrasting the prnvisions of clause (4) of
Article 124 with the provisions for removal of the President, Vice-
President and Speaker. Article 61 provides procedure for removal of
the President oflndia. Clause (4) of Article 61 reads as follows: F

"61(4) If as a result of the investigation a resolution is
passed by a majority of not less than two-thirds of the total
membership of the House by which the charge was
investigated or caused to be investigated, declaring that the
~ _. charge preferred against the President has been sustained, G
such resolution shall have the effect of removing the Presi-
dent from his office as from the date on which the resolu-
tion is so passed."

Similar is the consequence of passing the resolution for removal
of the Vice-President under Article 67 and the Speaker under Article H
248 SUPREME COURT REPORTS I 1991] 3 S.C.R.

94 of the Constitution. Article 67(b) of the Constitution provides that
A
the Vice-President may be removed from his office by a resolution of
the Council of States passed by a majority of all the then members of
the Coµncil !Ind agreed to by the House of People. Article 94(c) pro-
vi_dcs that the Speaker may be removed from his office by a resolution
of the House of the People passed by a majority of all the then
m~mbers of the House. The resolution passed in a~cordance with the
procedure prescribed under the respective provisions for removing th-e
President, Vice-President and the Speal<er, will ipso fact9 operate
against those authorities. No further order from any other authority
for their re!l10val is necessary.

But that is not the position jn the case of removal of a Judge.
c Clause (4) of Article 124 mandates that "a J\]dge shall not be removed
frprn his office except by an order of the president passed after aq
<!cldress py each !-loµse of Parlia!Jlent ... " The clause (4) is in the
n(lgf!tive t~rms. Tlie pr~er of the President is sine qua not] fpr
qimovf!I of a Judge. The President alone 9ould make that order.

I! is said that Section 6 envisages that the authority competent to
remove a public servant from the office should be vertically superior in
the hierarchy in which the office exists. Section 6 applies only in cases
where there is a vertical hierarchy of public offices and the public
servants ag!linst whom saqction is sought from the sanctioning autho,
i:; rity, Where t!Je office held by the public serva11t is not a part of vertical
!iierarchy iq which there is an aµthority above the public servan\, then,
S~ction !i can have no applica(ion. We have been referred to the obserc
Vqtions. of Pes.ai J., in R.S. Nayqk v. A.R. Antulqy, [1984] 2 sec 183
!\t 206:

F ''That competent authority alone would know the nature
anp function discharged by the public servant holding the
office and whether t\1e same has been abused or misused. It
is the vertical hierarchy between the allthority cpmpetent
to rernove the public servant from that offipe and the
nature of the office held by the public servant against whofll
G sanction is sought which would indicate a hierarchy l\nd
which would therefore, permit inference of knowledge
about ttie functions and duties of the office and its misuse
or abuse by the public servant. That is why the Legislature
cleqrly provided that that authority alone would be compe-
tent to grant sanction which is entitled to remove the public
servan.t against whom sanction is sought from \he offh:e."
K. VEERASWAMI v. lJ.O.I. [SHETIY, J.] 2.49

With ihe uiiiiosl fesped; we are uriallle io agree witll lhe above
observations. It seems to us that these observations were not intended
A
to lay down the iaw Iha! !he authority competent to gratit sanction fot
prosecution of pubiic servant should be vectically superior in the
hierarchy in whiei, ·.he office of tlie public sen·ani exists. That was hot
the issue in that cdse. The observations therefore, are not meant to be
and ought not to be regarded as laying down the law. It has been said
almost too frequenlly to require repetiton that judgments are not to be
read as statutes. In our opinion, it is not necessary that the authority
competent to give sanction for prosecution or the authority competent
to remove the public servant should be vertioally superior in the
hierarchy in which the office of the public servant exists. There is no
such requirement under Sectiori· 6. The power to give sanction for
prosecution can be conferred on any authority. Such authority may be e
of the department in which the public servant is working or an outside
authority. All that is required is that the authority must be in a position
to appreciate the material collected against the public servant to judge
whether the prosecution contemplated is frivolous or speculative.
Under our enactment the power has been conferred on the authority D
• competent to remove the public servant. Under the British Prevention
of Corruption Act, 1906 the power to give consent for prosecution for
an offence under that Act has been conferred upon the Attorney
CJeilerai or Solicitor General.

The President is not an outsider so far judiciary is concerned. E
The President appoints the Judges of the High Courts and the Supreme
Court in exercise of his executive powers. Clause (1) of Article 217
iJrnvides that every Judge of the High Court shall be appointed by the
~ President after consultation with the Chief Justice of India, the Gover-
nor of the State, and in the case of appoiritiiient of a fodge ~thei than
U\e Chief Justice, the Chief Justice of the High Court. Similarly the F
President appoints the Judges of the Supreme Court. Clause (2) of
Article 124 provides that every Judge of the Supreme Court shall be
appointed by the President in consultation with such of the Judges of
the Supreme Court and of the High Courts as the President may deem
necessary for the purpose and in case of appointment of a Judge other
than the Chief Justice, the Chief Justice of lildia shall always be con- G
~~ ~ suited. The President exercises this power with the aid and advice of
his Council of Ministers under Article 74 of the Constitution.
Shainsher Singh v. State of Punjab, [1975) l SCR 814 and S.P. Gupta v.
Union of india, [ 1982) 2 SCR 365. Patliamertt has no part to play in the
matter of appointment of iudges except ihai the Executive is respohsi-
llle to the Parliament. H
250 SUPREME COURT REPORTS [1991] 3 S.C.R.

In the event of President regarded as the authority competent to
A
give prior sanction for the. prosecuiion of a Judge, counsel for the
appellant contended, that the President cannot act independently. The
President exercises his powers by and with the advice of his Council of
Ministers. The Executive may misuse the power by interfering with the
judiciary. The Court shall avoid interpretation which is likely to impair
B the independence of the judiciary. Counsel urged that a separate
Parliamentary law to deal with the criminal misconduct of Judges of
superior courts consistent with the constitutional scheme for their
removal could be enacted and such a legislation alone would ensure
judicial independence and not the present enactment. A suggestion
was also made that since 'misbehaviour' under clause (4) o{ Article U4
of the Constitution and 'criminal misconduct' under Section 5( 1) of the
c Act being synonymous, the constitutional process for removal of the
Judge must be gone through first and only after his removal .the pr-0-
secution if need be recommended in the same process. Otherwise, it is
said that it would lead to anomaly since there is no power either in the
Constitution or under any other enactment to suspend the Judge or
D refuse to assign work to the Judge pending his trial or conviction in the
Criminal Court and the Judge can insist on his right to continue till his
removal even after his conviction and sentence.

It is inappropriate to state that conviction and sentence are no
bar for the Judge to sit in the Court. We may make it clear that if a
E Judge is convicted for the offence of criminal misconduct or any other
offence involving moral turpitude, it is but proper for him to keep
himself away from the Court. He must voluntarily withdraw from judi-
cial work and await the outcome of the criminal prosecution. If he is
sentenced in a criminal case he should forthwith tender his resignation
unless he obtains stay of his conviction and sentence. He shall not
F insist on his right to sit on the Bench till he is cleared from the charge
by a Court of competent jurisdiction. The judiciary has no power of
the purse or the sword. It survives only by public confidence and it is
important to the stability of the society that the confidence of the
public is not shaken. The Judge whose character is clouded and whose
standards of morality and rectitude are in doubt may not have the
G judicial independence and may not command confidence of the public.
He must voluntarily withdraw from the judicial work and administration.

The emphasis on this point should not appear superfluous. Prof.
Jackson says "Misbehaviour by a Judge, whether it takes place on the
bench or off the bench, undermines public confidence in the administ-
H ration of jus'tice, and also damages public respect for the law of the
K. VEERASWAMI v. U.0.J. {SHEITY, J.{ 251

land; if nothing is seen to be done about it, the damage goes unr-e·
A
paired. This must be so when the judge commits a serious criminal
offence and remains in office". (Jackson's Machinery of Justice by
J.R. Spencer 8th ed. p.p. 369-370). ·

The proved "misbehaviour" which is the basis for removal of a
Judge un~er clause (4) of Article 124 of the Constitution may also in B
certain cases involve an offence of criminal misconduct under section
5( 1) of the Act. But that is no ground for withholding criminal pro·
secution till the Judge is removed by Parliament as suggested by
<:ounsel for the appellant. One is the power of Parliament and the
other is the jurisdiction of a Criminal Court. Both are mutually exclu-
sive. Even a Government servant who is answerable for his misconduct
which may also constitute an offence under the !PC or under Section 5
c
of the Act is liable to be prosecuted in.~ddition to a departmental
enquiry. If prosecuted in a criminal court he may be punished by way
of imprisonment or fine or with both but in departmental enquiry, the
highest penalty that could be imposed on him is dismissal. The compe·
tent authority may either allow the prosecution to go on in a Court of D
law or subject him to a departmental enquiry or subject him to both
concurrently or consecutively. It is not objectionable to initiate crimi·
nal proceedings against public servant before exhausting the discipli-
nary proceedings, and a jortiori, the prosecution of a Judge for crimi·
nal misconduct before his removal by Parliament for proved misbe·
haviour is unobjectionable. E

There are various protections afforded to Judges to preserve the
independence of the judiciary. They have protection from civil liability
for any act done or ordered to be done by them in discharge of their
judicial duty whether or not such judicial duty is performed within the
limits of their jurisdiction. That has been provided under Section 1 of F
the Judicial Officers Protection Act, 1850. Likewise, Section 77 !PC
gives them protection from criminal liability for an act performed judi-
cially. Section 77 states that •;nothing is an offence which is done by a
Judge when acting judicially in the exercise of any power which is, or
which in good faith he believes to be, given to him by law". A discus·
sion on the conduct of Judges of the High Courts and the Supreme G
Court in the discharge of their duties shall not take place in the State
Legislatures or in Parliament (Articles 121 and 211). The High Courts
and the Supreme Court have been constituted as Courts of record with
the power to punish anybody for committing contempt. (Articles 129
and 215). The Contempt of Courts Act, 1971 (Act 7-0-71) provides
power to the Court to take civil and criminal contempt proceedings. H
252 SUPRE.11E COURT REPORTS 11991) 3 S.C.R.

A But we know of no .aw providing protection for Judges from Criminal
prosecution. Article 361(2) confers immunity from criminal prosecu-
tion only to the Pw.ident and Governors of States and to no others.
Even that immunit) has been limited during their term of office. The
Judges are liable tC' be dealt with just the same way as any other person
in respect of criminal offence. It is only in taking of bribes or with
B regard to the offence of corruption the sanction for criminal prosecu-
tion is required.

The position in other countries seems to be not different. In the
l:rook "Judicial Independence~ The Contemporary Debate" by S.
Shetreet and J. Deschc;nes (1985 ed.) there is an article titled as "Who"
Watches the Watchman" by Maure) Cappelletti. The author has
...
surveyed the penal liability of judges iil the legal systems of some of
the cou.ntri.es. The author states. "In a number of national systems one
can also find the provision of criminal sanctions for certain acts or
omissions that are typical only of the administration of Justice, such as
deni de justice, or wilful abuse of the judicial office. Even crimes which
D are of more general application, such as the taking of bribes, might
Well be Sanciioned differently-but possibly more severely-when
they refe,\o. judicial officers. In other countries, however, such as
Poland; Gre·ece and Italy, a different approach prevails. There is no
criminal sanction which is specifically applicable only to judicial
behaviour; rather, the judges are included in those criminal provisions
E which apply generally to public servants, such as provisions concerning
corruption, omission or refusal to perform activities of office, vexa-
tion, etc."

If we take the early English law it will be seen that the corruption
on the part of a Judge was lhe most reprehensible crime and punish-
F able as high treason. Even Lord Becon. the most gifted mind of the
English Renaissance, acclaimed philosopher and the best legal brain
was not spared from the punishment for accepting bribes. He was fined
forty thousand pounds, a monumental sum, hnd .. imprisoned in the
Tower during the King's pleasure." He was also barred forever from
holding any office in the "State or Commonwealth" or from sitting in
0 Parliament, or from coming .. within the verge of the Court." King
.fai11es however, liberated him from prison, remitted his fine, and
pardon him fully (The Corrupt Judge by Joseph Borkin 1962 ed. p. :i,
4. & 17).

There is however, apprehension that the Executive being the
ff largest litigant.is .likely to misuse the rower to prosecute the Judges.
K. VEERASWAMI v. U.0.1. [SHETTY. l.l 253

That apprehension in our over-litigious society seems to .be n.ot A
unjustified or unfounded. The Act no doubt provides certain safe-
guards. Section 6 providing for prior sanction from the competent
authority and directing that no court shall take cogmzance of the
offence under Section 5(1) without such prior sanction is indeed a
protection for Judges from frivolous and malicious prosecution. It is a
settled law that the authority entitled to grant sanction must apply its B
mind to the facts of the case and all the evidence collected before
forming an opini')n whether to grant sanction or not. Secondly, the
trial is by the Court which is independent of the Executive. But these
-.,. safcguarus may not be adequate. Any complaint against a Judge and
its investigation hv the CBI, if given publicity will have a far reaching
impact on the Judge and the litigant public. The need therefore, is a
judicious use of taking action under the Act. Care should be taken that
c
honest anc! fearless judges are not harassed. They should be protected.
In the instant case the then Chief Justice of India was requested to
give his opinion whether the appellant could be proceeded under the
Act. It was only after the Chief Justice expressed his views that the
appellant could be proceeded under the provisions of the Act, the case 0
was registered 'again·st him. Mr. TuJsi, learned Additinnal Solicitor
General submitted that he has no objection for this Court for issuing a
direction against the Government of India to follow that procc:durc: in
every case. But Counsel for the appellant has reservations. He
maintained that it would be for the State to come forward with a
separate enactment for the Judges consistent with the Constitutional E
provisions for safegua.-ding the independence of the judiciary and not
for this Court to improve upon the defective law. In our opinion, there
is no need for a separate legislation for the Judges. The Act is not
basically defective in its application to judiciary. All that is required is
to lay down certain guidelines lest the Act may be misused. This Court
being the ultimate guardian of rights of people and independence of F
the judiciary will not deny itself the opportunity to lay down such
guidelines. We must never forget that this Court is not a Court of
limited jurisdiction of only dispute settling. Almost from the begin-
ning. this Court has been a law maker. albeit, in Holmes's expression.
'interstitial law maker'. Indeed, the court's role today is much more. It
is expanding beyond dispute settling and interstitial law making. It is a G
problem solver in the nebulous areas. In this case. we consider it no
mere opportunity: it is a duty. It is our responsibility and duty to apply
the existing law in a form more condUcive to the independence of the
Judiciary.

The Chief Justice of India is a participatory functionary in the H
254 SUPREME COURT REPORTS [ 19911 3 S.C.R.

matter of appointment of Judges of the Supreme Court and the High
A
Courts. (Articles 124(2) and 217( 1).) Even for transfer of a Judge from
one High Court to another the Chief Justice should be consulted by the
President of India (Article 222). If any questionarises as to the age of a
Judge of a High Court,the question shall be decided by the President
after consultation with the Chief Justice of India (Article 217(3)).
B Secondly, the Chief Justice being the head of the judiciary is primarily
concerned with the integrity and impartiality of the judiciary. Hence it
is necessary that the Chief .Justice of India is not kept out of the picture
of any criminal case contemplated against a Judge. He would be in a
better position to give his opi;iion in the case and consultation with the
Chief Justice of India would be of immense assistance to the Govern-
ment in coming to the right conclusion. We therefore, direct that no
c criminal case shall be registered under Section 154, Cr. P.C. against a
Judge of the High Court, Chief Justice of High Court or Judge of the
Supreme Court unless the Chief Justice of India is consulted in the
matter. Due regard must be given by the Government to the opinion
expressed by the Chief Justice. If the Chief Justice is of opinion that ii is
D not a fit case for proceeding under the Act, the case shall not be
registered. If the Chief Justice of India himself is the person against
whom the.allegations of criminal misconduct are received the Govern-
ment shall consult any other Judge or Judges of the Supreme Court.
There shall be similar consultation at the stage of examining the ques-
tion of granting sanction for prosecution and it shall be necessary and
£ appropriate that the question of sanction be guided by and in accor-
dance with the advice of the Chief Justice of India. Accordingly the
directions shall go to the Government. These directions, in our ·
opinion, would allay the apprehension of all concerned that the Act is
likely to be misused by the Executive for collateral purpose.

F For the reasons which we have endeavoured to outline and sub-
ject to the directions issued, we hold that for the purpose of clause (c)
of Section 6( 1) of the Act the President of India is the authority com-
petent to give previous sanction for the prosecution of a Judge of the
Supreme Court and of the High Court.

G It remains only to deal with one short point in this part of the ._ ~
discussion. The High Court has expressed the view that no sanction for
prosecution of the appellant under Section 6 was necessary since he
has retired from the service on attaining the age of superannuation and
was not a public servant on the date of filing the chargesheet. The view
taken by the High Court appears to be unassailable. The scope of
H Section 6 was first considered by this Court in S.A. Venkataraman's
K. YEERASWAMI » U.0.1. [SHElTY. J.] 255

case, where it was observed {at 1048) that Section 6 of the Act must
A
be considered with reference to the words used in the section indepen-
dent of any construction which may have been placed by the decisions
on the words used in Section 197 of the Cr. P.C. The Court after
analysing the terms of Section further observed (at 1049) that "there is
nothing in the words used in Section 6(1) to even remotely suggest that
previous sanction was necessary before a court could take cognizance B
of the offences mentioned therein in the case of a person who had
ceased to be a public servant at the time the court was asked t.o take
cognizance, although he had been such a person at the time the offence
was committed." This view has been followed in C.R. Bansi v. State of
Maharashtra, [1971] 3 SCR 236 and also in K.S. Dharmadatan v. Cent-
ral Government & Ors., [1979] 3 SCR 832 and finally reiterated in a
Constitution Bench decision in R.S. Nayak & Ors. v. A.R. Antulay, c
[ 1984] 2 SCC 183. The question is, therefore, no longer res integra .

. This brings us to the end o.f the second question and takes us on
to the first question. Among the substantive points raisi;;d .for the
appellant, the first question relates to the nature of the offence created Q.
under clause (e) of Section 5(1). The second, allied question, is as to
the invalidity of the charge-sheet filed in the instant case in as such as it
failed to incorporate the essential ingredient of the offence. It was
urged that the public servant is entitled to an opportunity to explain
the disproportionality between the assets and the known sources of
income. This opportunity should be given to the public ser~ant by the E
Investigating Officer and the charge sheet must contain a statement to
that effect, that is, to the unsatisfactory way of accounting by the
public servant. Unless the charge sheet contains such ap averment,
counsel contended that under law an offence under clause (e) of
Section 5( 1) of the Act is not made out.
F
For a proper consideration of the contentions, we may have the
pre-natal history of clause (e) of Section 5(1). Section 5(1) o! the Act,
as originally stood, provides in the four clauses (a), (b), (c) and (d) the
acts or the omissions of which public servant is said to have committed
an offence of criminal misconduct in the discharge of his duties. All
these provisions are still there except the term 'in the di,charge of his G
duties'. There then followed, Section 5(3) which was in these terms:

"In any trial of an offence punishable under sub-section (2)
the fact that the accused person or any other person on his
behalf is in possession, for which the accused person cannot
satisfactorily account, of pecuniary resources or prope.rty H
256 SUPREME COURT REPORTS [ 1991] 3 S.C.R. '

disproportionate to his known sources of income may be
A
proved, and on such proof the court shall presume, unless
the contrary is proved, that the accused person is guilty of
criminal misconduct in the discharge of his official duty and
his conviction therefor shall not be invalid by reason only
that it is based solely on such presumption.". •
B
This Section 5(3) does not create a new offence but only provides
an additional mode of proving an offence punishable under Section
5(2) for which any accused person was being tried. It enables the Court
to raise a presumption of guilt of the accused in certain circumstances.
This additional mode is by proving the extent of the pecuniary
resources or property in the possession of the accused or illlY other.
c person on his behalf and thereafter showing that this is disproportio-
nate to his known sources of income. If these facts are proved the
section makes it obligatory for the Court to presume that the accused
person is guilty of criminal misconduct in the discharge of his offiCial
duty, unless the contrary is proved by the accused that he is not so
D guilty. The Section 5(3) further provides that the conviction for an
offence of criminal misconduct shall not be invalid by reason that it is
based solely on such presumption. (See: (i) C.S.D. Swamy v. The
State, [ 1960] 1 SCR 461; (ii) Surajpal Singh v. The State of U. P., [961] 2
)..
-
SCR 971, and (iii) Sajjan Singh v. The State of Punjab, [1964] 4 SCR
630.,
E
fn 1962, as earlier explained, Santhanam Committee on 'Preven-
tion of Corruption' was constituted to review, among other things, the
law relating to corruption, to ensure speedy trial of cases of bribery
and criminal misconduct and to make the law otherwise more effec-
tive. The Committee in its report has, inter alia recommended the
F inclusion of clause (e) of Seciion 5(1) as a substantive offence in the
Act. The Government accepted that recommendation-'and to give
effect to that recommendation, enacted clause (e) of Section 5( 1)
replacing Section 5(3) of the Act. The Statement of Objects and
Reasons accompanying the Bill leading to the enactment of 'The Anti-
Corruption Laws (Amendment) Act, 1964 (Act No. 40 of 1964) by
G which clause ( e) of S.,ction 5( 1) was introduced into the Act reads:

'"(d) The Committee has recommended a number of
important amendments to the Prevention of Corruption
Act, 1947. It has suggested that the presumption enun-
ciated in sub-section (1) and (2) of Section 4 of the Act
H should be made available also in respect of offences under
K. VEERASWAMI v. U.0.I. [SHETTY, J.J 257

Section 5 and possession of disproportionate assets should
A
be made a substantive offence."
(Emphasis supplied)

For immediate reference, clause (e) of Section 5(1} is repro-
duced hereunder:
B
"5( l)(e) if he or any person on his behalf is in possession
or has, at any time during the period of his office, been in
possession, for which the public serva~t cannot satisfacto-
rily account, of pecuniary resources or property dispropor-
tionate to his known sources of income".

The terms of clause (e) indicates that the principle undedying
c
Section 5(3) appears to ·have been elevated to a substantive offence in
somewhat different words. We will presently analyse the ingredients of
the offence under clause (e), but before that, two decisions of this
Court on the scope of clause (e) may be referred. In Maharashtra v.
K. K.S. Ramaswamy, [ 1978] 1 SCR 274, Shinghal, J., said (at 276) that D
the result of the enactment of clause (e) is that mere possession of
pecuniary resources or property disproportionate to the known
sources of income of a public servant, for which he could not satis-
factorily account, became an offence by itself although Section 5(3)
which existed prior to Section 5( l)(e) did not constitute an offence.
E
In State of Maharashtra v. Wasudeo Ramachandra Kaida/war,
[ 198I] 3 SCR 675, Sen, J ., spelled outsuccintly the insight of dause (c)
of Section 5(1) (at pp. 682 to 684):

"The terms and expressions appearing ins. 5(l)(e) of the
Act are the same as those used in the old section 5(3). F
Although the two provisions operate in two different fields,
the meaning to be assigned to them must be the same. The
expression "known sources of income" means "soUrces
known to the prosecution". So also the same meaning must
be given to the words "for which the public servant is
unable to satisfactorily account" occurring ins. 5( l)(e). No G
doubt s. 4( 1) provides for presumption of guilt in cases
falling under ss. 5(l)(a) and (b), but there was, in our
opinion, no need to mention s. 5( J)(a) therein .. For th·'
reason is obvious. The provision contained ins. 5(1)(e) of
the Act is a self-contained provision. The first part of the
Section casts a burden on the prosecution and the second H
258 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

A on the accused. Whens. 5(1)(e) uses the words "for which
the public servant is unable to satisfactorily account", it is
implied that the burden is on such public servant to account
for the sources for the acquisition of disproportionate
assets. The High Court, therefore, was in error in holding
that a public servant charged for having disproportionate
B assets in the possession for which he cannot satisfactorily
account, cannot be convicted of an offence under s. 5(2)
read withs. 5(1)(e) of the Act unless the prosecution dis-
proves all possible sources of income."

On the burden of proof under Section 5(l)(e) of the Act, learned
Judge said:
c
"The expression "burden of proof" has two distinct mean-
ings; (1) the legal burden i.e. the burden of establishing the
guilt, and (2) the evidential burden, i.e. the burden of lead-
ing evidence. Jn a criminal trial, the burden of proving
D everything essential to establish the charge against the
accused lies upon the prosecution, and that burden never
shifts. Notwithstanding the general rule that the burden of
proof lies exclusively upon the prosecution, in the case of
certain offences, the burden of proving a particular fact in
issue may be laid by law upon the accused. The burden
E resting on the accused in such cases is, however, not so
onerous as that which lies on the prosecution and is dis-
charged by proof of a balance of probabilities."

As to the ingredients of the offence, learned Judge continued:

F "The ingredients of the offence of criminal misconduct
under s. 5(2) read with s. 5( l)(e) are the possession of
pecuniary resources or property dispropprtiortate to the
known sources of income for which the ·public servant can-
not satisfactorily account. To substantiate the charge, the •
prosecution must prove the following facts before it can
G bring a case under s. S(l)(e), namely,(!) it must establish
that the accused is a public servant, (2) the nature and
extend of the pecuniary resources or property which were
found in his possession, (3) it must be proved as to what
were his known sources of income i.e. known to th€ pro-
secution, and (4) it must prove quite objectively, that such
H resources or property found in possession of the accused
K. VEERASWAMI v. U.0.1. [SHETTY, J.J 259

were disproportionate to his known sources of income. A
Once these four ingredients are established, the offence of
criminal misconduct under s. 5(1)(e) is complete. unless
the accused is able to account for such resources or pro-
per" The burden then shifts to the accused to satisfac-
tori ) account for his possr:ssion of disproportionate
assets. The extent and nature of burden of proof resting B
upon the public servant to be found m possession of dispro-
portionate assets under s. 5( l)(e) cannot be higher than the
test laid by the Court in Jahgan's case (supra), i.e. to
establish his case by a preponderance of probability. That
test was laid down by the Court following th,e dictum of
Viscount Sankey, L. C. in Woolmington v. Director of
Public Prosecutions."
c
The soundness of the reasoning in Wasudeo Ramachandra
Kaidalwar case (supra) has been doubted. Counsel for the appellant
urged that the view taken on Section 5(3) cannot be imported to clause
(e) of Section 5(1) and the decision, therefore, requires reconsidera- D
tion. But we do not think that the decision requires reconsideration. It
is significant to note that there is useful parallel tound in Section 5(3)
and clause (e) of Section 5(1). Clause (e) creates a statutory offence
which must be proved by the prosecution. It is for the prosecution to
prove that the accused or any person on his behalf, has been in posses-
sion of pecuniary resources or property disproportionate to his known E
sources of income. When that onus is discharged by the prosecution, it
is for the accused to account satisfactorily for the disproportionality of
the properties possessed by him. The Section makes available statu-
tory defence which must be proved by the accused. It is a restricted
defence that is accorded to the accused to account for the dispropor-
tionality cif the assets over the income. But the legal burden of proof -F
placed on the accused is not" so onerous as that of the prosecution.
However, it is just not throwing some doubt on the prosecution ver-
sion. The Legislature has advisedly used the expression "satisfactorily
account". The emphasis must be on the word "satisfactorily". That
means the accused has to satisfy the court that his explanation is
worthy of acceptance. The burden of proof placed on the accused is an G
evidential burden though not a pursuasive burden. The accused how-
ever, could discharge that burden of proof "on the balance of prob-
abilities" either from the evi"dence of the prosecution and/or evidence
from tbe defence. ·

This procedure may be contrary to the well known principle of H
260 SUPREME COURT REPORTS [1991] 3 S.C.R.

criminal jurisprudence laid down in Woolmington v. Director of Public
A Prosecution, [ 1935] A.C. 462 that the burdei>of proof is always on the
prosecution and never shifts to the accused person. But Parliament is
competent to place the burden on certain aspects on the accused as
well and particularly in matters "specially within his knowledge".
....
(Section 106 of the Evidence Act). Adroitly, as observed in Swamy
B case (at 469) and reiterated in Wasudeo case (at 683), the prosecution
cannot, in the very nature of things, be expected to know the affairs. of
a public servant found in possession of resources of property dispro-
portionate to his known sources of income. It is for him to explain.
Such a statute placing burden on the accused cannot be regarded as
unreasonable, unjust or unfair. Nor it can be regarded as contrary to
Article 21 of the Constitution as contended for the appellant. It may
c be noted that the principle re-affirmed in Woolmington case is not a
universal rule to be followed in every case. The principle is applied only
in q1e absence of statutory provision to the contrary. (See the observa-
tions <'f Lord Templeman and Lord Griffiths in Rig. v. Hunt, [ 1986] 3
WLR 1115at lll8and 1129).
D
Counsel for the appellant however, submitted that there is no
,
law prohibiting a public servant having in his possession assets dispro-
portionate to his known sources of income and such possession
becomes an offence of criminal misconduct only when the accused is
unable to account for it. Counsel seems to be focussing too much only
E on one part of clause (e) of Section 5( !). The first part of clause (e) of
Section 5( 1) as seen earlier relates to the proof of assets possessed by
the public servant. When the prosecution proves that the public
servant possesses assets disproportionate to his known sources of
income, the offence of criminal misconduct is attributed to the public
servant. However, it is open to the public servant to satisfactorily
F account for such disproportionality of assets. But that is not the same
thing to state that there is no offence till the public servant is able to
account for the excess of assets. If one possesses assets beyond his
legitimate means, it goes without saying that the excess is out of i.Jl-
gotten gain. The assets are not drawn like nitrogen from the air. It has
to be acquired for which means are necessary. It is for the public
G servant to prove the source of income or the means by which he
acquired the assets. That is the substance of clause (e) of Section 5(1).

In the view that we have taken as to the nature of the· offence
created under clause (c), it may not be necessary to examine the con-
tention relating to ingredient of the offence. But since the legality of
H the charge sheet has been impeached, we will deal with that contention
K. YEERASWAMI '· U.0.I. [SHETIY, J.l 261

also. Counsel laid great emphasis on the expression "for which he
account satisfactorily account" used in clause (e) of Section 5( 1) of the
A
Act. He argued that that term means that the public servant is entitled
• to an opportunity before the Investigating Officer to explain the
~ ' alleged disproportionality between assets and the known sources of
income. The Investigating Officer is required to consider his explana-
tion and the charge sheet filed by him must contain such averment. B
The failure to mention that requirement would vitiate the charge sheet
and renders it invalid. This submission, if we may say so, completely
overlooks the powers of the Investigating Officer. The Investigating
Officer is only required to collect material to find out whether the
offence alleged appears to ha~e been committed. In the course of the
investigation, he may examine the accused. He may seek his clarifica-
tion and if necessary he may cross check with him about his known c
sources of income and assets possessed by him. Indeed, fair investiga-
tion requires as rightly stated by Mr. A.O. Giri learned Solicitor
General, that the accused should not be kept in darkness. He should
be taken into confidence if he is willing to cooperate. But to state that
after collection of all material the Investigating Officer must give an D
opportunity to the accused and call upon him to account for the excess
of the assets over the known sources of income and then decide
whether the accounting is satisfactory or not, would be elevating the
Investigating Officer to the position of an enquiry officer or a judge.
The investigating officer is not holding an enquiry against the conduct
of the public servant or determining the disputed issues regarding the E
disproportionality between the assets and the income of the accused.
He just collects material from all sides and prepares a report which he
files in the Court as charge sheet.

The charge sheet is nothing but a final report of police officer
under Section 173(2) of the Cr. P.C. The Section 173(2) provides that F
on completion of the investigation the police officer investigating into
a cognizable offence shall submit a report. The report must be in the
form prescribed by the State Government and stating therein (a) the
names of the parties; (b) the nature of the information; (c) the names
of the persons who appear to be acquainted with the circumstances of
the case; (d) whether any offence appears to have been committed G
and, if so, by whom (e) whether the accused has been arrested; (f)
whether he had been released on his bond and, if so, whether with or
without sureties; and (g) whether he has been forwarded in custody
under Sec. 170. As observed by this Court in Satya Narain Musadi and
Ors. v. State of Bil;or, [1980] 3 SCC 152 at 157; that the statutory
• requirement of the report under Section 173(2) would be complied H
262 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

with if the various details prfscribed therein are included in the report.
A
This report is an intimation to the magistrate that upon investigation
into a cognizable offence the. investigating officer has been able to
procure sufficient evidence for the Court to inquire into the offence
and the necessary information is being sent to the Court. In fact, the
report under Section 173(2) purports to be an opinion of the investi-
B gating officer that as far as he is concerned he has been able to procure
sufficient material for the trial of the accused by the Court. The report
is complete if it is accompanied with all the documents and statements
of witnesses as required by Section 175(5). Nothing more need be
stated in the report of the Investigating Officer. It is also not necessary
that all the details of the offence must be stated. The details of the
offence are required to be proved to bring home the guilt to the
c accused at a later stage i.e. in the course of the trial of the case by
adducing acceptable evidence.

In the instant case, the charge sheet contains all the requirements
of Section 173(2). It states that the investigation shows that between 1
D May 1969 and 24 February 1976 the appellant as the Chief Justice of
the High Court of Madras was in possession of the pecuniary resources
and property in his own name and in the name of his wife and two sons
etc., which were disproportionate by Rs.6,41,416.36 to the known
sources of income over the same period and cannot satisfactorily
account for such disproportionate pecuniary resources and property.
E The details of properties and pecuniary resources of the appellant also
have been set out in clear terms. No. more, in our opinion, is required
to be stated in the charge sheet. It is fully in accordance with the terms
of Section 173(2) Cr. P.C. and clause (e) of Section 5( I) of the Act.

For the foregoing reasons, we dismiss the appeal and direct the
F trial court to proceed with the case expeditiously.
•
Before parting with the case, we may say a word more. This case
has given us much concern. We gave our fullest consideration to the
questions raised. We have examined and re-examined the questions
before reaching the conclusion. We consider that the society's demand
G for honesty in a judge is exacting and absolute. The standards of judi-
cial behaviour, both on and off the Bench, are normally extremely
high. For a Judge to deviate from such standards of honesty and impar-
tiality is to betray the trust reposed on him. No excuse or no legal
relativity can condone such betrayal. From the standpoint of justice
the size of the bribe or scope of corruption cannot be the scale for
H measuring a judge's dishonour. A single dishonest judge not only dis-,
K. VEERASWAM! v. U.O.l. {SHARMA, J.] 263

honours himself and disgraces his office but jeopardizes the integrity A
of the entire judicial system.

A judicial scandal has always been regarded as far more deplor-
able than a scandal involving either the Executive or a member of the
Legislature. The slightest hint of irregularity or impropriety in the B
Court is a cause for great anxiety and alarm. "A legislator or an
administrator may be found guilty of corruption without apparently
endangering the foundation of the State. But a Judge must keep him-
self absolutely above suspicion" to preserve the impartiality and inde-
pendence of the judiciary and to have the public confidence thereof.

SHARMA, J, I have gone through the learned judgments of Mr. C
Justice Ray, Mr. Justice Shetty and Mr. Justice Verma. I agree with
Mr. Justice Ray and Mr. Justice Shetty that the appeal should be
dismissed. In view of the elaborate discussion of the facts and law in
the judgments of my learned brothers, I am refraining from dealing
with them in detail, and am indicating my reasons briefly. D

2. The expression "public servant" used in the Prevention of
Corruption Act, 1947 (hereinafter referred to as the 'Act') is undoub-
tedly wide enough to denote every judge, including Judges of the High
Court and the Supreme Court. The argument is that in view of the
language of the Act considered along with the provisions of the Con- E
stitution especially Article 124, Section 5 of the Act must be held to be
inapplicable to the High Court and Supreme Court Judges. It has not,
however, been suggested, and rightly, that the Parliament lacks juris-
diction in passing a law for trial and conviction of High Court and
Supreme Court Judges in cases where they are guilty of committing
criminal offences. The contention is that in view of the scheme of the
F
Act it should be inferred that the penal provisions of the Act do not
apply to them. Great reliance has been placed on Section 6, requiring
previous sanction of the authority competent to remove-the JUdge
from the office as a necessary condition for taking cognizance. It has
been urged that in view of this essential requirement it has to be held
that the Act does not cover the case of a member of the higher
G
judiciary while in office and consequently it cannot be made applicable
to him even after his retirement. For the purpose of this argument it is
presumed that there is no authority competent to remove a High Court
Judge from his office within the meaning of Section 6, and the condi-
tion precedent for starting a prosecution against him, therefore, can-
not be satisfied. I do not think this basic assumption is correct. H
264 SUPREME COURT REPORTS [1991] 3 S.C.R.

3. Section 6(1)(c) of the Act speaks of the "authority competent
A
to remove him from his office". The question is as to whether there is
some "authority competent" to remove a High Court Judge from his
office or not. An answer in the negative will be inconsistent with
Article 124 Clauses 4 and 5 read with Article 218 of the Constitution.
It is significant to note that Article 124(4) speaks of "removal from his
B office", and Section 6 of the Act uses similar language. The removal of
a Judge does not take place automatically on commission or omission
of a particular act or acts or on fulfilment of certain prescribed condi-
tions. It is dependant on certain steps to be taken as mentioned in the
Article through human agency. Initially some members of the Parlia-
ment have to move in the matter and finally an order has to be passed
by the President. Thus although more than one person are involved in
c the process, it is not permissible to say that no authority exists for the
purpose of exercising the power to remove a High Court Judge from
his office. As to who is precisely the authority in this regard is a matter
which, in my view, does not arise in the present case, but the vital
question whether such an authority exists at all must be answered in
D the affirmative.

4. It has been stn~nuously contended by Mr. Sibal, learned counsel
for the appellant, that the Constitution envisages an independent
judiciary, and to achieve this goal it is essential that the other limbs of
the State including the executive and the lagislature should be denied a
E position from where the judiciary can be pressurized.

5. The State is an organisation committed to public good; it is
not an end in itself. Its different branches including the legislature,
judiciary and the executive are intended to perform different assigned
important functions. Judiciary has a duty to dispense justice between
f person and person as also between person and State itself. To be able
to perform its duties effectively the Judges have to act "without fear or
favour, affection or ill will". They must, therefore, be free from pres-
sure from any quarter. Nobody can deny this basic essence of inde-
pendence of judiciary. But for the judiciary to be really effective, the
purity in the administration of justice and the confidence of the people
G in the courts are equally essential. It is to achieve this end that the
higher judiciary has been vested with the power to punish for its own
contempt. This has become necessary so that an aggrieved or misdi-
. .
rected person may not cast aspersions on the court which may
adversely affect the public confidence. If the community loses its faith
in the courts, their very existence will cease to have any meaning. A
H person with a just cause shall not approach the court for a legal
K. VEERASWAM! v. U.O:l. [SHARMA, J.] 265

remedy, if according to his belief the decision of the court would lie A
given on extreneous consideration and not on the merits of his claim.
- _, People will return to the law of the jungle for settling their dispute on
the streets. These aspects are common for the entire judiciary,
whether Higher or Subordinate, and to my mind no classification is
permissible separating one category from another.
B
6. Although the Judges of the higher judiciary perform impor-
tant functions and are vested with special jurisdiction, .t cannot be
forgotten that judicial power, wherever it is vested, is integral and
...,. basic for a democratic constitution. A large number of cases are finally
decided at the stage of the subordinate judiciary. The subordinate
judiciary, therefore, also needs the same independence which is essen-
tial for the higher judiciary. It is, therefore, not safe to assume that the
c
Act intended to make in its application any discrimination between the
lower and the higher judiciary. Protection to the public servant in
general is provided under Article 311 and the interest of the subordi-
nate judiciary is further taken care of by the High Court, and this
along with the provisions regarding previous sanction shields them D
from unjustified prosecution. Similarly protection is available to the
High Court and Supreme Court Judges through the provisions of Arti-
cle 124(4) and (5) of the Constitution. So far this aspect is concerned,
the two categories of Judges-High Court and Supreme Court Judges
on the one hand and the rest on the other have not been treated by
the law differently. There cannot be any rational ground on the basis E
of wliich a member of a higher judiciary may be allowed to escape
prosecution while in identical circumstances a member of the subordi-
nate judiciary is tried and convicted. Such an interpretation of the Act
will militate against its constitutional validity and should not, therefore,
be preferred.
F
7. There is still another reason indicating that the interpretation
suggested on behalf of the appellant should not be accepted. If it is
held that a member of the higher judiciary is not liable to prosecution
for an offence under Section 5 on account of the requirement of pre-
vious sanction under Section 6, it will follow that he will be immune
from' the prosecution not only under Section 5( l)(e) as b the present G
case, but also for the other offences under Clauses (a) to (d). So far
offences punishable under Sections 161, 164 and 165 of the Indian
Penal Code are concerned they are also subject to such previous sanc-
tion. The result will be serious. It is a well established principle that no
person is above the law and even a constitutional amendment as con-
tained in Article 329 A in the case of the Prime Minister was struck H
266 SUPREME COURT REPORTS I 1991] 3 S.C.R.

down in 1976 (2) SCR 347 at 470 C-D. It has to be remembered that in
A
a proceeding under Article 124 a Judge can merely be removed from
his office. He cannot be convicted and punished. Let us take a case
where there isa positive finding recorded in such a proceeding that the
Judge was habitually accepting bribe, and on that ground he is
removed from his office. On the argument of Mr. Sibal, the matter
B will have to be closed with his removal and he will escape the criminal
liability and even the ill gotten money would not be confiscated. Let us
consider another situation where an abetter is found guilty under
Section 165 A of the Indian Penal Code and is convicted. The main
culprit, the Judge shall escape on the argument of the appellant. In a
civilised society the law cannot be assumed to be leading to such dis-
turbing results.
c
8. In adopting 1:he other view I do not see any difficulty created
either by the scheme or the language of the Act or by any constitu-
tional provision. The statement in Santhanam Committee's report that
the members did not consider judiciary to be included in the tenns of
D the reference, is not of much help as admittedly the Act applies to the
members of the subordinate judiciary. Nor can the rules relating to
disclosure by some Govt. servants of their assets and liabilities
determine the scope of the law. These rules differ from place to place
and are amended from time to time according to the changing
exigencies. As has been stated earlier, the power to remove a High
E · Court Judge from his office does exist and has to be exercised in
appropriate circumstances according to the provisions of Article 124.
It is, therefore, not right to say that previous sanction for his prosecu-
tion cannot be made available. Section 2 of the Act adopts the defini-
tion of "public servant" as given in Section 21 of the Indian Penal
Code, which includes "Every Judge". If the legislature had intended
F to exclude the High Court and Supreme Court Judges from the field of
Section 5 of the Act, it could have said so in unambiguous terms
instead of adopting the wide meaning of the. expression "public
servant" as given in the Indian Penal Code.

9. The further question as to the identity of the authority
G empowered to grant the necessary sanction as mentioned in Section 6
of the Act was hotly debated during the hearing of the case. Mr. • I
Justice Shetty has held that since ultimately it is the order of the
President which is necessary for the removal of a Judge. he must be
treated to be the competent authority. Taking into consideration the
independence of judiciary as envisaged by the Constitution, it has
H ·further been observed that the Chief Justice af India will have to be
K. VEERASWAMI v. U.0.l. [SHARMA , J.)

consulted in the matter and steps would have to be taken in accordance. A
with his advice. Mr. Justice Ray and Mr. Justice Venkatchaliah are'in
agreement with this view. These observations, I believe, would be not
only acceptable, but welcome to the Union of India, as during the
hearing it was at the suggestion of the learned Solicitor General and
the Additional Solicitor General, that the desirability of the aforesaid
direction in the judgment was considered by the Bench. I also fully B
appreciate that if the executive follows this rule strictly , a furtht=r pro-
tection from harassment of the judges by uncalled for and unjustifie.P
criminal prosecution shall be available. But in my view such a binding
direction cannot be issued by this Court on the basis of the provisions
of the Constitution and the Act.

10. Before proceeding further I would again state that having
c
answered the question as to whether a Judge of the superior court can
be removed by some authority whoever he or they may be, in the
affirmative, it is not necessary to decide the further controversy as
me ntioned above. I would, therefore, be content mereiy by indicating
some of the aspects which may be relevant for the issue, to be decided D
later in a case whe n it directly arises.

11. If the .President is held to be the appropriate authority to
grant the sanction without reference to the Parliament , he will be
bound by the advice, he receives from the Council of Ministe rs. This
will seriously jeopardise the independence of judiciary which is E
undoubtedly a basic feature of the Constitution. Realising the serious
implication it was suggested o n behalf of the Union of India that this
Court may lay down suitable conditions by way of prior approval of the
Chief Justice of India for launching a prosecution. I fully appreciate
the concern of all of us including the Union of India for arriving at a
satisfactory solutio n of the different problems which are arising, but F
if we start supplementing the law as it stands now, we will be
encroaching upon the legislative field . To meet this objection it was
contended that it is permissible for us to issue the suggested direction
because the Chief Justice of India is not a stranger in the matter of
appointment of a Judge of the High Court or the Supreme Court;
rather he is very much in the picture . Refere nce was made to the G
provisions of Articles 124~1):-and 217( 1). The difficulty in accepting
this argument is that the Governor of the State and the Chief Justice of
the High Court are as much involved in the matter of appointment of a
Judge of the High Cotirt as the Chief Justice of India. We cannot ,
therefore, simplify the problem by referring to the aforesaid Articles .
In my view the approval of Chief Justice of India can be introduced H
SUPREME COURT REPORTS [1991) 3 S.C.R.

~s a condition for prosecution only by the Parliament and not by this
A
Court.

12. The question , then, is as to what is the protection available
under the law as it exists today, to the independence of the judiciary of
the country. The answer is in Section 6 of the Act, which by providing
B for previous sanction of the authority empo~ered to remove the
Judge , takes us to Article 124, Clauses (4) and (5). Since the
Constitution itself has considered it adequate in the matter of dealing
with serious accusations against the Judges by incorporating the provi-
sions of Clauses (4) and (5) in Article 124, they must be treated to be
appropriate and suitable; and should be resorted to in the matter of
prosecution also, in view of the Parliament enacting Section 6 of the
c Act in the language which attracts the constitutional provisions.

13. It has been argued that in view of the constitutional prohibi-
tion against any discussion in Parliament with respect to the conduct of
a Judge of the superior court, except in connection with his removal
D under Article 124, it will not be possible to obtain the necessary sanc-
tion as mentioned in Section 6 of the Act, except by initiating a motion
for removal also simultaneously; and then, it will be a time consuming
process. I will assume the contention to be correct, but for that reason
I do not think that the correct interpre tation of the legal position can
be discorrected, as it does not lead to any illegal consequence, unten·
E able position or an absurd result. It is true that the grant of sanc-
tion will be delayed until the accusation is examined according to the
law enacted under Clause (5) of Article 124, but once that stage is over
and a finding is recorded against the Judge, there should not be any
hitch in combining the two matters-that is the removal and the grant
of sanction-which are obviously intertwined. It has to be
F remembered that the prosecution under Section 5( 1) of the Act refers
to collection by the Judge of disproportionately large amount of
wealth during the period he has been in office. The two matters-the
prosecution and removal-should not, therefore , be treated to be
separate and unconnected with each other. Otherwise, there will be
scope left for the Judge concerned to claim that although he may be
G facing prosecution or may have been even convicted after trial , he still
continues to be a Judge entitled to exercise his powers, as he has not
been removed from his office. It was stated during the course of the
hearing that actually such a situation has arisen in another country
where a Judge although punished wit h impri.sonment was insisting that
he still continued in his office. I do not think that such a thing is
H permissib_Ie in this country. The anomaly involved in such situations
K. VEE~ASWAMI v. U.O.i. (VERMA, J.J 269
can be satisfactoriiy resolved by comolni11g the two rttatters and getting A
clearance from the Patliament. Before closing this chapter 1 would
again repeat tHat this Issue is ildt atislttg iii the pteserit case and will .
fiave lo t5e 1::ohsidered and fiMily decided only when It directly atises.
Since, he1~evet. opitiihhc; have iieeii e ~ptesi;;ed, wtiich I regret I do Mt
find myself iri a positititi tt) share. i liave, with greatest resjject (jt 111y
learned bMthets, take!1 the iitterty to state sdrtte ltnptltHHit considera- D
tlons , wlilch appeat to be relevttlit to me .

14. · Mr. Sibal next contended that as the appellant was not called
upon to account fot the ptopetty whidt was found irt his possessicm.
one of the essential ingredients under Se1::tiori 5( i)(e) is hot satisfied ..
e
there is no nietit \i.rttatsoever in this f:1tli,~t either. tlie sectloti does hot
contempiate a iititite ttl be setved tlt1 tne accused. If die ptosecutihg
authority after tt:Htkittg a soitabie ettquiry; by taking into account the
televatit documents and questi(jriittg relevant petsdiis; ,forms the
opinion thai the accused cattnm satisfadotliy accdurit the acctmiula-
tion of dispropdttionate wealth lri his possession the section is
attracted. The records clearly indicate that after duly taking ali the I)
appropriate steps it was stated that di~ assets fduhd in the j:lt1ssessioii
of the appeiiattt iti kis dWti fiatiie attd irl tke name df itls wife alid fw(j
sons; were disproportionate by a sum of dvet Rs.6 iacs to his known
Sdt.ttces of income dUting tfie teievatH petiod arid .wliidi lie "catinot
satisfactorily act:duht".

is. Since I do tit>t find ariy ffi etlt lti any of the pofots utged oh·
behalf df the appeliattt this appeal is dismissed,

VEltMA; J, i have fjetlisetl the dpiriidtts of fuy leatiied brethren
constitututing the iiiajority takitig Hie view that the Ptevetttiori of tot ~.
ruptloti Act applies. i artl uttat51e W su!Jsctibe to tfiis vie"', My dissent- F
fog opinion is at hesf dtily academic, Ali the same 1 deem H fit to
tecotd the same with itiy teasc>tis for faklttg a different view. lt is
indeed i.uifO'Ttunate tkat fttis qtiestioti slwuld ~H all arise tor judidal
detetmihatioti . f-Iowever, tlie questioti havihg ariseri we ate l:iotlfid w
gtv1$ o'tit l:Jpinioli. In view Cif the sigttificance of the f>b'ii'it; i tetotd my
tespsctfoi dissent reassured oy the ob'serva:tiotls oi 1-lugties th:tt 'unaiti". Q '
mity tvkidr i~ meteiy fotma:i, whieh is tecotded at the expense of
~ito'tig ; confiktiiig vie«is , is riot desirabie in a court of last .resiJtt;
whatevet tnay be the effect dri pui:iiic opinion at the time. This is StJ
lJeca:use what mtist uftlmateiy sustain the coi.Jtt in public:: <>dnfidetite is
the dfata:ctet a:n'd itidependeike of ftte judges. . . , , . tt Is better ihaf
tkelt ltidepeHdettce sh'ould &e tttalttttiined a:nd tecO"gnlsed tlia:n fka:t H
270 SUPREME COURT REPORTS (1991] 3 S.C .R.

unanimity should be secured through its sacrifice.' I would rather he a
A
conscien~ious lone dissenter than a troubled conformist. It is in this
spirit, in all humility, I record my dissent.

Can the Chief Justice of a High Court or any of its puisne Judges
be prosecuted for an offence punishable under the Prevention of Car·
B ruption Act, 1947 (hereinafter referred to as 'the Act')? This is the
main question a.:ising for decision in this appeal. The appellant,
K. Veeraswami, a former Chief Justice of the Madras High Court filed
an application under Section 482 of the Code of Criminal Procedure,
1973 (Criminal M.P. No . 265 of 1978) to quash the proceedings in C.C.
No. 46 of 1977 in the Court of the Special Judge, Madras, initiated on a
C . charge-sheet accusing him of the offence of criminal misconduct under
Section 5(1)(e) punishable under Section 5(2) of the Act, as amended
by the Amendment Act of 1964. The matter was heard by a full bench
of the High Court which dismissed the application by order dated
27.4.1979 according to the majority opinion of Natarajan and Mohan,
JJ. while· Balasubrahmanyan , J. dissented. This appeal is by a certifi·
D cate granted by the High Court under Articles 132(1) and 134(1)(c)'of
the Constitution of India in view of the important question of law
involved for decision.

The material facts are only a few. The appellant joined the Bar
of Madras in the year 1941 and had a lucrative practice. In 1953 he was
E appointed as Assistant Government Pleader and in 1959, the Govero·
ment Pleader at Madras. On 20.2.1960, he was elevated to the Bench
of the Madras High Court being appointed as a permanent Judge of
that Court. On 1.5.1969, he was appointed the Chief Justice of the
Madras High Court, from which office he retired on 7.4.1976. On
24.2.1976, the Central Bureau of Investigation at Delhi registered a
F case against the appellant under the Act and on 28.2.1976, the First
Information Report was lodged accusing the appellant of the offence
of criminal misconduct under Section 5( l)(e) punishable under Section
5(2) of the Act. A charge-sheet dated 15. 12.1977 was filed alleging
that between 1.5.1969 and 24.2.1976, while the appellant was a public
servant, he was in possession of pecuniary resources and property in
G his own name and in the names of his wife Smt. Eluthai Ammal and his
two sons S/Shri V. Suresh and V. Bhaskar, which were dispropor·
tionate to the extent of Rs.6,41,416.36p. to his known sources of
income during that period and that he cannot satisfactorily account for
such di~proportionate pecuniary resources and property. The charge·
sheet also gave particulars on the basis of which the disproportion in
H assets was alleged.
"; K. VEERASWAMJ v. U .0.1. [VERMA, J.] 271

The appellant filed a petition under Section 482 Cr. P.C. in the
A
High Court for quashing the prosecution pending in the Court of
Special Judge, Madras, on the above charge-sheet, with the result
indicated above. Several arguments including the allegation of mala
fldes against the Central Government were advanced in the High
Court on behalf of ihe appellant. It is, however, unnecessary to refer
to all of them since at the hearing of the appeal before us, the appel- B
lant's case was confined only to the grounds stated hereafter and the
ground of mala /ides alleged in the High G:ourt was expressly given up
at the hearing before us by Shri Kapil Sibal, learned counsel for the
appellant.

Shri Kapil Sibal, learned counsel for the appellant advanced two C
arguments only. His first contention is that the Judges of the High
Courts and the Supreme Court are not within the purview of the Act,
which is a special enactment applicable to public servants, in whose
case prosecution can be launched after sanction granted under Section
6 of the Act, which is alien to the scheme envisaged for constitutional
functionaries like Judges of the High Courts and Supreme Court. He D
argued that the special provisions in the Constitution of India relating
to the Judges of the High Courts and the Supreme Court clearly indi-
cate that they are not within the purview of the Act and that after their
appointment in the manner prescribed, they are wholly immune from
executive influence, their tenure being fixed by the Constitution,
except for removal in the manner prescribed by Article 124(4). The E
other argument of Shri Sibal is that one of the essential ingredients of
the offence of criminal misconduct, defined in Section 5( l)(e) of the
Act , which is punish able under Section 5(2) thereof, is the inability of
the accused to satisfactorily account for possession of disproportionate
assets, which must be evident from the documents annexed to the
charge-sheet to enable the Special Judge to take cognizance of the F
offence and this can be possible only if the accused is asked to give his
account before filing of the charge-sheet. On this basis, it was argued
that the procedure for grant of sanction under Section 6 of the Act
which requires the sanctioning authority to sec the explanation of the
public servant before granting sanction, makes it feasible, which also
shows its inapplicability to the superior Judges, in whose c~e there is G
no such ser~ice record or machinery provided. In a way , the second
argument of Shri Sibal also is connected with his first argument. St)ri
Sibal argµed that irrespective of the desirability of enacting a law
providing for the prosecution and trial of superior Judges accused of
the offence of criminal misconduct, the existing law contained in the
Act is inapplicable to them. In reply, the learned Solicitor General , H
272 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

who was followed by the lea rned Additional Solicitor General, stren-u -
A
ously urged that the Judges of the High Courts and the Supreme Court
also fall within the purview of the Act being 'public servants', which
definition is wide e nough to include 'every Judge'. They argued that
there is no immunity to the superior Judges as in th e case of the
President and the Governor under Article 36 1 of the Constitution and ,
B therefore, there was no reason to exclude to superior Judges from the
purview of the Act. The diffi culty of sanction under Section 6 for the
prosecution of superi0r Judges and the special provisions contained in
clauses ( 4) and (5) of Article 124 read with Article 2 18, it was sug-
gested , presented no difficulty since the President of India could be
treated as the compe tent authority to grant sanction in accordance
with Section 6(i)(c) of the Act in the case of the High Court and
c S upreme Court Judges. The learned Solicitor General and the Addi-
tional Solicitor Gene ral also urged th at adequate safeguards in the
form of guidelines be suggested by this Court to preven t any abuse of
e xecutive authority or harassment to independent Judges. It was sug-
gested that some machinery involving the Chief Justice of India for
D grant of sanction for prosecution by the President of India , even for
investigation into the offence, could be suggested by this Court for
implicit compliance by the executive . It was argued that in this manner
preservation of independence of the judiciary could be ensured while
treating the superior Judges also within the purview of th e Act to
e nable the prosecution and punishment of the corrupt ones.
. .
E
In view of the great significance of the point involved for decision
which has a risen for the first time , the matter was h_eard at consider-
able length to illuminate the grey areas. At the hearing the consensus
was that, this unfortunate controversy not envisaged earlier , having
now arisen , may be, it is time that a clear provision be made within the
constitutional scheme to provide for a machinery to deal with the
corrupt members of the superior judiciary, which itself is necessary for
preservation of the independence of the judicia ry. However, the dif-
ference is with regard to the adequacy of machine ry enacted in the
, existing le'gislation for this purpose . In o ther words, the difference is
about the law as it is and not about what it should be. For the purpose
G of deciding.this case, we have to see the law as it now t:xists.

The main point for consideration is whether the Chief Justices
and puisne Judges of the High Courts are within the purview of the
Act. It is implicit that if the answer is in the affirmative, then the Chief
Justice and Judges of the Supreme Court also would fall within the
purview of the Act and so also the Comptroller and Auditor Ge ner?
K. VEERASWAM! v. U.0.1. [VERMA, J.J 273

and the Chief Election Commissioner, whose terms and conditions of
A
office <ire the same as those of a Judge of the Supreme Court of Inqia.
If for any reason the Comptroller and Auditor General and the Chief
'·• f:!ection Commissioner be considered outside the purviel\' of the Ai:;t,
that would itself inclicate exclusion of certain similar constitutipnal
functionaries from the purview of the Act. The real question, thefe-
fore, is: Whether these constitutional functionaries were intende\J tp
be included in the qefinition of 'public servant', as defined in the Ac\,
and the existing enact\"! law is to that effec\. The desirapility of enact-
jng sµch a law applicable to them, it was strenuously t1rged at the
hearing, would be a matter primarily for the Parliament to consic:!er in
case tqe existing law as enacted does not apply to them. There is no
m~t€!rial to indi~ate that corruption in judiciary was a misGhief to be
cure\l whe!l the Prevention of Cprrup\ion Act was enacted. For this
c
rps 0 n, the desirability now expresseq of having such a law cannot be
:;ii 9\(1 to constrµ,ction of \he existing law to widen its alT]pjt and bring
Hwse rn11stitµtipnal functionaries within it since such an exercise
would be wh.plly impermissible in the garb of judicial craftmanship
wj1ich caµn 0 t replace legislation in a vergin field. Judicial activism can D
supply the deficiencies ind fill gaps in an already existing structure
found deficient in some ways, but it must stop sort of building a new
edifice where there is none. In a case like the present, the only answer
can be a definite 'yes' or definite 'no', but not 'yes' with the addition of
the \egislat\ve requirements in the enactment which are wholly ~bsent
and with.out which tile answer cannot be 'yes'. I11111y considered view E
laying (low!l guiqeliµes to be implicitly obeyed, if they.find no place in
the existing enactme11t and to bring the superior Judges l\'ithin the
Pl!rview of the existing law on that basis, would ampunt to enacting a
nel\' law outside the scope of the existing law and not merely constru-
ing it by supplying the deficiencies to make it workable for achieving
the object of its enactment. It was suggested at the hearing that the F
guidelirws so suggested and supplied with the aid of whic]J the existing
law coulcl be made applicable to superior Judges l\'OUld be akin to the
exercis~ performed by this Court while dealing l\'ith the AdministfW
t\ve Tripµnals A1:=t in S.P. Sampath Kumar v. Union of India & Or~.,
• i 1987! l SCC 124. I am afraid this analpgy is not apt there being no
si111ilarity in the tl\'O situations. The Administrative Tribunals Act ~s Q
enacted was found to suffer from certain infirmities which would
render it invaliq ancl thereby failing to achieve the obj~ct of its enaet-
ment 4l)less the deficiencies therein were supplied. lt was to overco111e
\his si\uatioq th.at this Court in Sampath Kumar suggested w~ys am:!
rnec;ns tq ov~rcome those infirmities t.o achieve th~ objel::t of ·~n~~t
ment of that legislation and thereby make \he legisla\ion work~ble as a
274 SUPREME COURT REPORTS I 1991] 3 S.C.R.
valid piece of legislation. The situation here is entirely different. The
A
Act is wholly workable in its existing form for the public servants
within its purview and there is no impediment in its applicability to the • .A
large number of public servants who have been dealt with thereunder
ever since its enactment. The only question which now arises is:
Whether this piece of legislation also applies to certain constitutional
B functionaries such as the High Court Judges and if the answer is in the
negative, the life of the enactment is not jeopardised in any manner.
The only result is that in case such a legislation for superior Judges also
is considered necessary at this point of time, the Parliament can
perform its function by enacting suitable legislation, it being a virgin
field of legislation. It is, therefore, difficult to appreciate such an
argument when the question for our decision is only of construction of
c the legislation as enacted to determine the field of its operation.

Reference may now be made to certain statutory provisions on
the basis of which the point has to be decided. The definition of 'public
servant' given in the Act includes 'every Judge'. Sub-section (!) of
O Section 5 of the Act defines 'criminal misconduct' in its several clauses
and Sub-section (2) thereof prescribes punjshment for the offence of
criminal misconduct. Section SA deals with investigation into cases
under this Act and Sect.ion 6 is the provision for previous sanction
necessary for prosecution. Thus, no Court shall take cognizance of an
offence punishable under Sub-section (2) of Section 5 of the Act
E except with the previous sanction of the competent authority envi-
saged by clauses (a), (b) and (c) of Sub-section(!) of Section 6 of the
Act. It is for this reason that Section 6 assumes significance for the
applicability of the Act since previous sanction for prosecution is
necessary for taking cognizance of an offence under Section 5(2) of the
Act and in situations where no such sanction can be envisaged, the Act
F cannot be made applicable. The relevant provisions of the Act as in
existence after the 1964 amendment are quoted as under:

"2. Interpretation.-For the purposes of this· Act, "public
servant" means a public servant as defined in Section 21 of
the Indian Penal Code (45 of 1860).
G
xxx xxx xxx

4. Presumption where public servant accepts gratifi-
cation other than legal remuneration.-(!) Where in any
trial of an offence punishable under Section 161 or Section
H 165 of the Indian Penal Code (45 of 1860) or of an offence
K. VEERASWAMI v. U.0.1. !VERMA, J.J 275

referred to in clause (a) or clause (b) of sub-section (1) of A
Section 5 of this Act punishable under sub-section (2)
thereof, it is proved that an accused person has accepted or
obtained, or as agreed to accept or attempted to obtain, for
himself or for any other person, any gratification (other
than legal remuneration) or any valuable thing from ·any
B
person, it shall be presumed unless the contrary is proved
that he accepted or obtained, or agreed to accept or
attempted to obtain that gratification or that valuable thing
as the case may be as a motive or reward such as is
mentioned in the said Section 161, or, as the case may be,
without consideration or for a consideration which he knows
to be inadequate. c
(2) Where in any trial of an offence punishable under
Section 165A of the Indian Penal Code (45 of 1860) or
under clause (ii) or sub-section (3) of Section 5 of this Act,
it is proved that any gratification (other than legal remu-
D
neration) or any valuable thing has been given or offered to
be given or attempted to be given by an accused person, it
shall be presumed unless the contrary is proved that he
gave or offered to give or attempted to give that gratifica-
tion or that valuable thing as the case may be as a motive or
reward S<,Ich as is mentioned in Section 161 of the Indian
E
Pe.nal Colle or, as the case may be, without consideration
or for a consideration which he known to be inadequate.

(3) Notwithstanding anything contained in sub-
sections (!) and (2), the court may decline to draw the
presumption referred to in either of the said sub-sections if F
the gratification or thing aforesaid is, in its opfoion, so
trivial that no inference of corruption may fairly be drawn.

5. Criminal misconduct.-(!) A public servant is said to
commit the offence of criminal misconduct-

(a) if he habitually accepts or obtains or agrees to G
accept or attempts to obtain from any person for
himself or for any other person, any gratification
(other than legal remuneration) as a motive or
reward such as is mentioned in Section 161 of the
Indian Penal Code (45 of 1860), or H
SUP1'!0ME CQ!JIH REPORTS [19911 3 S.C.R.

(b) jf he !Japi\4ally accepts or obtains or agrees to
ilccept or attempts to obtajp for himself pr for ;iny
other person, ;iny vqlµaple thing witho4t coqsiclera-.
\im1 Pf fpr a cpnsic!era\ion which lie knows to be .
ioai:!egµale from al!Y person whom he knows tp have
been, or tp f)e, or to 6e H~ely to be concerned in any
proceeding or p11siness trapsacted or about to be
transacteP PY him, or having any co!lnec(ion with the
offil;ial f\!nptions of hims.elf or of any public servant \o
whom he is sµbor!li!late, or frpm any person who!Jl !ie
kl]ows to Pe interes\ed in or related to the person so
rnnP~flleP. or

(c) if he gis.\wiws\ly Pr frauqµlen!ly misapprppriates
Pf pllwrwise cPnver\s for pis own \!se anY prpperty
el!trustec! tp him m µni:JH his rnntrnl as ;i pu!Jlic
servant Pf allows apy 111lwr Person so to po, of ·

(d) if he, by ~9.ffupt or illegal me&ns or by otherwise
abusing his ppsj\iqp as public servant, obtains for
himself or for any other person any valuable thing or
pecuniary ac!vantage, or

(e) if lie or aiw perspn on his. behalf is in possession
or '1as, at any \im<; !111ring the pniocl of his office,
beef! in possession, for which the pµblic servant 9annot
satisfaciorily &ccOIJ11!. of Pecµniary resources or prop·
nty dispnlportio!la(e to )ljs known soµrces of
income.

f (2) Any public servant who commits criminal mis·
pond11ct shall be punishable with imprisonment for a term
whkli sliall not be less \haµ one year bµt which may exte11q
\o seven years ~n<,I s!iall also b" liable to fine:

Provided tltat the court maY, for any special reasons
q recorded in writing, impose a sentence of imprisonment of
less than one year.

xxx xxx

5A. Investigation into cases µnder this Act.-( 1)
r
H Notwit!istanding anything contained in the Code of Crimi· t
.,

~
K. VEERASWAMI v. U.0.L [VERMA. J.[ 277

nal Procedure, 1898 (5 of 1898), no police officer below the

\
- >
rank,-

(a) in the case of the Delhi Special Police Establish-
A

ment, of an Inspector of Police;

(b) in the presidency-towns of Calcutta and Madras, B
of an Assistant Commissioner of Police;
:'
(c) in the presidency-town of Bombay, of Super>n-
--j tendell! of Police; and
...
(ct) elsewhere, of a Deputy Superintendent of Police,
c
shall investigate any offence punishable under Section 161,
'

-
Section 165 or Section 165A of the Indian Penal Code (45
_of 1860) or under Section 5 of this Act without the order of
' a Presidency Magistrate or a Magistrate of the first class, as
• the case may be, or make any arrest therefor without a
warrant:
D
-'

Provided that if a police officer not below the rank of
an Inspector of Police is authorised by the State Govern-
ment in this behalf by general or special order, he may also
... investigate any such offence without the order of a Presi- E
dency Magistrate or a Magistrate of the first class, as the
case may be, or make arrest therefor wi~hout a warrant:

Provided further that an offence referred to in clause
(e) of sub-section (1) of Section 5 shall not be investigated
without the order of a police officer not below the rank of a F
Superintendent of Police.

(2) If, from information received or otherwise, a
police officer has reason to suspect the comn1ission of an
, offence which, he is empowered to investigate under sub-
section ( 1) and considers that for the purpose of investiga- G
".,, tion or inquiry into such offence, it is necessary to inspect
' any bankers' books, then, notwithstanding anything con-
tained in any law for the time being in force, he may inspect
any bankers' books in so far as they relate to the accounts
of the person suspected to have committed that offence or
of any other person suspected to be holding money on H
278 SUPREME COURT REPORTS [ 1991] 3 S.C.R.

behalf of such person, and take or cause to be taken
A
certified copies of the relevant entries therefrom, and the
bank concerned shall be bound to assist the police officer in
the exercise of his powers under this sub-section:

Provided that no power under this sub-section in rela-
B tion to the accounts of any person shall be exercised by a
police officer below the rank of Superintendent of Police,
unless he is specially authorised in this behalf by a police
officer of or above the rank of a Superintendent of Police.

Explanation. In this sub-section, the expressions
"bank" and "bankers' books" shall have the meanings
c assigned to them in the Bankers' Books Evidence Act, 1891
(18 of 1891).

D
6. Previous sanction necessary for prosecution.-(!)
No court shall take cognizance of an offence punishable
under Section 161 or Section 164 or Section 165 of the
Indian Penal Code (45 of 1860), or under sub-section {2) or
-
sub-section (3A) of Section 5 of this Act, alleged to have
been committed by a public servant, except with the pre-
vious sanction,

E (a) in the case of a person who is employed in con-
nection with the affairs of the Union and is not
removable from his office save by or with the sanc-
tion of the Central Government, of the Central
Government;

F (b) in the case of a person who is employed in con-
nection with the affairs of a State and is not remov-
able from his office save by or with the sanction of the
State Government, of the State Government;

(c) in the case of any other person, of the authority
G competent to remove him from his office.

(2) Where for any reason whatsoever any doubt
arises whether the previous sanction as required under sub-
section (I) should be given by the Central or State Govern-
ment or any other authority, such sanction shall be given by
H that Government or authority which would have been com-
K. VEERASWAMI 1•. U.0.I. [VERMA, J.[ 279

petent to remove the public servant from his office at the
... ,)
time when the offence was alleged to have been
committed."
A

•
The relevant provisions of the Constitution of India are as under:

"121. Restriction on discussion in Parliament.-No discus- B
sion shall take place in Parliament with respect to the con-
duct of any Judge of the Supreme Court or of a High Court
in the discharge of his duties except upon a motion for
presenting an address to the President praying for the
removal of the Judge as hereinafter provided.

xxx xxx xxx c
124. Establishment and constitution of Supreme
Court.-(!) .......

xxx xxx xxx D

(4) A Judge of the Supreme Court shall not be
removed from his office except by an order of the President
passed after an address by each House of Parliament sup-
ported by a majority of the total membership of that House
and by a majority of not less than two-thirds of the mem- E
bers of that House present and voting has been presented
to the President in the same session for such removal on the
ground of proved misbehaviour or incapacity.

(5) Parliament may by law regulate the procedure for
the presentation of an address and for the investigation and F
proof of the misbehaviour or incapacity of a Judge under
clause (4).

xxx xxx xxx

148. Comptroller and Auditor-General of India.- G
(I) There shall be a Comptroller and Auditor-General of
India who shall be appointed by the President by warrant
under his hand and seal and shall only be removed from
office in like manner and on the like grounds as a Judge of
the Supreme Court.
H
xxx xxx xxx
280 SUPREME COURT REPORTS [1991] 3 S.C.R.

211. Restriction on discussion in the Legislature.-
A
No discussion shall take place in the Legislature of a State
with respect to the conduct of any Judge of the Supreme
Court or of a High Court in the discharge of his duties.

xxx xxx xxx
B
218. Application of certain prov1s10ns relating to
Supreme Court to High Courts.-The provisions of clauses
(4) and (5) of Article 124 shall apply in relation to a High
Court as they apply in relation to the Supreme Court with
the sub-titution of reference to the High Court for refe-
rences to the Supreme Court.
c
xxx xxx xxx

324. Superintendence, direction and control of elec-
tions to be vested in an Election Commission.-( 1)
D

- xxx xxx xxx

(5) Subject to the prov1s1ons of any law made by
Parliament, the conditions of service and tenure of office of
E the Election Commissions and the Regional Commission-
ers shall be such as the President may by rule determine:

Provided that the Chief Election Commissioner shall
not be removed from his office except in like manner and
on the like grounds as a Judge of the Supreme Court and
F the conditions of service of the Chief Election Commis-
sioner shall not be varied to his disadvantage after his
appointment:

Provided further that any other Election Commis-

G
sioner or a Regional Commissioner shall not be removed
from office except on the recommendation of the Chief
. ,
Election Commissioner.

xxx xxx xxx

361. Protection of President and Governors and
H Rajpramukhs.-(1) The President, or the Governor or
K. VEERASWAMI v. U.0.1. [VERMA. J.[ 281

Rajpramukh of a State, shall not be answerable to any
A
court for the exercise and performance of the powers and
duties of his office or for any act done or purporting to be
done by him in the exercise and performance of those
powers and duties:

Provided that the couduct of the President may be B
brought under review by any court, tribunal or body
appointed or designated by either House of Parliament for
the investigation of a charge under Article 61:

Provided further that nothing in this clause shall be
construed as r.estricting the right of any person to bring
appropriate proceeding~ against the Government of India
c
or the Government of a State.

(2) No criminal proceedings whatsoever shall be
instituted or continued against the President, or the
Government of a State, in any court during his term of D
office.

(3) No process for the arrest or imprisonment of the
President, or the Governor of a State, shall issue from any
court during his term of office.
E
(4) No civil proceedings ir. which relief is claimed
against the President, or the Governor of a State, shall be
instituted during his term of office in any court in respect of
any act done or purporting to be done by him in his
personal capacity, whether before or after he entered upon
his office as President, or as Governor of such State, until F
the expiration of two months next after notice in writing
has been delivered to the President or the Governor, as the
case may be, or left at his office stating the nature of the
proceedings, the cause of action therefore, the name,
des2ription and place of residence of the party by whom
such proceedings ·are to be instituted and the relief which G
he claims."

It may also be mentioned that the Judges (Inquiry) Act, 1968 has
been enacted by the Parliament to regulate the procedure for the
investigation and proof of the misbehaviour or incapacity of a Judge of
the Supreme Court or of a High Court and for the presentation of an H
282 SUPREME COURT REPORTS [1991] 3 S.C.R.

address by Parliament to the President and for matters connected
A
therewith, as contemplated by Articles 124(5) of the Constitution of
India. It is in the background of these provisions that the point arising
for our determination has to be decided.

I may also at this stage refer to the recommendations made by
B the Santhanam Committee which preceded the 1964 amendment in the
Act. It is as a result of the 1964 amendment that clause (e) was inserted
in Sub-section (1) of Section 5 of the Act to make the possession of
disproportionate assets by a public servant by itself a substantive
offence of criminal misconduct, while prior to this amendment such a
provision was merely a rule of evidence contained in Sub-section (3) of
Section 5 as initially enacted which was then available only to prove
c the offence of criminal misconduct defined in clauses (a) to (d) of
Sub-section ( 1) of Section 5. In the Report of the Santhanam Commit-
tee, certain portions relating to the judiciary which may throw light on
the question before us are extracted as under:

D "SECTION 12

MISCELLANEOUS

xxx xxx xxx

E 12.2 We did not consider the judiciary to be included
in our terms of reference. Except the Supreme Court and
some subordinate courts in the Union Territories, the
Government of India have no direct relation with the
administration of the judiciary except that appointment of
High Court Judges is made by the President. It has to be
F borne in n1ind, however, that all courts in india are com-
mon to the Centre and the States and can entertain and
decide cases relating to exclusively Central subjects. There-
fore, integrity of the judiciary is of paramount importance
even for the proper functioning of the Central Government.

G Though we did not make any direct inquiries, we were
informed by responsible persons including Vigilance and
Special Police Establishment Officers that corruption exists
in the lower ranks of the judiciary all over India and in some
places it has spread to the higher ranks also. We were deeply
distressed at this information. We, therefore, suggest that the
H Chief Justice of India in consultation with the.Chief Justices
K. VEERASWAMI v. U.0.1. [VERMA, J.] 283

of the High Courts should arrange for a thorough inquiry A
into the incidence of corruption among the judiciary, and
evolve, in consultation with the Central and State Govern-
ments, proper measures to prevent and eliminate it. Perhaps
the setting up of vigilance organisation under the direct con-
trol of the Chief Justice of every High Court coordinated by
a Central Vigilance Officer under the Chief Justice of India B
may prove to be an appropriate method.

xxx xxx xxx

SUMMARY OF CONCLUSIONS AND
RECOMMENDATIONS
c
xxx xxx xxx

117. The Chief Justice of India in consultation with the
Chief Justices of the High Courts should arrange for a
thorough inquiry into the incidence of corruption, among D
the judiciary, and evolve, in consultatipn .with the Central
and State Governments, proper measures to prevent and
eliminate it. Perhaps the setting up of vigilance organisa-
tions under the direct control of the Chief Justice of every
High Court coordinated by a Central Vigilance Officer
under the Chief Justice of India may prove to be an E
appropriate method.
(Para. 12.2)

xxx xxx xxx

REPORT ON THE GOVERNMENT SERVANTS' F
CONDUCT RULES

xxx xxx xxx

Rule 15
G
15. The Committee attaches great importance to the
changes recommended in the existing Rule 15 relating to the
acquisition and disposal of property by Government ser-
vants. On the one hand, these reports serve as a check
against corruption and on the other, it may be irritating to
honest Government servants to be subject to restrictions H
284 SUPREME COURT REPORTS I1991] 3 S.C.R.
not imposed on other citizens. It is also necessary to ensure
A
that the reports are such as to serve the purpose for which
they are obtained. Further, no reports need be obtained
from those Government servants who have no opportunity
to enrich themselves by unlawful means.

B 16. The most important change made by the Com-
mittee in this rule is the replacement of the annual immov-
able property return by a complete periodical statement of
assets and liabilities. In the circumstances now obtaining in
the country, the immovable property return has ceased to
have much significance. The Committee considers that in
order to enable Government to ascertain. whether any
c Government servant is in possession of assets disproportio-
nate to his known sources of income or whether he is run-
ning into debt, it is necessary that the Government servant
should furnish a complete statement of his assets and
liabilities periodically.
D
17. The Committee considers that only the more
important items of movable property should be reported
specifically and that it would be sufficient if Government
servants report the total value of other movable property
except articles of daily use like clothes, utensils, crockery,
E books, etc. But it is essential that the value of 'movable
property should be stated in the statement of assets and
liabilities.

18. The Committee considered the argument that
there was no need for the submission of periodical returns
F of assets and liabilities and that it would be sufficient if
such a statement is given once either on entry or after
promulgation of these rules and that thereafter it should be
enough if the Government servant is required to report all
transactions in immovahle property and all transactions in
movable property exceeding a specified value. The Com-
G mittee decided to recommend that Government servants
should be required to submit a periodical statement of
assets and liabilities, as it would not be reasonable to ...
require the Government servants to report all the innumer-
able small transactions taking place continually. But as
these small transactions may cumulatively be sizable and
H have a big effect on his financial position, the purpose will
K. VEERASWAMI v. U.0.1. [VERMA. J.] 285

be served only by obtaining a periodical balance-sheet. The
A
Committee, however, considers that the reports need not
be frequent and that it may perhaps be sufficient if they are
"' • submitted once in five years .

19. Another point that was considered by the Com-
mittee was whether jewellery should be included within the B
definition of movable property. The Committee recognises
that inclusion of jewellery may be considered to be an
unnecessary intrusion into the private affairs of a Govern-

- ment servant. But jewellery constitute important assets and
if excluded from the definition of movable property, the
balance-sheet submitted by the Government servant may
c
not set out the true picture."
(emphasis supplied)

In view of the decision by a Constitution Bench in R.S. Nayak v.
A.R. Antulay, [ 1984] 2 SCC 183 the correctness of which was not
disputed before us, we have to assume for the purpose of this case that D
no sanction under Section 6 of the Act was required for prosecution of
~
the appellant since cognizance of the offence was taken after the
appellant ceased to hold the office of Chief Justice on 7.4.1976 on hiv
retirement. It was, however; contended that. for the purpose of dccid-
ing the question of applicability of the Act to the appellant as a Judge
or Chief Justice of the High Court, the office with reference to which E
the offence under the Act is alleged to have been committed, it is
necessary to cbnsider the feasibility of grant of sanction under Section

- 6 of the Act for prosecution of a person holding such an office. In other
words, the argument is that notwithstanding the fact that no sanction
was required for prosecution of the appellant after his retirement, the
need and feasibility of grant of the sanction under Section 6 of the Act F
if he was prosecuted before his retirement is the test to determine the
applicability of the Act to a person holding, the office of a Judge or
Chief Justice of a High Court. It is argued that if the grant of sanction
unde.r Section 6 of the Act for prosecution of the incumbent for the
offence is not feasible or envisaged, the clear indication is that holder
of such office does not fall within the purview of the Act. The question G
... ... of grant of sanction under Section 6 for the prosecution of a Judge or
Chief Justice of a High Court for an offence punishable under Section
5(2) of the Act is, therefore, of considerable importance to decide the
main question in this appeal.

/Clauses (a), (b) and (c) in Sub-section (1) of Section 6 cxhaus- H
186 SUPRIOMI: cdlJii.t RE:PORts [i991J 3 s.c.R..

A
Hveiy provide f& ih,y sompeieni authority to grant sanction fot prd-
secutiorl iii case of all the public servants falling within the plirview of
the Ad. ActiiHHediy, sUdi previt>us saridiori is a cciridilioll pfecedent •
Im t:ikiHg cognifailce cif ah offence ptlitisHable undet die Ad; .Of a
6tililic ~erhiilt who is prosecuted dUHng his coniinuailce ih tHe office.
Hfollows thai ihe public servant falling within the purview tit the Aci
ffiiJsi invariably fall wlthiii ori~ dHHe three clauses in Sub-sedion (i) ,of
Seetioi! 6. Ii follows that \he Holder of an oflice, eveti ihoilgli a 'piltilic
servant' attbrtliilg to the definitiOil in the Act, who does not fall within
any tlf ille dalises (a), (bj or tel df ~uli-seclioh ( 1) df SettidH 6 mUst be
held it> be dtiiside th~ purview of the Ad sirlce ihis special enattme.tit
was ncli. enilded io cover that category df public servants iiispite of the
tlefiBilioi\ of 'pl\Blk ~er\>ahi' m ilie Aci: this is Ifie tirtly tii:Hiher in
t Mae
\Vf\idi ihese provifains of ihe At! blli oe harmonized attd giverl nitl
feffed. tile sctteme o'f tke Ati is iliat a t:hi&i1c setvaiii who cmiirllits iHe
offerlce of tHiliH\al i\iisctH\dlict; as defined irl \he several ciaUses of
Sub'sectibh ( l) df Sedioli 5; can be puilislied in acccirdarice with Sub-
seclioh t2J of SedMl:l 5, aher iilvesiigatioii of itte offence in tHe
iiiahiier prescribed and Wilk tHe previous sanctiort of the competent
auihoriiy obtained uridet Section 6 of the Act, iti a trial conducted
acco\-tlii\g to the prescribed procedure. The grant of previous sanction
under Section 6 being a condition precedent for the prosecution of a
pul)lic servant covered by the Act, it inust follow that .the holder of an
l:lffice \vhd may be a public servaHi accordihg to the wide definition of
E \he expression ill ihe Aci but \Vhose category for the grani of sahctiort
fur p\-osecUiitlii is not envisaged oy Set\ion 6 of the Aci, is l:llllside ihe
purview of itte Act, ndt ihtended td be covered by the Act. this is the
only inatllie\- irt which ~ foii-'mtihious consti\utioh di tlie provisions of ,..
ihe Ati tail be mad!! for Hie plirpose of achieving the object ot iiiat
enatHllerlL Tttis appears lb be tHe obvious concltisibh evert for a case
like the preserlt where rid siicfi sanction for prosecution is necessary oh
the view. taken ih Anru/ay, anti not challenged before US, that the
sarldibn fdt prbseclliion under SediOh 6 is riot necessary \vheti cogni-
faitce of the offertce is taken after the accused has teased tb hoh:J the
office ih <JUestiotL

G In this cbritexi, ii is useful to recail the analysis of Section 6 made
in R.S. Nayak v. A.R: Anirtlay, [1984] 2 SCC 183, which is as tlilder:

"i'JffH\ce!- p'tescrived in Sections 16 i, 164 and 16) 1i>t: and
SedioH ~'Of ihe 1947 Act h~ve aii intimate and iilsejMrable
relaill:lii with the office 'Of apublic servant: A public servant
dcd1'pies office which renders him a 'public se\-'vani and
K. VEERASWAMi v. U.O.i. [VER.MA, i.l

occupying the office carries wJth it the powers conferred <1li
A
the office: Power generally is not conferred on ati inditi·
dual person. In a society governed by rule of law powet is
conferred on office or acquired by statotory status atid the
individual occupying the office or oii whom status is cotifor··
red en joys the power of office or power flowing frorn the
status. The holder of the office alone would have OJif:lcJf•
!unity to abuse or misuse the office. These sectiotts codify a
well-recognised truism that powet has the tendensy to s(Jf•
rupt. ft is the lw/dihg of the office which gives an oppot•
tunity to use ii for corrupt motives. Therefote, the CoftUPI
conduct is directly attributable and flows from the power
conferred on the office. The interrelation and itiletde·
pendence between individual and the office he holds is sub·
stantial and not severable. Each of the three clauses of sub·
section ( 1) bf Section 6 uses the expression 'offta' and the
power to graht sanction is conferred on the authority compe·
tent to remove the public servant from his office and 8<1tllcJh
6 requires a sanction before taking cognizance of offettces
committed by public servant. The offence would be comliiit•
led by the public servallt by misusing or abusing the power
of office and it is from that office, the authority must be CO/ii•
petent to remove him so as to be entitled to grant santtlo/t,
The removal would bring about cessation of interrelatltJh
be tweer! the office and abuse by the holder of the offke,
The iihk between power with opportunity to abuse and th~
holder of office would be severed by tenioval ftoni Dffke,
Therefore, when a public servant is accused of art Dffettce
of taking gratification other then legal remuheration ftlt
doing or forebearihg to do ati official act (Section i61 (ll'C)
or as a public servant abets offertces punishable under
Sections 161 ahd 163 (Section 164 !PC) or as public servant
obtains a valuable thing without consideration from pet•tlM
concerned in any proceeding or business trartsacted by such
public servant (Section 165 !PC) or commits criminal mis·
conduct as defined in Section 5 of the 1947 Act, it is tmplldt
in the various offences that the public servant has misused Of
abused 'the power of office held by him as public serVflltt,
The expression 'office' in the three sub-Clauses tlf Settltln
6( 1) would dearly denote that office which the publit
servant misused ot abused for cothipt motives for which h~
is to be prosecuted and in respect of which a santtkrn to
orosecute him is necessary by the competent authority
288 SUPREME COCRT REPORTS I 1991] 3 S.C.R.

A entitled to remove him from that office which he has
abused. This inlerrelation between the office and its abuse if
severed would render Section 6 devoid of any meaning. And
this interrelation clearly provides a clue to the understanding lo
of the provision in Section 6 providing for sanction by a
competent authority who would be able to judge the action
B of the public servant pefore removing the bar, by granting
sanction, to the taking of the cognizance of offences by the
court against the public servant. Therefore, it unquestion-
ably follows that the sanction to prosecute can be given by
an authority competent to remove the public servant from
the office which he has misused. or abused because that
authority alone would be able to know whether there has
c been a misuse or abuse of the office by the public servant
and not some rank outsider. By a catena of decisions, it has
0een held that the .authority entitled to grant sanction must
apply its mind to thfi facts of the case, evidence collected and
other incidental facts before according sanction. A grant of
D sanction is not an idle formality but a solemn and sacrosanct
act which removes the umbrella of protection of Govern-
ment servants against frivolous prosecutions and the afme- '-·
said requirements must therefore, be strictly complied with
before any prosecution could be launched against public
servants. (See Mohd. Iqbal Ahmad v. State of A.P., [1979]
E 2 SCR 1007: [197914 sec 172: 11979) sec (Cri.) 926: AIR
1979 SC 677). The Legislature advisedly conferred power
on the authority competent to remove the public servant
from the office to grant sanction for the obvious reason that
that authority aione would be able, when facts and evidence
are placed before him, to judge whether a serious offence is
F committed or the prosecution is either frivolous or specula-
tive. That authority alone would be competent to judge
whether on the facts alleged, there has been an abuse or
misuse of office held by the public servant. That authority
would be in a position to know what was the power confer-
red on the office which the public servant holds, how that
G power could be abused for corrupt motive and whether ~
~

prima facie it has been so done. That competenr authority
alone Would know the nature and functions discharged by
the public servant holding the office and whether the same
has been abused or misused. It is the vertical hierarchy bet-
ween the authority competent to remove the public servant
H from that office and the nature of the office held by the
K. VEERASWAMI v. U.0.J. [VERMA. J.l 289

public servant against whom sanction is sought which would A
indicate a hierarchy and which would therefore, per>nit
inference of knowledge about the functions and auties of the
office and its misuse or abuse by the public servant. That is
why the Legislature clearly provided that that authority
alone would be competent to grant sanction which is
entitled t~ remove the public servant against whom sane- B
tion is sought from the office."
(emphasis supplied)
(para 23, pp. 204-206)

It is significarii from the above extract in Antulay that for the
purpose of grant of sanction under Section 6 of the Act to prosecute C
the public servant, a 'vertical hierarchy between the authority compe-
tent to remove the public servant from that office and the nature of the
office held by the public servant against whom sanction is sought' is
clearly envisaged and, therefore, the authority competent to remove
the public servant from that office should be vertically superior in the
hierarchy in which the office exists having the competence to judge the, D
action of the public servant before removing the bar by granting sanc-
tion. In other words, Section 6 applies only in cases where there is a
vertical hierarchy of public offices and the public servant against whom
sanction is sought is under the sanctioning authority in that hierarchy.
It would follow that where the office held by the public servant is not a
part of a vertical hierarchy in which there is an authority above the E
public'1~rvant in that hierarchy, by the very scheme of Section 6 it can
have no application and holder of such office who does not have any
vertical superior above him in the absence of any such hierarchy can-
not be within the ambit of the enactment, the Act not being envisaged
or enacted for holder of such public office. The decisions of this Court
hav.e unequivocally held that a Judge or Chief Justice of a High Court F
is a constitutional functionary, even though he holds a public office
and in that sense, may be included in the wide definition of 'public
servant'. It is for this reason that the learned Solicitor General did not
place reliance on clauses (a) and (b) of Sub-section (I) of Section 6 in
the present case but relied on clause (c) thereof, to contend that sanc-
tion thereunder can be obtained for the prosecution of a Judge or G
Chief Justice of a High Court since the holder of such an office can be
removed from office by the President in accordance with clause (4) of
Article 124 of the Constitution. This is the only argument for this
purpose and, therefore, its tenability has to be tested.

Section 6(1)(c) provides for previous sanction 'in the case of any H
zoo SUPREME COURT REPORTS 1)9911 3 s.c.~.

pther. person, of the authority competent to remove him from his
A. pffice'. Clauses (4) and (5) of Article 124 which apply to a Judge of tJ)e
5upreme Court are made applicable to Judges of the High Courts h¥
¥irJue of Article 218. Tlhese may be re-quoted here for ready- f.. "'
f.!~ference:

"124. Establishment and constitution of Supreme Court.-
(!) ...

xxx xxx

( 4) A Judge of the Supreme 'Court sJ)all not bl'
removed from his office except by an order of tl)_e l'r.esjdel!l
passed after an address by each House of Pafliam.em
supported by a majority of the total membership of dw
House and by a majority of not less than two-thirds of the
members of that House present and voting has .b.een pre-
sented to the President in the same session for such re-
moval on the ground of proved misbehaviour or incapacit¥.

( 5) Parliament may by law regulate the procedure for
the presentation of an address and for the investigation al\<!
proof of the misbehaviour or incapacity of a Judge U!\d.er
clause (4).

xxx xxx Xl<X

218. Application of certain prov1s1ons relating to
Supreme Court to High Courts.-The provisions of clau~
{4) and ( 5) of Article 124 shal) .apply i.o relation to a H.igl)
Court as they apply i£J relation io the .Supreme O:mr,t .w~t;h
the -substitution of references to -the High Court ~or r,efe-
.rences to the Supreme Court."

According to Article 124(4), a Judge can be removed from his
.ef:tice by an order of the President passed after an address by earn
~ U-0:use of Parliament supported by the prescribed majority on ,the
g{PW:\d of proved misbehaviour or inq1pacity. Since the ocder l'f
..
'~ya! in such a case is to be made by the President, the 1.e..-Be<d
5.olicito.r General contended that the competent authority to remo:v.e
s.,1:1,<W ? J,udge as required by Section 6( 1)( c) is the President and it ~s ;i,a
tt;b.is manner tllat Se.ction 6(l)(c) is attracte.d. The qu.estion js wl).etl)_ef
H mis ,ar.gumeot is tenable.
1'hf'f!' ~H' sf'Yf'ra! f~!l~fi!'s iP this ~rnllffit!1!: §!'EliPl1 pf nc~l
we~ks of ·~u\liprjty F0Il1P!'t~nt to r~rnoyf'' \Vhich p]~inly iJ]gi~~t~s !h~
.A'
... -' subst~l]tiy~ rnil1P.nf'nFe ()f the ei+thprity to rell1ciye, not Il1ere\y !h~
procedur~! or formal p~f! of it. fn ot!J!"r \Vor~s, tne ~\ll!JPri!Y ·iise\f
~houkl be comfl~l~P! fr> remove or the on~ to decide the ~u!'st\op of
r~moval ano np\: q~ '!"hi~b merely pbeys -ff implemf'nts \he flef\siP!' gf
some other authority. This conclusion is reinforced by the above a
qtract from the Antulay decision, wqich speaks of the vertical
!iierarchy between tile authority competent to remove the public
servant and the nature of the office held by the public servant ircticat-
ing that the removing 3uthority should have the competence to take a
-c f!ecision on the ~aterial plap,.i:I pefore it far )he purpo;e pf 'cJ!'d4fog
whe\h~r the pub)ic sen•ant agai11s! WhC)Il1 5anctio11 is sough\, !J~s lJ~eiJ
.
prima fac;e guilty of flbUsf' pf !Ji~ pffj~e s[> thfll \here is C)ff~Sipp )()
c. ·
l:Jring flbout cessation of interrelatio.1 between the office an>! ~l:Juse by
\he holder of the office by his remcval therefrom. Obviqi+sly, th~
compet!'nt sanctioning aµthority envisaged thereby is a vertical
superior in the hierarchy having some power of superintendence over
the functioning of tile public servant. Where no such relatiRnsrip D
e:i<ists in the absence of ~ny vertic.~l hierarchy and the hplqer of t!i~
_. public .offic.e is a constitutionfll ful)f!ionary not subject t 0 ppwer pf
superintenc!ence of ary superior, Section 6 can have no application by
.yirtue of the scheme engrafted therein. The expression :authority
cOIT!petent to remove' under Sectipn 6( l)(c), unless consfn1ed in this
l)lanp~r, will foul \Vith the .constf!'f!iP!l m~fle on Section ~ ~Jld ifs F
Sfh.eme in the Antu/ay ~!'cision.

l'! S.P. Gupta & Ors. etc. efc. y. [Jriion ()f lnrfip ff< (.?rs. etr:. ~tr:,,
I ~9&2] 'f SCR }65 it was ~l~~rly pciintef! put that a High Calif! !!!f!ge is
~ high constitutional functionary and while dealing with th~ 9!!~~fi8ll
pf th~ machinery h~ving legal sanctiqp ta e~al with a High !JqHff Jp~ge F
agai!'sl whom allegations of lack pf fntergrity and corryptiqn >yere
made, it was st~ted as un~er: ' -

" ...... Baldly put, the question is: Shoulp an Addi-
tional Judg~ whose misbehaviour or lack of integrity h~s
come to the fore he continued as an Additional Judge or p
confirmed as a Permane~t Judge? The ~nswer at the first
impulse and rightly wmild be
in the negative but the gpes-
tion requir~s deeper co~~ideration. If th~ mi~be~ayio:Ur pr
la~k of integrity is glaringly self-evident the que~tion of l)is
continua11c~ ~bviously can~pt ~rise 11ng in all probabilities
will not engage the attention of the appointil)g 9u1hority, H
292 SCPREME COURT REPORTS I 19911 3 S.C.R.

for, the concerned Judge in such a situation would himself
A
resign but when we talk of misbehaviour or lack of integrity
on the part of an Additional Judge having come to the fore, .
by and large the instances are of suspected misbehaviour
.... .
and/or reported lack of integrity albeit based on opinions
expressed in responsible and respectable quarters and the
B serious question that arises is whether in such cases the
concerned Additional Judge should be dropped merely on
opinion material or concrete facts and material in regard to
allegations of misbehaviour and/or lack of integrity should
be insisted upon? In my view since the question relates to
the continuance of a high constitutional functionary like
,.._
the Additional Judge of High Court it would be jcopardis-
c ing his security and judicial independence if action is taken
on the basis of merely opinion material. Moreover, no
machinery having legal sanction behind it for holding an
inquiry-disciplinary or otherwise against the concerned
Judge on allegations of misbehaviour and or lack of inte-
D grity obtains in the Constitution or any law made by the
Parliament, save and except the regular process of removal
indicated in Art. 124(4) and (5) read with Art. 218 and the
Judges (Inquiry) Act, 1968. Therefore, the important ques- ·-
tion that arises in such cases of suspected misbehaviour
and/or reported lack of integrity is who will decide and how
E whether the concerned Judge has in fact indulged in any
misbehaviour or act of corruption? In the absence of
satisfactory machinery possessing legal sanction to reach a
positive conclusion on the alleged misbehaviour or an act
of corruption the decision to drop him shall have been
.
arrived at merely on the basis-of opinions, reports, rumours
F or gossip and apart from being unfair and unjust to him
such a course will amount to striking at the ruot of judicial
independence. The other alternative, namely, to continue
him as an Additional Judge for another term or to make him
permanent if a vacancy is available and then take action for
his removal under the regular process indicated in Art.
G 124(4) and (5) read with Art. 218 and Judges (inquiry) Act, ~
~
1968 may sound absurd but must be held to be inevitable if
judicial independence, a cardinal faith of our Constitution,
is to be preserved and safeguarded. Not to have a corrupt
Judge or a Judge who has misbehaved is unquestionably in
public interest but at the same time preserving judicial inde-
H pendence is of the highest public interest. It is a question of
K. VEERASWAM! v. U.O.!. [VERMA, .I.] 293

choosing the lesser evil and in inevitable course has to· be
A
adopted not for the protection of the corrupt or dishonest
judge but for protecting several other honest, conscientious
and hard-working Judges by preserving their independence;
it is a price which the Society has to pay to avoid the greater
evil that will ensue if judicial independence is sacrificed.
Considering the question from the angle of public interest B
therefore, I am clearly of the view ·that while considering the
question of continuance of the sitting Additional Judges on
the expiry of their initial term either as Additional Judges
or as Permanent Judges the test of suitability contemplated
within the consultative process under Art. 217(1) sho.uld
not be invoked-at least until such time as proper machi-
nery possessing legal sanction is provided for enabling a
c
proper inquiry against an alleged errant Judge less cumber-
some than the near impeachment process contemplated by
Art. 124( 4) and (5) of the Constitution."

(Tulzapurkar, J.) (pp. 920-21) D

" As the law now stands it is not open to. any
single individual, whether it is the President or the Chief
Justice of India or anybody else to take cognizance of any
allegations of misbehaviour or of incapacity of a Judge and
to take any legal action on their basis under the Judges F.
(Inquiry) Act, 1968. One hundred Members of the Lok
Sabha or fifty Members of the Rajya Sabha alone can
initiate any action on such allegations. Naturally, all others
are excluded from taking cognizance of them and acting on
them . ...... "
F
(Venkataramiah, J.) (pp. 1338-39)
(emphasis supplied)

Even though the above observations were made in the context of
continuance in office of Additional Judge of the High Court and the
transfer of Judges to another High Court, yet the nature of office of a G
High Court Judge and the only legal sanction available under the
existing law to deal with them even in the event of allegations of
corruption was clearly spelt out. It was pointed out that ordinarily such
a person faced with cogent material against him would resign, but in
case he does :iot, the only remedy available is his removal from office H
in accordance with clauses (4) and (5) of Article 124 read with Article
294 SURjlE~E
'
COURT REPORTS [1991] 3 S.C.R.

21~ of the Constitution till a suitable provision with legal s~ncti.on is
A
made. It was also pointed out that the object served in this manner was
the greater public interest to preserve independence of judiciary and
not to protect the corrupt Judge who was an exception. The scheme of
th' ei,:i5ting law to deal with such situations was considered at length
11nd it was also held that even the power to transfer under Article 222
of the Constitution to another High Court could not be exercised for
these reasons.

In this context, clause (5) of Article 124 is also of considerable
significance. The construction made of the provisions of the Act must
.also fit in with the scheme of clauses (4) and (5) of Article 124 read
with Article 218 of the Constitution in order (o present a harmq!)io1:1s
s~heme. Clause (5) of Article 124 enables enactment of~ 5peFi~l law
by the Parliament to regulate the procedure for present~tion of an
address and for the 'investigation' and 'proof' of the 'misbehayiour' or
inc.apacity of a Judge under clause (4). It is in exercise of this power
!hilt the Parliament has .enacted the Judges (Inquiry) Act, 1968. It is
p significant that clause (5) of Article 124 covers t!>e field of 'investiga-
tion' ap,d 'proof' of the 'misbehaviour' of a Judge. Th're can be no
doubt that the expression 'misbehaviour' is of wide irnport and
inclu~es within its ambit criminal misconduct as defined in Sub-section
( 1) of Section 5 of the Act as also lesser misconduct of a Juqge falling
short of criminal misconcjuct. The special law envisaged by Article
124(5) for dealing with tl)e misbehaviour of a Judge covers tile field o.f
'investigation' and 'proof' of the 'misbehaviour' and the onl¥ punish-
ment provided is by Article 124(4) of removal from office. There is no
escape from the cooclusion that Article 124(5) is wide enough to
include within its ambit every conduct of a Judge amounting to misbe- ...
hayiour including criminal rnis~onctuct and prescribes the procedure
F for investig'!tion aQd proof thereqf. Thus, even for the procedure for
investigatfon in~o any misbehaviour of a Judge as well as its proof, a
I.aw enact)'d by the Parliam.ent under Article 124(5) is envis.aged in the
F.onstitutional scheme. Such a law in the form of the Judges (Inquiry)
Act, 1968 ancj the rules framed thereunder has been enacted. These
pr.ovisions )Vere made in the Constitution and the law thereunder enac-
ted when the Prevention of Corruption Act, 1947 was in the Statute
J39ok. Tile prior enactment and existence of the Prevention .of Corrup-
ti.on Act, 1947 at th.e time then clause (4) and (5) of Article 124 of the
CottStitution were framed, does indicate the constitutional scheme that
.a separate parli.amentary law to deal with the investigation and prqof
pf misbehavio.ur of a Judge was clearly contemplated by providing .a
H special machinery for this category of constitutional functionaries
29;;

11otwiths(a1Jpi11g the general h1w available :in!! applif:aple to the pµb)i~
servants in general, wllich inclµ<!ec! the 1'reventi9n of Corruption A
Act, 1947. JI special provisions in th.e tw111 of ~lauses {4) al)P (5) of
Article 124 and Artide 218 of the Constitution anp the special eµact-
111ent by t.h.e Parlia111ent under Ar!icle 124(5) were provided in tJ1e
.constitutional scheme for Judges of the tfigh Courts and the Suprem.e
Court, there can be no valid reason to hold that they are governed by _ij
the gener.al provisi.ons in addition t,0 th.ese special provisions .enacti:d
only for them. The need for these special provisions Is a clear pointer ill
(he direction .of inappli_cability to them .of the general provisions
applic.ab)e to the public servan(s h.olding otl)er public offices, n.ot .as
,consti(u(~Ollal fµl).f'#Offafies. C.onstf!lciion pf Sef:)ioll 60)(,c) pql)e ACt
as sµggest._e.d b¥ ~Ji.e Ji<.amM Spli.ciwr Oeµ,eral 1:!¥ treatiµg the l'resipen.1 e
as m~·fflmPeten! a.11tl1Prity ~o r.emove a High Cpµrt Jupge woµJ4 ,011f- '
lict wi!IJ the prPvisipµs enacte.d in ,cl<tuses (4) .and (S) of 1\r(~cle 12f
read wit!) Arlicle 2 i8 ,of 1i)e Consti!11tipJl. SµcJ1 a construction IJas
undoubtedly to be ;ivoiqeij. This is more so, since the reje.ctiol) .of sµc)i

- .an argument .would npt ip any mal)p,er jeopardis.e the provisiolJS pf
the Act as it would r~11lt ,oµly in tli,e failµre cif th.e attempt to bring ti:),e ~
.constitµtion.:il fµn.eti.on,ari.es sµch as Jgdges of the High ~.oµrts and .th,e
Supreme C.ourt within 1the pµryiew of that Act, while the A~t would
i::on~i11µ.e tp appl¥ (o tlll' p~lif sl'f¥.ants in l'eneral w/.J.p fall will)in the
~.ell).e ,of Se.c.tie11 f:i .of tli.e A.ct (or tl)e pµrpose pf graM .ol' pri;vio.us
sa11ct~o11 for prose,cµtipn -whirzl! is ii ,com;li!~on pre!'<'.dem for .Cf>g!/iPmce
of a11 pl{en;;e pm:iis.hab~e .,ull.<!ler !PW A..ct· 13-

It qn als.o not b.e oyerioo:ked 1t/la( .the Sa'llh.al).am -!=ommi.tt.e.e
~p,ort ,did not i::o11.sider ~he i.u.<!~ciar¥ within its purvi,ew 1tn,d it mer.e!r
mad.e i::er:u,1.jn recommm.<:ta!i-.ons to .devise a m:;i.1>hiner¥ ipyplving t!he
QAef Jµsti!'e pf in di,a ttO ,d,e,a,l ,w~th ,tl\e ,cas.!'s .Of ,erran; Jµ_cjges. The W64
11m_en.dment m,(lde iii !he ~!':I IWf'i##lll :to ffl,e rewmmel\illl.tipns of tl).e f
S.an(l;I<LOam Co.mmittee ,did ..iot m.;i:Ke <LOY ,amell,dmel){ in tll.e AP tg
jnpicate that Jµdges .of 1lt1.e ffigh ~:-1wr1s <LOd the Suprem,e ·~Ol)fl "fer!'
also brought ;w.ivhi)l ,t);ie p,uwi"'w pf :t~e A.ct. ~t w.as -there.after -that ·tl!,e
J,uc;lges (Inquiry) Act, [~63 an,d th.e r.ules fram,ed th,er.eul1d.er .we.re
epac,t.ed to pr.oyide for 1tb..e inyestigation al)d proof .of all.egatkms of
misb,e,hay~our .of ,a.:l,u.cJge iP accordan.ce ,wjth A.fticle 124(5) of the Con- g
> ...
sit·i~WiP.n· T.J;i,e .d.ecision in 15.P. ,Guptq .w.as rend.erect mupl) later ,an_<!
,whil.e dealing -witb th,e si(.uM~o.ns .arising ,out ,of all.egatio11s 0 f mis!>e--
h,aviour •il)cludjng c;orr,u,ptiol). ,agaiQ.st High Cp,ur; J,udges, it was l:i.el,d
tJ1.a.t the ,only machinery .w;jt)l l~gal s.anc~~Ol) in. ex.ists:l).ce is tha.t aya;i)-
!lh)~ ~N\el" 1>1.aus~ ,( 4) an.d (Sj «if ~r#,cle ~2~ .of ttlJ,e {:,q,ns,ti,Wtipn. ~tis
0,easonah.le to .assume that ,-yhi\e .rendering tn.e decision in 15. P . .(juptq, H
296 SCPREME COURT REPORTS [ 1991] 3 S.C. R.

wherein the question of dealing with some Judges against whom alle-
A
gations of lack of integrity and corruption also were made and the
question was of the machinery available for dealing with them, the
learned Judges could not have been unaware of the provisions of the .
Act while taking the view that the only legal machinery available "
under the existing law is that in accordance with clauses (4) and (5) of
B Article 124 of the Constitution. These are strong reasons to hold that
Section 6(1)(c) of the Act is inappliable to a Judge of a High Court or
the Supreme Court and for that reason such constitutional functiona-
ries do not fall within the purview of the Act.

An additional reason indicating inapplicability of the Act is the ~
practical difficulty in applying criminal misconduct, defined in clause
c ( e) of Sub-section (I) of Section S of the Act, to a Judge of a High
Court or the Supreme Court. The history of insertion of this clause by
the 1964 amendment to the Act is well-known. What was earlier a rule
of evidence in Sub-section (3) of Section 5 of the Act, was made a
substantive offence of criminal misconduct by inserti"ng clause (e) in
D Sub-section ( 1) of Section 5 by this amendment. Apart from the argu-
ment of the learned counsel for the appellant that the inability to
satisfactorily account for possession of disproportionate assets is an
'--
ingredient of the offence in clause (e), practical requirement of this
clause is a further pointer to indicate inapplicability thereof to a Judge
of a High Court or the Supreme Court. The fact remains that while
E according sanction to prosecute under Section 6 of the Act, the compe-
tent authority has to satisfy itself about the public servant's inability to
satisfactorily account for possession of disproportionate assets. As
held in Antulay, the competent authority before granting sanction has
to apply its mind and be satisfied about the existence of a prima facie
case for prosecution of the public servant on the basis of the material
F placed before it. In order to form an objective opinion, the competent
authority must undoubtedly have before it the version of the public
servant on the ba<is of which the conclusion can be reached whether it
amounts to satisfactory account or not. It is we-11-known and is also
clear from the Report of the Santhanam Committee that the rules
applicable to the public servants in general regulating their conduct
G reg uire them to furnish periodical information of their assets which
form a part of their service record. The recommendations of the ~ •
Santhanam Committee after which the 1964 amendment inserting
clause (e) in Sub-section (1) of Section 5 was made, suggest some
amendment to the rules governing the conduct of public servants for
giving periodical information of all their assets. Prescribing the sub-
H stantive offence by insertion of clause (e) as a part of the same scheme
K. VEERASWAMI v. U.0.I. [VERMA, J.[ 297

of amendment also suggests the manner in which this requirement of
A
the offence of inability to satisfactorily account can be examined by the
competent authority while granting sanction to prosecute the public
" ./
servant. These words in clause (e) have to be given some meaning
which would place the burden on the prosecution, howsoever light, to
make out a prima facie case for obtaining sanction of the competent
authority under Section 6 of the Act and this can be done only if it is B
read as a part of the scheme under which the public servant is required
to furnish particulars of his assets with reference to which the dispro-
portion and his inability to satisfactorily account can be inferred. This

... requirement can be easily satisfied in the case of public servants gover-
ned by conduct rules requiring them to furnish periodical returns of
their assets and to intimate the superior in the hierarchy of acquisition
of every materia) assets, so that his service record at all times contains
c
particulars of his known assets. In the case of such public servants
whenever sanction to prosecute is sought under Section 6 of the Act,
the competent a_uthority can form the requisite opinion on the basis of
the available material including the service record of the public servant
to come to the conclusion whether the. offence under clause (e) of D
possession of disproportionate assets which the public servant cannot
_J satisfactorily account is made out prima facie In the case of Judges of
the High Courts and the Supreme Court, there is no such requirement
under any provision of furnishing particulars of their assets so as to
provide a record thereof with reference to which such an opinion can
be formed and there is no vertical superior with legal authority enabl- E
ing obtaining of information from the concerned Judge. It does appear
that this too is a pointer in the direction that even af~er the 1964
... amendment of the Act following the Report of the Santhanam Com-
mittee when clause (e) was inserted in Sub-section (1) of Section 5 of
the Act, the Legislature did not intend to include Judges of the High
Courts and the Supreme Court within the purview of the enactment. F

If the Act is applicable to Judges of the High Courts and the
Supreme Court, it is obvious that the same !Pust apply also to the Chief
. Justice of India, the Comptroller and Auditor General and the Chief
Election Commissioner. Incongruous results would follow in such an
.... 4
event, even assuming that the guidelines suggested by the learned
Solicitor General, are deemed to be incorporated in the Act by impli-
G

cation while dealing with persons holding these offices. Apart from the
legal permissibility of implying these guidelines in the Act, there are
obvious practical difficulties which cannot be overcome. In the pro·
posed guidelines, it was suggested that the. involvement of the Chief
Justice of India invariably should be read even for commencing the H
SUPREME CbURt R:El'bluS 119lJi} 3 S.C.R.

lrivestigati611 irito the offence and the President, while granting the
sanction uiti:ler Seciioti 6(l)(c), would also act on ihe advice of the
Cliief JusiiCe of Iridia. Assuming that it is t'ertnissible io do so in the
a~sence of ahy sueit pwvisiori in the Act, the problem which stares us
ill !he face is, \Vhai is l.o lie ddne where such action is contemplated
agilittst the Chief 1itstice cif India himself. Any provision which cannot
appiy td the Chief JustiCe of 1ndia, cannot obviously apply to the
itidges of the Supreme Col!d; or fot that matter even to the I-iigli
toitrt iutlges, sitlte the Chief JtJstice of India is not a vertical superior
tJf atty tJf tlierii, thete being tto sUcii vertical hleratchy and the Chief
Justice of 1ndla having !lb power of siipetinterldence evet1 over the
High Coiirt fodges, much less the Supreine Court Judges: The incum- ...
bent of the dfflce of Chief Jusiice of lhdia exercises only moral autho-
t tiiy ti\let his colleagues lh the Stiptefue Court arid the High Court
Judges, which has ho iegai sanction behind it making ii jtlsticiable. In
!he case of the Cortipttoilet arid AuditOt Oetieral atid the Chief Eiec'
lion toinihissitJiiet; !he situaiiott would be mote piquant. Obviously,
the Cliiet Justice ot ittdia tahnot be involved in the process relating to
Jj ttteih ahd there is t1oi1e else. ttl fili that role in that situation. The
tonstitutitJt!, while providing that their position would be akin to that
of a Judge of the Supreme Court, coitid not have intended to place
ihein on a pedestal higher than that of a Supreme Court Judge. The
irifirlility of this argument advanced by the learned Solicitor General
invoking the aid of certain implied guideline's ittvolviitg the Chief
E Justice of Ifltlia iti ihe process of coiitemplated action under the Act
a~ainst a Judge of the High Court or the Stipreine Court, ieaves inore
tjtiestioi1s urtanswered that it attswers. That apart, if the Act was
IIHerided to apply to these ctJttsiiiuiidnal futtctionaries, it could not
have been eliacieti leaving sttcll gaping holes which are incapable of
..
being plugged td !Jresent a comprehehsive scheme for this purpose.

it Was aiso suggested at the hearing that the absence of need of
Mlictiort fot j:frosebllioh under Section 6 of the Act after the public
setvarit ceases td hoid tiffice as held in Antulay, suggests answer to the
qUestion of tonstrtlction posed in this case. It does not appear to be so.
the heed for sanctidh llrtder Section 6 fdt prosecution of the holder of
b a public office indicates the ariibii and scope of the enactment fot
•
deciding wheiher the holder of a public office falls within the purview
of the ehadinent. No doubt, as held in Anrufoy, no sanction for pro-
secution under Sectiorl 6 is required aftet the public servant ceases to
hblti tiffke, blii it does tlol lmpiy ihat every holder of a public office
after tdsing lo hold that office is wiittii1 tile fllltview of tHe eliactrrlertt,.
1-1 e\iett th\Jligh doting the tertute ih tiffice, only those p\J\Jtic servants ate
k. VEERAswANii v. lJ iJ i iVERMA, J I

wilhiii iis ambit in whose case saHetioil uhdet Section 6 tlltisi .be
dbtairled. THe atribit of the enactment is to be determined dh the basis
dt Hie pul:liic office held by ihe piiblit servant, wkiCh office is alleged id
liave lieeh abused diitilig the ientire for cotliiiiihing the offence di
criihirial itliscoridiid Uhder tile Ad and ii is iidt Hie fati bl cci!UifiUaHce
iH !Hat office or ceasirlg to hold it which decides tlie aml:Hi of ike
eiiaetfueliL 1H other wdrds, if tile holder of a puiiiic dffice dUfilig ills
ieHUfe i11 bffice ciiiliiot be pit:lSecti\ed without sanci:idri lilidet sedioh 1l; ilieH;
as heid in Aniulay, i\o sandioh for his prcisectitiori after ceaSihg ill hold
tile office riiay he necessary, but his prosectitidil Is made because While
iii office he touiti lie pfosecUieti Wiih the previbtis sanction .Undet
SeCtion 6.. tdnversely, ihhe holder of .a public bfflce while cotHiiiUih~
iH that office toUld ncii be prosecuted Uhder this Act dh accoliht of
iiiappiicabiiity cil Seciioh 6 aha, thetefote, the nciii-feasii:i!H!y of pre-
e
vioi.ls saiicticiii fer ptdsecUtltiri uiirler Seciiorl 6, then ci.n his ceasing tb
ktJld !lie office, lie is i!bt tlhillght wiiiiih ihe purview of the Ac! ittereiy
l:ietallse Antuiay decides ihai ho satlction for prdsecu!iorl under
setlitJn 15 is rieedect after th~ holder ol a public bffice ceases to holtl
ihat oHice. ii is fdr<ihe pUrjJtlse of tbrlsttuirtg the pro\iislbns of tHe
etiadHleiii and determining the scope and ambit thereof and for tiedd-
i11g whether tke holder of a public office comes withiti ihe purview ot
ike erlacti!ie11i \hat ihe feasibility df previous sanction for prosecutioti
anti appiicability bf Setiiciri 6 df the Aci Is impdrtaiiL lh short; It is for
the pllrpbse of cdlisttuctloii of itte provisions of the enactinerii ailti
detehiiitlillg its scdpe ilfat Sectitiii ll which prescribes the coridiiitlii
pretetieHt of previdlls sarldioh for prosecution fot !lie offettt:e of criiiii-
ilai misfoHt!Uti pi.lnisbabie under Settion 5(2) bf iiie Act, holds the key
whicii urliocks ihe iHle vistas of ihe enactrtlerlt .
•
The cbrice~t of sanction for prosecuiion lly a siipebor is sd ih'el<-
hicably woven irttb ilie fabric of the enactment that the paderri is Ji
irifothplete without ii. tlie Cleat legislative irtteni is \hat the enactment
applies tiiliy to those Iii whose tase sanction of this kihtl is toritethp-
lated ailtl thbse to wliorli ihe provision of saiictiori carlhbi squardy
apply are blltside its ambit. tiie provision for sanction is like lile
keysttiHe iii Hie arch of the eHactmerli. Remove ihe keystone of sant-
ticiil arid the arch cruiribles. t
. .the cortc!Usioll ihal. ihe Act does not apply to ihese cohsiihi-
liottiil tUHclitiihiries; namely, Judges of the High toiiris; illtiges tif \lie
~lipreme biUrl, itte totnptroller and Addilot tlenefal ailtl Ille tlllef
Eleciitiil toihffiiSsii:ltier; need no\ be viewetl wiili st.e"Htislli 'of if.eatetl
as ti-lefr eitdusioil horn ihe purview of tlie Act as if they are ortliilaHly H
300 SUPREME COURT REPORTS [1991] 3 S.C.R.

within its ambit. A proper perception would indicate that these con-
A
stitutional functionaries were never intended to fall within the ambit of
the Act as initially enacted in 1947, when provisions similar to Articles
124(4) & (5) of the Constitution were present in the Government of
India Act, 1935, nor was any such attempt made by amendment of the
Act' in 1964 subsequent to the Report of the Santhanarr: Committee
B and the same position continues in the Prevention of Corruption Act,
1988. If there is now a felt need to provide for such a situation, the
remedy lies in suitable parliamentary legislation for the purpose
preserving the independence of judiciary free from likely executive
influence while providing a proper and adequate machinery for
investigation into allegations of corruption against such constitutional
functionaries and for their trial and punishment after the investigation.
c The remedy is not to extend the existing law and make it workable by
reading into it certain guidelines for which there is no basis in it, since
the Act was not intended to apply to them. The test of applicability of
the existing law would be the legal sanction and justiciability of the
proposed guidelines without which it is unworkable in the case of such
D persons. In fact, the very need to read the proposed guidelines in the
existing law by implication is a clear indication that the law as it exists
does not apply to them. Making the law applicable with the aid of the
suggested guidelines, is not in the domain of judicial craftmanship, but
a naked usurpation of legislative power in a virgin field.

E It appears that the framers of the Constitution, while dealing
with such constitutional functionaries, contemplated merely their
removal from office in the manner provided in Article 124(4) as the
only punishment; and a special law enacted by the Parliament under
Article 124(.5), even for investigation and proof of any misbehaviour
.
alleged against a superior Judge instead of the general law was clearly
F visualised when the alleged misbehaviour is connected with his office.
A charge of corruption against a superior Judge amounting to criminal
misconduct by abuse of his office would certainly fall within the ambit
of misbehaviour contemplated under Article 124(5), since misbeha-
viour of a Judge in the form of corruption by abuse of his office would
be an act of gross misbehaviour justifying his removal from office,
G irrespective of other legal sanction, if any, to punish a corrupt Judge.
It cannot be imagined that the framers of the Constitution provided for
removal of a superior Judge on lesser grounds of misbehaviour but nor
for the gross misbehaviour of corrupt;on. There is no escape from the
conclusion that the gross misbehaviour · f corruption of a Judge must
undoubtedly fall within the ambit or Article 124(5) justifying his
H removal in the manner provided in Article 124(4). Article 124(5) con-
K. VEERASWAMI v. U.0.1. [VERMA, J.[ 301

templates a special law enacted by the Parliament even for investiga-
A
tion into any allegation of misbehaviour which must include an allega-
tion of corruption. Can it, therefore, be said that while investigation
into the allegation of corruption for the purpose of removal under
·~
.,, Article 124(4) needs a special law made by the Parliament under Ar ti-
cle 124(5), it is not so for his prosecution which can be made under the
provisions of the existing Prevention of Corruption Act? It appears B
that the framers of the Constitution did not contemplate the need for
prosecution of a Judge at that level and expected that asuperior Judge
would resign if faced with credible material in support of allegations of
misbehaviour, and in case he did not resign, his removal under Article

-
124(5) would be suffecient to deal with the situation. The need for his
prosecution was not visualised and, therefore, not provided for in the
existing law. The Act had already been made when the Constitution c
was framed and the amendment made in the Act in 1964 was after the
experience for some time of the functioning of the judiciary under the
Constitution. It is siguificant that even the Judges (Inquiry) Act, 1968,
was enacted under Article 124(5) of the Constitution much later and
after the 1964 amendment of the Act. The fact that the Parliament did D
not enact any other law even then for the investigation into allegations
of corruption against a superior Judge and for his trial and punishment
for that offence and rest content merely with enacting the Judges
_,
(Inquiry) Act, 1968, to provide for the procedure for removal of a
Judge under Article 124(4) is a clear pointer in the direction that the
Parliament has not as yet considered it expedient to enact any such law E
for the trial and punishment on the charge of corruption of a superior
Judge, except by his removal from office in the manner prescribed. It
may also be noticed that the provisions of the Judges (lnq,lliry) Act,
1968, provide the procedure for investigation and proof of an allega-
tion of corruption against a· superior Judge and if the Prevention of
Corruption Act is held applicable to them, then there would be two F
separate procedures under these two enactments providing for investi-
gation into the same charge. Can this anomaly and incongruity be
attributed to a conscious act of the Parliament while enacting the
Judges (Inquiry) Act, 1968, after the 1964 amendment in the Act.

Maybe, need is now felt for a law providing for trial and punish- G
ment of a superior Judge who is charged with the criminal misconduct
' ~
of corruption by abuse of his office. If that be so, the Parliament being
the sole arbiter, it is for the Parliament to step in and enact suitable
legislation in consonance with the constitutional scheme which pro-
vides for preservation of the independence of judiciary and it is not for
this Court to expand the field of operation of the existing law to cover H
302 SUPREME COURT REPORTS [1991] 3 S.C.R.

the superior Judges by usurping the legislative function of enacting
A
guidelines to be read in the existing law by implication, since without
the proposed guidelines the existing legislation cannot apply to them.
Such an exercise by the Court does not amount to construing an ambi-
guous provision to advance the object of its enactment, but would be
an act of trenching upon a virgin field of legislation and bringing within
8 the ambit of the existing legislation a category of persons outside it, to
whom it was not intended to apply either as initially enacted or when
amended later.

In this context, it would not be out of place to mention that this

c
unfortunate situation has also another dimension. The framers of the
Constitution had visualised that the constitutional scheme for appoint-
ment of the superior Judges would ensure that by an honest exercise
performed by all the constitutional functionaries of their obligation in
the process of appointment of a superior Judge, there would be no
-
occasion to try and punish any appointee to such a high office for an
act of corruption. Appointment of supeiior Judges is from amongst
0 persons of mature age with known background and reputation in the
legal profession. By that age the personality is fully developed and the
propensities and background of the appointee is well known. The cel-
lective wisdom of the constitutional functionaries involved in the pro-
cess of appointing a superior Judge is expected to ensure that persons
of unimpeachable integrity alone are appointed to these high offices
E and no doubtful persons gain entry. In the case of any late starter or an
exception, the power of removal in accordance with Article 124(4) by
adopting the procedure prescribed under Article 124(5) was expected
to be sufficient to eradicate the exceptional menace while preserving
independence of the judiciary. If this scheme is found to be inadequate
in the present context, it is also indicative of the failure of the constitu-
F tional functionaries involved in the process of appointments in fulfil-
ling the confidence reposed in them. It is not unlikely that the care and
attention expected from them in the discharge of this obligation has
not been bestowed in all cases. The need for such a legislation now
would, therefo~e, not be entirely on account of the absence of it so far,
but also due to the failure of proper discharge of this constitutional
,G obligation and not any defect in the constitutional scheme. It is, there-
fore, time that all the constitutional functionaries involved in the pro-
cess of appointment of superior Judges should be fully alive to the
serious implications of their constitutional obligation and be zealous in
its discharge in order to ensure that no doubtful appointment can be
made even if sometime a good appointment does not go through. This
H is not difficult to achieve. lhe working of the appointment process is a
K. VEERASWAMI v. U.0.I. [VERMA, J.] 303

matter connected with this question and not divorced from it. Most
A
often, it is only a bad appointment which could have been averred that
gives rise to a situation raising the question of the need of such a law.
Due emphasis must, therefore, be laid on prevention even while taking
curative measures ..

It is a sad commentary on the working of the appointment pro· B
cess and the behaviour of some of the appointees which has led to this
situation. The confidence reposed in them by the framers of the Con-
stitution has been betrayed to this extent. It was expected that the
superior Judges who were constituted into a different class and created
as superior morally not needing the deterrence of such a law to punish
them would be alive to the need of a high code of conduct regulating
-~

their behaviour justifying the absence of such a law for them. It was c
reasonable to further expect that the aberrations, if any, in their rank
would be subject to the moral and social sanction of their community
ensuring that they tread the right path. The social sanction of their
own community was visualised as sufficient safeguard with impeach-
ment and removal from office under Article 124(4) being the extreme D
step needed, if at all. It appears that the social sanction of the com-
munity has been waning and inadequate of late. If so, the time for legal
sanction being provided may have been reached. No doubt for the
judicial community in general it would be a sad day to become suspect
needing such a legislation to keep it on the right track. However, that
is the price the entire community has to pay if its internal checks in the E
form of moral and social sanction are found deficient and inadequate
to meet the situation which legal sanction alone can prevent. It is for
the Parliament to decide whether that stage has reached in the
superior judiciary when legal sanction alone can be the remedy for
,. maintenance of public confidence in the integrity of the superior
judiciary without which independence of the judiciary would itself be F
in jeopardy.

The view that Judges of the High Courts and the Supreme Court
are outside the purview of the Prevention of Corruption Act, fits in
with the constitutional scheme and is also in harmony with the several
nuances of the entire existing law relating to the superior Judges while G
the contrary view fouls with it at several junctures and leaves many
gaping holes which cannot be filled by judicial exercise. The patch·
work of proposing guidelines suggested by the learned Solicitor
General apart from being an impermissible judicial exercise, also does
not present a complete and harmonious picture and fails to provide
answers to several obvious querries which arise. The inescapable con- H
304 SUPREME COURT REPORTS [1991] 3 S.C.R.

clusion, therefore, is that the Prevention of Corruption Act, 1947, as
A
amended by the 1964 amendment is inapplicable to Judges of the High
Courts and the Supreme Court. Jurisprudentially this conclusion need
not be anathema as stated in 46 Am. Jur. 2d. s. 84:-

"In the absence of a statute, misfeasance of a judicial
B officer is not a criminal offence, impeachment being the
exclusive remedy."

These words summarise the true legal position in the case of superior
Judges who are separately classified in the constitutional scheme itself.

There is nothing strange about the above view since the scheme
c in some other countries also appears to be the same. In recent years in
some countries, there were instances which provoked a strong debate
on the subject and different remedies were advocated to deal with the
situation. It may be mentioned that instances of punishment for cor-
ruption in earlier centuries including the indictment of Lord Bacon is
D not apposite for the reason that the situation then was not akin to the
scheme in the Indian Constitution for the judges of the High Courts
and·the Supreme Court and the protection given to them for ensuring
the independence of judiciary.

As indicated earlier, while adopting curative measures for the
E malady, a renewed emphasis on its prevention in the future has to be
borne in mind. In this context, it is useful to recall the high esteem in
which the higher judiciary was held by the prime builders of our nation
in its nascent stage. In a letter dated 18th December, 1947, to the
Prime Minister, Pt. Jawaharlal Nehru and the Deputy Prime Minister,
Sardar Vallabhbhai Patel, the ffrst Chief Justice of free India said:
F
"Under the Constitution Act, provisions can be made
for the appointment, the salary, pension, leave and
removal of the judges. In addition to that, I think it will be
desirable to insert a provision under the Act, or to frame
statutory rule under the Act, defining the relations bet-
G ween the judiciary and the executive. All communications
in respect of the appointments and the grievances, if any,
of the judges should come from the Chief Justice of the
provincial High Court, through the Governor and not through
the Home Department of the province. I recognise that the
Governor-General or the President, who will be an elected
H person, will have to consult the Cabinet according to the
K. VEERASWAMI v. U.0.I. \VERMA, J.l 305

Rules of Business framed for working the Central Govern-
A
ment. It seems to me, however, fundamentally essential
that the High Courts, the Federal Court and the Supreme
Court (when established) should not be· considered a part
of, or working under, any department of the executive
Government of India. It should be an independent branch of
the Government in touch directly -with the Governor-. B
General or the President of the Dominion of India.

I am sure the Cabinet will agree to the principle of
keeping the judiciary free from the control of the execu-
tive. The duty and credit for maintaining this high tradition
is on the Government in existence when the Constitution
and the statutory rules are framed, and I have written this
c
to you confidently hoping that you share my desire to safe-
guard the dignity and independence of the judiciary and will
do the needful in the matter."

Sardar Vallabhbhai Patel promptly replied to the Chief Justice of India D
saying 'your views will be very helpful to us in dealing with the
subject.'

(Sardar Patel's Correspondence, 1945-50, edited by Durga
Das, Vol. VI, pp. 274-76)
E
The framers of the Constitution had visualized the higher eche-
lons of the judiciary as comprised of men of strong moral and ethical
fibre who would provide moral leadership in the society of free India
and function as the sentinel of the other wings of the State not needing
scrutiny themselves. Our Constitution provides for separation of
powers of the three wings of the State with judicial review as one of the F
essential tenets of the basic structure of the Constitution. It is thus the
judiciary which is entrusted with the task of interpretation of the Con-
stitution and ensuring that the other two wings do not overstep the
limit delineated for them by the Constitution. With this duty entrusted
to the higher judiciary, it was natural to expect that the higher
judiciary would not require any other agency to keep a watch over it G '
and the internal discipline flowing from the moral sanction of the
community itself will be sufficient to keep it on the right track without
the requirement of any external check which may have the tendency to
interfere with the independence of the judiciary, a necessary con-
comitant of the proper exercise of its constitutional obligation. It is for
this reason that the higher_ judiciary was treated differently in the H
306 SUPREME COURT REPORTS I 1991] 3 S.C.R.
A Constitution indicating the great care and attention bestowed in pre-
scribing the machinery for making the appointments. It was expected ' .
that any deviation from the path of rectitude at that level would be a
rare phenomenon and for the exceptional situation the provision for
removal in accordance with clause (4) of Article 124 was made, the
difficulty in adopting that course being itself indicative of the rarity
B
with which it was expected to be invoked. It appears that for a rare
. aberrant at that level, unless he resigned when faced with such a situa-
tion, removal from office in accordance with Article 124(4) was
envisaged as the only legal sanction. If this was the expectation of the
framers of the Constitution and their vision of the moral fibre in the
higher echelons of the judiciary in free India, there is nothing surpris-
c ing in the omission to bring them within the purview of the Prevention
of. Corruption Act, 1947, or absence of a similar legislation for them
alone. Obviously, this position continued even during the delibera-
tions of the Santhanam Committee which clearly mentioned in its
Report submitted in 1964 that it has considered the judiciary outside
the ambit of its deliberations. Clearly, it was expected that the higher
D judiciary whose word would be final in the interpretation of all laws
including the Constitution, will be comprised of men leading in the ,_
spirit of self-sacrifice concerned more with their obligations than
rights, so that there would be no occasion for anyone else to sit in
judgment over them. If it is considered that the situation has altered
requiring scrutiny of the conduct of even Judges at the highest level.
E and that it is a matter for the Pe.rliament to decide, then the remedy
lies in enacting suitable legislation for that purpose providing for safe-
guards to ensure independence of judiciary since the existing law docs
not provide for that situation. Any attempt to bring the Judges of the
High Courts and the Supreme Court within the purview of the Preven-
tion of Corruption Act by a seemingly constructional exercise of the
F enactment, appears to me, in all humility, an exercise to fit a square
peg in a round hole when the two were never intended to match.

I would, therefore, allow the appeal even though by the majority
view it must fail.
G ORDER

In view of the majority judgments, the appeal is dismissed.

R.P. Appeal dismissed.