Holding

The petitions lack merit; the Court cannot compel the Revenue to appeal, cannot interfere with the High Court’s appointment of the Special Judge, and cannot cancel the bail, thus dismissing the writ petitions.

Summary

The Supreme Court heard writ petitions filed as public‑interest litigation by two MPs alleging that former Bihar Chief Ministers Lalu Prasad Yadav and Rabri Devi had unduly influenced the transfer of an Income‑Tax Appellate Tribunal member, the appointment of a Special CBI Judge, and the change of public prosecutors in the fodder‑scam case, and that the Revenue Department had failed to file appeals under Section 260A of the Income‑Tax Act. The Court found the allegations unsubstantiated, held that a third party cannot seek a writ of mandamus to compel the Revenue to file an appeal, that the High Court’s appointment of the Special Judge falls within its constitutional domain and cannot be challenged in collateral proceedings, and that there was no basis to cancel the bail of the accused. Consequently, the petitions were dismissed, but the Court directed the Patna High Court to re‑examine the posting procedure of the Special Judge and the Union to reconsider the decision not to appeal the ITAT orders.

Issues considered

Whether the writ petitions filed as public‑interest litigation are maintainable.
Whether the Court can issue a writ of mandamus directing the Revenue to file an appeal under Section 260A of the Income‑Tax Act.
Whether the appointment and transfer of the Special CBI Judge can be challenged by a third party.
Whether the bail granted to the accused can be cancelled on the pleadings made.
Whether the trial in the fodder‑scam case can be monitored by the Supreme Court.

Legislation cited

Code of Criminal Procedure, 1973s. Section 173(8)
Constitution of Indias. Article 233, s. Article 235, s. Article 32
Income Tax Act, 1961s. Section 131, s. Section 131(IA), s. Section 148, s. Section 149, s. Section 260A, s. Section 273A
Prevention of Corruption Act, 1988s. Section 109 IPC, s. Section 13(1)(e), s. Section 13(2)

Subjects

public interest litigationmandamusappointment of judgesspecial judgebail cancellationIncome Tax Appellate TribunalSection 260APrevention of Corruption Actfodder scamjudicial reviewlocus standi

Judgment

A RAJJV RAN JAN SINGH 'LALAN' AND ANR.
v.
UNION OF INDIA AND ORS.

AUGUST 21. 2006.

B [K.G. BALAKRISHNAN. DR. AR. LAKSHMANAN AND S.H. KAPADIA,JJ.]

Constitution of India, 1950:

Articles 32 and 235-Writ of mandamus-Case under provisions of
C Prevention of Corruption Act for acquiring disproportionate assets pending
against two former Chief Ministers-Cases arising out of Fodder Scam pending
before Special Judge-Revenue not filing appeals in income tax cases decided
by ITAT in favour of the two Chief Ministers-Writ petition as public interest
litigation by two MPs alleging the said two former Chief Ministers using
D their power and influence in transfer of Member. !TAT earlier hearing their
appeals-Transfer of Prosecutor in Prevention of Corruption Act case-
Transfer of Special Judge and appointment of another officer in his place-
Prayers for direction to Revenue to file appeals against decision of ITAT-
Direction to High Court to re-consider appointment of Special Judge-To re-
appoint the same prosecutor-Trial pending before Special Judge to be
E monitored by Supreme Court and to cancel bail of the two former Chief
Ministers-Held, Per Majority (Kapadia, J dissenting), the prayers sought
for in the writ petitions cannot be allowed and the writ petitions being
without merits are liable to be dismissed-Public Interest Litigation-
Prevention of Corruption Act, 1986-ss. 13(/)(e) and 13(2)-fncome Tax
F Act-s.260-A.
A large scale defalcation of public funds of crores of rupees in the
Department of Animal Husbandry in the State of Bihar came to light during
the tenure or respondent No. 5 as Chief Minister of Bihar. The petitioners,
who were Members of the Parliament, filed a writ petition in the Patna High
G Court. Another writ petition was filed in the Supreme Court. Consequently,
several cases were registered by the police and the investigation was
entrusted to the Central Bureau of Investigation. The Supreme Court directed
...
that the investigation would be monitored by a Division Bench of the Patna
High Court. The State Government was asked to assign adequate number of

H 742
RAJIV RANJAN SINGH 'LALAN' v. U.O.l. 743
Special Judges to deal with the cases expeditiously. Later a case under the A
provisions of the Prevention of Corruption Act was registered against
respondent No. 5, on the allegations that he, as Chief Minister of Bihar, had
acquired assets disproportionate to his known sources of income. Respondent
No. 4, the wife of respondent No. 5, who also became Chief Minister of Bihar
later, was also charge-sheeted in the said case for abetment u/s 109 IPC read
with ss.13(1)(e) and 13(2) of the Prevention of Corruption Act. The case was B
numbered as Special Case No. 5/1998 and was pending in the Court of Special
Judge, Patna.

The petitioners filed the present writ petitions as public interest
litigation alleging that certain income tax appeals of respondent nos. 4 and 5 C
were pending before the Income Tax Appellate Tribunal; the Member who was
hearing the appeals was sent on deputation; the Bench comprising new
Member decided the case in favour of respondent nos. 4 and 5 and the Revenue
did not file any further appeal in those matters; that when the Special Case
no.5/1998 pending before the Special Judge was at the final stage of hearing,
the Prosecutor was changed and another person who had no experience of D
conducting prosecution was appointed; that the Special Judge, CBI who was
hearing the fodder scam matters, was transferred and another Special Judge
was nominated, who was having a poor record and was not senior to be
appointed as a Special Judge. It was submitted that respondents no. 4 and 5
still wield influence and power and, therefore, the Supreme Court should E
monitor the trial pending before the Special Judge, Patna; and the bail granted
to them should be cancelled.

It was contended for respondent nos. 4 and 5 that filing of the writ
prtitions was a politically motivated move to malign them~ It was submitted
that both the petitioners were not in any way connected with case No, 5/1998 p
filed against respondent nos. 4 and 5; it was a criminal litigation exclusively
between respondent nos. 4 and 5 and the State, and in a case of this nature,
nobody else got any right to interfere specially by way of public interest
litigation. It was a!so submitted that the trial could not be conducted because
of the present public interest litigation.
G
Dismissing the writ petitions, the Court

HELD: (Per Balakrishnan, J)

I. I. The allegations made by the petitioners that there were serious
ir".'egularities in disposing of the income tax appeals of respondent nos. 4 and H
744 SUPREME COURT REPORTS (2006] SUPP. 4 S.C.R.

A 5 are not factually correct. The very foundation of the allegation is that the
then Member of the Appellate Tribunal was transferred from Patna to Delhi
at a time when he was hearing appeals is factually incorrect. It is also not
correct to say that appeals were disposed of by such a Member of the Tribunal
who was on the verge of retirement. The petitioners could not point out any
B procedural irregularity in the manner in which the appeals were disposed of.
A perusal of the affidavits, reports and various other papers shows that the
allegations made by the petitioners are not true. 1756-D-FI

1.2. As regards the petitioners' prayer that this Court should direct
the authorities to file appeal against the orders passed by IT AT in the cases
C of respondent nos. 4 and 5, suffice it to say that an appeal is a statutory remedy
available to the Department; and a third party, like the writ petitioners, cannot,
in a collateral proceedings like this, seek any remedy of writ of mandamus
directing the authorities to file appeals against the orders oflTAT. (756-F-GJ

1.3. Moreover, the petitioners could not point out anythmg to show that
D there were serious procedural irregularities on the part of the Department
in not filing the appeal. The Department had taken opinion of the Central
Board of Direct Taxes as well as the Ministry of Finance and the latter had in
turn sought the opinion of the Ministry of Law to the effect that no substantial
question of law arose out of the judgments of the ITA T in the cases of
respondent nos. 4 and 5 for filing appeals before the High Court and thus
E instructions were issued not to file any appeal. The petitioners have not made
any specific allegation that the decisions were taken at the behest of
respondent nos. 4 and 5 or any undue influence was exerted to take such
decisions. The allegations ir.ade by the petitioners are vague and indefinite.
Therefore, the prayer for Writ of Mandamus to direct respondent nos. 1 to 3
F to file appeal against the IT AT orders cannot be allowed and is rejected.
(756-C-D; G-H; 757-A-B)

2.1. Regarding the plea that the public prosecutor who was conducting
the case no. 5/98 against respondent nos. 4 and 5 was removed by the Director
of the CBI presumably under pressure from the accused, it may be seen that
G from the averments made in the counter-affidavit, it is clear that the said
prosecutor had completed the case and examined all the witnesses for the
prosecution as well as for the defence and he had also submitted his entire
arguments to the Special Judge. Therefore, the contention of the petitioners
that the prosecutor was purposely changed to give benefit to respondent nos.
4 and 5 is not correct. There is no allegation to prove that respondent nos. 4
H and 5 had in any way interfered with the appointment of the Public Prosecutor.
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. 745

The petitioners could not produce any documents to show that the allegations . A
made in the original petitions were true. [759-D-E; 760-B-D[

2.2. In the instant case, the petitioners have approached this court by
filing this public interest litigation under Article 32 of the Constitution at
the time when the recording of prosecution evidence in case No. 5/1998 was
almost over and the trial of the case had reached the final stage. If at all, the B
petitioners had any grievance regarding the removal of the public prosecutor,
they should have approached the Special Judge or the High Court. It is already
noticed that the petitioners had no direct connection with this case. They were
absolutely strangers as regards the criminal cases against respondent nos.
4 and 5 which were pending before the Special Judge. This unnecessary C
interference in the criminal case may cause, some.times, damage to the
prosecution case and at times may cause serious prejudice to the accused
also. In any view of the matter, this sort of interference in the criminal
prosecution would only deny a fair trial to the accused. (761-F-H; 762-A)

Janata Dal v. ll.S. Chowdhary and Ors., [1992) 4 SCC 305, relied on. D
Ashok Kumar Pandey v. State of W.B., (2004) 3 SCC 349 and Union of
India and Ors. v. Sushi/ Kumar Modi and Ors., (1998) 8 SCC 661, referred
to.

3.1. So far as the allegation of the petitioners that the Special Judge E
who presently is dealing with the CBI cases at Patna was not properly
appointed by the High Court and another Judge who was eai"lier dealing with
this case was suddenly transferred to help respondent nos. 4 and 5, it may be
noticed, at the outset, that no such allegations have been made in the original
writ petition. The petitioners filed IA as Criminal Miscellaneous Petition nos. F
6589-6590 of 2005 wherein certain allegations have been made. Subsequent
to filing of these interim petitions, the original writ petition was not amended
and no prayer was incorporated in the relief portion as to whether the present
Special Judge is to be removed or not. [757-B-D)

3.2. The appointment of the Officer is not challenged by the petitioners · G
nor any pleadings made in the main writ petition. By filing a Criminal
Miscellaneous Application, the petitioners have made series of allegations
which are not borne out by any records. If at all, the petitioners had any
grievance regarding the appointment of any particular Officer, the proper
remedy was to approach the High Court and to bring the fact to the notice of
the Chief Justice. Since there is no material on record to shllW that there H
746 SUPREME COURT REPORTS [20061 SUPP. 4 S.C.R.

A was any illegality or serious infraction of any procedure in the appointment
of the present Special Judge and the appointment as such cannot be challenged
in a collateral proceedings and this Court cannot go into the question of
appointment of a Special Judge which is exclusively within the domain of the
High Court under Article 235 of the Constitution, the oral appeal of the
B petitioners for the change of the Presiding Officer of the Special Court cannot
be granted. (759-A-CI

4. As regards the prayer of the petitioners that the bail granted to
respondent nos. 4 and 5 is liable to be set aside, it may be mentioned that the
petitioners could not prove anything that these respondents have interfered
C in the course of justice and they misused the privilege of bail extended to
them. The petitioners have also no case that they are likely to flee from justice.
The petitioners have not made out any case for cancellation of their bail. The
prayers sought for in the Writ Petitions cannot be allowed and the writ petition
being without any merits is dismissed. (762-E-F(

0 PER DR LAKSHMANAN,J (CONCURRING):

1.1. As regards transfer of the earlier Member of the ITAT, dealing with
the appeals of respondents no. 4 and 5, the record shows that the President,
ITAT acceded to his request on compassionate grounds to remain in Delhi,
and it was not correct to say that he was shunted out of Patna. There is not an
E iota of truth in the allegation and all the averments made in the writ petitions
are completely base:ess. It is seen from the report submitted by the President,
ITAT on 9.3.2005 in this regard that the earlier Member ITAT had left India
without obtaining permission as required under the rules and he was
accordingly issued a show cause notice to explain about the acts of indiscipline.
F Insofar as appointment of the Member in his place is concerned, the President
has explained the position with regard to forming the Bench.
(768-B; G-H; 769-A-BJ

1.2. The prayer of the petitioner to direct the Government of India to
file appeals in the income-tax matters cannot at all be countenanced. The
G record discloses that the mat~er was fully considered and legal opinion was
sought by BCIT investigation, Patna and that the opinion of the ASG was
received stating that there was no substantial question of law for filing an
appeal and that the consideration of this aspect had been done properly and
independently and there have been no extraneous considerations. The
Government of India has taken into consideration the views of the Ministry of
H Law and Ministry of Finance to the effect that no substantial questions of law
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. 747

arise out of the judgments of the ITAT in the cases of respondent Nos. 4 and A
S for filing appeals before the High Court and instructions were issued that
appeals would not be filed in respect of those cases. (773-D; 774-A-B; E, F)

2. The appointment of lawyers/Prosecutors is the prerogative of the
Government in power and the prosecuting agency, and court has no role to
play. The petitioners are trying to find fault with every attempt and with every B
step taken. In cases like this the delay is inevitable. [773-B-C)

3.1. As regards the prayer of petitioners regarding appointment of the
Presiding Judge, Special Court, Patna, the records have been submitted by
the High Court in regard to the officers concerned including the present
incumbent. There is absolutely no adverse entry against him and that poor C
record if any is not the record of integrity and that no gradation has been
given to officers after 1997 onwards including the officer concerned. The
relevant service records of the officers concerned including the present
incumbent was placed before the Stanaing Committee which took into
consideration the fact that no allegation petition has been received against D
him. It was resolved that the officer be posted as Special Judge, CBI Fodder
scam cases at Patna. The said resolution was placed before the Full Court
which also approved the same. (771-E-F; 772-F-G)

3.2. The Standing Committee has taken a decision to appoint the officer
as Special Judge after scrutinizing the records, ACRs etc. in accordance with E
Articles 233 and 235 of the Constitution of India which is the prerogative
right of the Standing Committee and the High Court, and when a decision is
taken it is not for this Court to scrutinize the correctness of the decision
that too at the instance of third parties. (773-C-D)

4. In regard to the prayer for cancellation of the bail at the instance of F
the petitioners, the said request cannot at all be countenanced. The various
.' documents and annexures etc. filed in the writ petition indicate that respondent
..f Nos. 4 and Shave never interfered with the conduct of trial or with the IT
proceedings. It cannot be said that the delay is solely attributable to respondent
Nos. 4 and S. The delay is attributable to both the prosecution and the defence
and also to the Court. Therefore, respondent Nos. 4 and S cannot be held G
responsible for the delay. Besides, it cannot be a ground for cancellation of
bail when it is not proved that any of the bail conditions has been violated.
[770-B; E-G)

S. Monitoring of pending trial is subversion of criminal law as it stands
to mean that the Court behind the back of the accused is entering into a H
748 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A dialogue with the investigating agency. Therefore, there can be no monitoring,
after the charge sheet is filed. 1768-A)
Union of India and Ors. v. Sushi/ Kumar Modi and Ors., (1998) 8 SCC
661, relied on.
6. Public interest litigation is meant for the benefit of the lost and lonely
B and those whose social backwardness is the reason for no access to the Court.
PILs are not meant to advance the political gain and also settle their scores
under the guise of a public interest litigation and to fight a legal battle. The
liberty of an accused cannot be taken away except in accordance with the
established procedure oflaw under the Constitution, criminal procedure and
C other cognate statutes. PIL is totally foreign to pending criminal proceedings.
(744-G-H; 775-A-B)
TN. Godavarman Thirumulpad {98) v. Union of India and Ors., (2006)
5 SCC 28; Janata Dal v. H.S. Chaudhary and Ors., (1992) 4 SCC 305; Dattaraj
Nathuji Thaware v. State of Maharashtra and Ors .. (2005) l SCC 590; Ashok
D Kumar Pandey v. State of WB., (2004) 3 SCC 349.and S.P. Gupta v. Union of
India and Anr., 11981) Supp SCC 87, referred to.
7. The records placed before the Court would only go to show that
respondent No. 4 had no hand in any of these matters whether in the
appointment of judges or in the change of the prosecutor or on the decision
E not to file an appeal in the income tax cases. (775-BJ
PER KAPADIA, J ( Dissenting)
1.1. True value of a decision lies in its propriety and not in the decision
being right or wrong. In the instant case, the Court is concerned not with the
merits of the allegations but with the decision-making process, be it in the
F posting of the present incumbent as Special Judge, CBI, Patna or in the matter
of the Revenue Department not moving in appeal to the High Court under
Section 260A of the Income Tax Act, 1961 despite there being substantial
questions of law arising from the impugned judgment of the Tribunal.
(782-G-H; 794-C(
G t.2. It has to be ascertained in the present case whether the decision of
the Government in not preferring any appeal to the High Court under Section
260A of the l.T. Act constituted inaction on the part of the Revenue
Department. This question needs to be answered not in an abstract but having
regard to position in law and having regard to the facts of the present case.
1785-C-DI
H Inland Revenue Commissioners v. National Federation ofSeif-employed
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. 749
and Small Business Ltd, (1982) Appeal Cases 617, referred to. A
1.3. While allowing the appeal of the assessee the Tribunal held that
the case involved highly intricate issues involving interpretation of sections
131, 13l(IA), 273-A and 174/148 of the Income Tax Act; that, these issues
were extremely difficult to understand; that, but for the assistance of the
advocates on both sides it was difficult to adjudicate such disputes. f\.t the same B
time the Tribunal without any basis castigated the officers of the Department
including the Commissioner (Appeals) saying that rampant additions were
made to destroy the case of the assessees and to destroy the political career
of respondent no.5. Similarly, the Tribunal has castigated the higher officers
of the Department saying that they were biased and that they had acted at the
behest of the Centre in clubbing the income of respondent no.4 with that of C
respondent no.5 who was going through political crisis. This Court has noticed
in number of cases that even an innocuous statement of the tribunal against
the Revenue Officers is challenged before the higher courts on the ground
that such observations are aspersions against the officers who have performed
their duty and that they need to be expunged. Surprisingly, in this particular D
case till today no such appeal has been filed under Section 260A of the l.T.
Act. (787-B-D; 788-C-D)

1.4. There is no basis given in the impugned decision of the Tribunal
for making such strong observations against the officers of the Revenue.
Although the High Court under Section 260A of the l.T. Act would not have
enquired into the sufficiency of materials or substituted its judgment for that E
of the Tribunal in regard to facts, nevertheless, if the conclusion drawn by
the Tribunal is without any basis or based on irrelevant considerations then
the High Court was required to interfere under Section 260A. (787-D-E)

1.5. Besides, the judgment of the jurisdictional tribunal on the scope
and interpretation of the above sections which the Tribunal itself says involve F
complex legal issues, is binding on assessing officers and the appellate
authority within that jurisdiction. If so, one fails to understand why the
Department has not moved in appeal under Section 260A of the I.T. Act. In
the circumstances of this case, Union of India should apply its mind afresh
and take its decision keeping in mind the factors referred to herei~ ~~~~~~) G
7
2. It is true that PIL is not maintainable to probe or enquire into the
returns of another taxpayer except in special circumstances. However, when
scams take place, accusations of disproportionate assets are required to be
looked into. The source of the funds plays a crucial role in investigations by
CBI in matters involving misappropriation of public funds. Departments have H
750 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A to work in tandem. The evidentiary value of the collected material in the
criminal trial is a matter different from the collection of information by the
officers of the Rev1!nue Department. The present petitions are filed on the
alleged acts of misfeasance. The test which one has to apply to decide the
maintainability of the PIL concerns sufficiency of the petitioner's interest.
Under this test it is necessary to consider the subject matter to which the
B PIL relates. It is wrong in law for the court to judge the applicant's interest
without looking at the subject matter of his complaint. If the petitioner shows
failure of public duty, the court would be in error in dismissing his PIL.
(783-8-C; 787-F; 788-A)

Jmwa Dal v. H.S. Chaudhary and Ors., 1199214 SCC 305; A.R. Antulay
C v. Ramadas Sriniwas Nayak and Anr., (19841 2 SCC 500; Union of India v.
Sushi/ Kumar Modi and Ors., 119981 8 SCC 661; M.C Mehta v. Union of
India and Others (Taj Trapezium Matter), 120031 8 SCC 696; T.N.
Godavarman Thirumulpad (Y8) v. Union of India and Ors., 1200615 SCC 28;
Dattaraj Nathuji Thaware v. State of Maharashtra and Ors., 120051 l SCC
D 590; State of Bihar and Anr. v. Ranchi Zila Samta Party and Anr., 11996) 3
SCC 682 and Gurpal Singh v. State of Punjab and Ors.. 12005) 5 SCC 136,
referred to.

3.1. The procedure adopted at the time of posting the present incumbent
as Special Judge, CBI, Patna (Fodder Scam Cases), needs to be relooked by
E the Patna High Court. Institutional autonomy of the High Court on its
administrative side under Article 233 and Article 235 is a well-known
concept. It is based on public trust and confidence. Existence of the power, as
a concept, is different from exercise of power. Promotions and posting of
judicial officers fall within its domain or. its administrative side. At the same
time it is important to note that choice of the candidate falls in the domain of
F public law and, therefore, that choice has to be exercised on some standard,
failing which judicial review steps in. It is important to bear in mind that in
the matter of economic scams, it is the economic interest of the country which
is at stake. These cases are highly complicated in which complicated questions
are involved and, therefore, posting plays a vical role.
1788-H; 789-A-B; 793-E)
G
3.2 It is clear that while remarks of Inspecting Judge in the case of
other officers were duly updated when they were placed before the Committee
of the High Court, there is no gradation/categorisation of the confidential
reports of the present incumbent by the Inspecting Judge of the High Court
H particularly after he became A.D.J. [791-F-H; 792-AI
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [BALAKRISHNAN, J.] 751

3.3. It seems that the procedure followed by the High Court in the A
meeting on 22.06.0S has lost sight of the above criteria. In the circumstances,
a request is being made to the Chief Justice of the Patna High Court to convene
an urgent meeting of Administrative Judges and complete the exercise of
giving appropriate gradation/categorization after looking at the judgments
and orders delivered by the concerned judge, and to have a fresh look at the
evaluation in the case of posting of the Officer concerned as Special Judge B
for C.B.I. (Fodder Scam Cases) at Patna, vide Minutes of Meeting dated
22.06.2005. It is made clear that this is just a request to the High Court and
not a direction so that the evaluation standards ·are commonly applied to all
the three candidates. (793-F-Gf

CRIMINAL ORIGINAL JURISDICTION : Writ Petition (Criminal) Nos.
c
197-198 of2004.

(Under Article 32 of the Constitution of India.)

Mukul Rohatgi, Kailash Vasudev, Gopal Singh and Saurarb Kirpal for D
the Appellants.

G.E. Vahanvati, S.G. Mohan Parasaran, A.S.G., Ram Jethmalani, P.H.
Parekh, E.R. Kumar, Shakun Sharma, P.R. Mala, Michale Peter, Chitranjan (for
P.H. Parekh & Co.), B.V. Balaram Das, Sandhya Goswami, Hrishikesh Baruah,
Devdatt Kamat, Chinmoy Sharma, and Suruchi Suri for (P. Parmeswaran) for E
the Respondents.

The Judgment of the Court was delivered by

K.G. BALAKRISHNAN, J. These writ petitions are filed as Public
Interest Litigation by the two petitioners herein who were Members of the F
Parliament at the time of filing the petitions. Respondent nos. 4 and 5 were
formerly Chief Ministers of the State of Bihar. It is alleged by the petitioners
that they filed writ petitions· before the High Court of Patna alleging large-
scale defalcation of public funds and falsification of accounts involving
hundreds of crores of rupees in the Department of Animal Husbandary in the
State of Bihar and pursuant to these allegations, several cases were registered G
by the Police and investigation of these cases was later handed over to the
Central Bureau of Investigation. In an earlier petition filed before this Court
on 19.3.1996, this Court directed that the investigation shall be monitored by
the Division Bench of the Patna High Court anq in that Order, it was indicated
that the CBI Officers entrusted with the investigation shall inform the Chief H
752 SUPREME COURT REPOR rs [2006) SUPP. 4 S.C.R.

A Justice of Patna High Court from time to time of the progress made in the
investigation and if they needed any directions in the matter of conducting
the investigation, obtain them from him and it was also said that the learned
Chief Justice may either post the matter for directions before a Bench presided
over by him or constitute any other appropriate Bench. It was also directed
B that the State Government shall co-operate in assigning adequate number of
Special judges to deal with the cases expeditiously so that no evidence may
be lost.

The petitioners allege that consequent upon change of the Government
in the Centre, attempts have been made to delay and interfere with the judicial
C process. It is alleged that the public prosecutors who were handling the cases
were removed and to protect the interests of respondent nos. 4 and 5,
convenient prosecutor was appointed.

The respondent no. 5 is an accused in a case registered under the
Prevention of Corruption Act, 1988. The case is filed pursuant to the FIR
D registered as no. R.C. 5[A] 498/AHD-Pat dated 19.8.1998. The allegation in
that case is that respondent no. 5 as Chief Minister of Bihar between 1990
to 1996 had acquired assets disproportionate to his known sources of income.
Chargesheet was filed in the Court of the Special Judge, CBI, Patna on
4.4.2000 under Section 13( I )(e) of the Prevention of the Corruption Act, 1988.
Respondent no. 4 also was charge sheeted in the same case for abetment
E under Section I09 of the IPC read with Section 13(2) and Section 13( I)( e) of
the Prevention of Corruption Act, 1988. This case has been re-numbered as
Special Case No. 5/1998 and is pending trial in the Court of the Special Judge,
CBI, Patna. The petitioners allege that certain income tax cases of respondent
nos. 4 and 5 were pending before the Income Tax Appellate Tribunal (ITA T)
F and one Mr. D.K. Tyagi who was a member of the ITAT had been hearing
those cases and that respondent nos. 4 and 5 found it difficult to pursue the
hearings before the said IT AT member and hence at their influence Mr. Tyagi
was sent on deputation and he was replaced by one Mr. Mohanaranjan who
was on the verge of retirement. It is further alleged that the new member
alongwith another member heard these cases within two weeks and orders
G were pronounced in favour of respondent nos. 4 and 5. It is also alleged that
respondent no. 3, namely, the Central Board of Direct Taxes did not prefer
appeal in these cases though the decision went against the revenue. This,
according to the petitioners, was to help respondent nos. 4 and 5 in the cases
filed against them based on the allegation that they acquired assets
H disproportionate to their known sources of income.
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [BALAKRISHNAN, J.] 753
The petitioners have also alleged that the Special Case No. 5/1998 A
pending before the Special Judge, CBI was at the final stage of hearing and
that the Director, CBI, presumably under pressure from the accused changed
the prosecutor and appointed one Shri Oma Shankar Singh who was only a
retired Deputy Superintendent of Delhi Police and had no experience of
conducting the prosecution. According to the prosecution, this was done at B
the fag end of the prosecution case to help the accused. The petitioners have
made allegations against respondents I to 3 also that they were acting
arbitrarily and interfering in the judicial process to benefit the respondent nos.
4 and 5. The petitioners have alleged that respondent nos. 4 and 5 obtained
stay of proceedings of the case pending before the Special Judge from this
Court suppressing some material facts. It is alleged that the respondent nos. C
4 and 5 still wield influence and power and, therefore, this Court should
monitor the trial of the case pending before the Special Judge, CBI, at Patna.

In these Writ Petitions, the petitioners have prayed mainly four reliefs.
TJle first relief prayed is to issue an appropriate writ, order or direction
monitor;ng the conduct of the trials relating to fodder scam cases proceedings D
against respondent nos. 4 and 5 in the States of Bihar & State of Jharkhand.
The second prayer is to appoint the very same prosecutor who had been
conducting prosecution earlier and to direct the High Court to see that no
prosecutor or CBI Officer attached with the investigation and trial of the case
should be removed, harassed or victimized for discharging their duties. The E
petitioners have also prayed that at least one inspector be provided for each
fodder case. The petitioners have also prayed for cancellation of bail granted
to respondent nos. 4 and 5. Petitioners have further prayed for a direction to
respondents 1 to 3 to file an appeal against the orders passed by the !TAT.

During the pendency or" these Writ Petitions, the Counsel for the p
petitioners alleged that the Special Judge who was trying the case involving
respondent nos. 4 and 5, was being replaced by another Special Judge. The
allegation was that one Shri Yogender Prasad was the CBI Special Judge and
he was being replaced by one Shri Muni Lal Paswan and this according to
the petitioners was deliberately done to help the respondent nos. 4 and 5. In
view of the allegations made by the petitioners, this Court on 1.8.2005 directed G
the Registrar General of the Patna High Court to send details and files as to
when Judge Shri Yogender Prasad was promoted as a District Judge and all
papers regarding posting of the subsequent officer Shri Muni Lal Paswan. As
regards the posting of Shri Muni Lal Paswan as a Special Judge, this Court
again passed an Order on 26.10.2005 and the Registrar of the High Court was H
754 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A directed to give further clarification in the matter. The Registrar General of the
High Court of Patna appean:d in person before us and filed an affidavit giving
out the details leading to the decision of the Standing Committee of the High
Court to post Shri Muni Lal Paswan as a Special Judge, CBI case Patna.

Jn view of the allegations made by the petitioners in respect of the
B cases pending before the IT AT, the President of the IT AT was directed to
send all papers pertaining to the constitution of the Bench of Shri P.
Mohanarajan and Shri M.K. Sarkar which disposed of the various appeals
pending before the IT AT. The President of the IT AT has submitted a report
and also produced relevant papers before us.
c In view of the allegation made by the petitioners regarding the
appointment of a new prosecutor in place of earlier prosecutor, this Court
directed the 3rd respondent to produce the entire files including the notations
pertaining to the appointment of Shri Oma Shankar Shanna as Prosecutor.

D Refuting the atlegations contained in the Writ Petition, detailed counter-
affidavits have been filed by the respondents. In the joint counter-affidavit
of respondent nos. 4 and 5, they have alleged that the writ petitions contain
vague and indefinite allegations and they are made with political motive to
satisfy their personal grudge and that this is an abuse of the process of the
Court. The respondents have alleged that the Public Interest Litigation shall
E not be used for private or political motives or for other consideration. It is
also alleged that Special Case no. 5/98 pending before the Special Judge is
a case registered under Sections 13(2) and 13(1) of the Prevention of Corruption
Act and it has nothing to do with the 'fodder scam' case. The various
allegations made in the Writ Petitions have been denied specifically.
F We heard the learned Senior Counsel Shri Mukul Rohtagi for the
petitioner and Solicitor General appearing for respondents I to 3 and also the
learned counsel for respondent nos. 4 and 5. At the time of the arguments,
the learned Counsel for the petitioners submitted that the petitioners in the
present facts and circumstances of the case only pray for appointment of an
G appropriate prosecutor to conduct the case pending before the Special Judge
and that the bail of the respon'.ient nos. 4 and 5 be cancelled and Respondent
no. 3 be directed to file appeals against the orders passed by the ITAT. The
petitioners also submitted arguments to the effect that the appointment of the
present Special Judge was not done properly. No specific prayer was made
by the petitioners to change the Presiding Officer. They, however, submitted
H a request that High Court may be directed to reconsider the appointment and
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [BALAKRISHNAN, J.) 755

posting of Shri Muni Lal Paswan as a Special Judge. A
We shall first consider the prayer of the petitioners as to whether any
irregularities have been committed in the matter of disposal of cases against
respondent nos. 4 and 5 by the Income Tax Appellate Tribunal, Patna. The
petitioners have alleged that Shri D.K. Tyagi, who had been hearing the cases
of respondent nos. 4 and 5 and proving to be difficult during the course of B
the hearing, was curiously sent on deputation and was replaced by Shri
Mohanarajan, who was on the verge of the retirement, to head the Tribunal.
It is further alleged that Shri Mohanarajan picked up only two cases pertaining
to respondent nos. 4 and 5 even though the matter had been heard fully by
another bench, and within two weeks, the cases were heard and allowed in C
favour of the assessees namely respondent nos. 4 and 5, and that he had no
backgrolmd of the case and had not disposed of any other matter. The
petitioners alleged that after the disposal of these cases by the Tribunal,
steps were not taken to file appeal against these orders and that was done
at the instance of respondent nos. 4 and 5.
D
The entire allegations made by the petitioners are denied. The President
of the Income Tax Appellate Tribunal submitted a report regarding the manner
in which income tax cases of respondent nos. 4 and 5 were disposed of by
the Tribunal. The President has stated that he took over as the President of
ITAT on 31.10.2003 and at that time a petition filed by Respondent no. 5 for
transfer of cases from Patna to Delhi was pending. The Department after E
considering the legal aspects declined to transfer the cases of respondent no.
5 to Delhi. It was suggested and noted on the files "it may perhaps be
worthwhile to consider constituting a Special Bench for early disposal of
these appeals". Shri D.K. Tyagi sent a representation on 12.1.2004 praying
that he may be transferred to Delhi as his mother was 80 years old and with p
deteriorating health and that he was anxious to arrange marriage of his
daughter and his son was studying at Delhi. There were some other
developments also as Shri D.K. Tyagi had left India without permission and
a show-cause notice was issued to him. He filed an explanation and came over
to Delhi to personally explain the things and he was allowed to remain at Delhi
for some period and the President of the ITAT, with a view to inculcate judicial G
discipline, decorum and proper behaviour from the Bench, made Shri Tyagi
to sit in Delhi Bench of the ITAT alongwith the seniormost Accountant
Member. There were also other circumstances whereby Shri. Tyagi wanted his
transfer from Patna to avoid recurrence of another incident in view of the
repeated confrontations with the Bar. It was under these circumstances Shri H
756 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A Mohanarajan was directed to camp at Patna in June, 2004. Another member
Shri Aggarwal also expressed his inability to camp at Patna. Shri P. Mohanarajan
alongwith Shri M.K. Sarkar who was a senior member of the Tribunal, dealt
with the cases of respondent nos. 4 and 5. The President has also refuted an
allegation that Shri Sarkar was selected to camp at Delhi only for a short
B period to dispose of this case. He has brought to our notice that the Bench
disposed of 11 appeals of respondent no. 5 and several other cases and that
136 cases were disposed of during that period and the list of such cases and
details are given at Annexure I.

As regards non-filing of the appeals against the order passed by ITAT,
C the Chief Commissioner of Income Tax-VIIJ in New Delhi had filed affidavit
wherein it is stated that the question was referred to the Central Board of
Direct Taxes for consideration and he had sought opinion from the Ministry
of Law. The Central Board of Direct Taxes and the Ministry of Finance
obtained the opinion of the Ministry of Law to the effect that no substantial
questions of law arose out of the judgments of the ITAT in the cases of
D respondent nos. 4 and 5 for filing appeals before the High Court and thus
instructions were issued not to appeal against these cases.

The allegations made by the petitioners that there were serious
irregularities in disposing of the cases of respondent nos. 4 and 5 are not
E factually correct. The very foundation of the allegation is that Shri Tyagi,
member of the Appellate Tribunal was transferred from Patna to Delhi at a time
when he was hearing appeals is factually incorrect. It is also not correct to
say that appeals were disposed of by the member of the Tribunal who was
on the verge of retirement. The petitioners could not point out any procedural
irregularity in the manner in which these appeals were disposed of. After
F going through the affidavits and reports and various other papers, we are
satisfied that the allegations made by the petitioners are not true. The
petitioners have prayed that this Court should direct the authorities to file J
appeal against the orders passed by IT AT in the cases of respondent nos.
4 and 5. In a collateral proceedings like this, the petitioner cannot seek any
G remedy of Writ of Mandamus directing the authorities to file appeals against
such orders. An appeal is a statutory remedy available to the Department and
the third party like Writ Petitioner cannot seek such remedies in collateral
proceedings like this. Moreover, the petitioners could not point out anything
to show that there were serious procedural irregularities on the part of the
Department in not filing the appeal. The Department had taken opinion of the
H Central Board of Direct Taxes as well as the Ministry of Finance and the
-
RAJIV RANJAN SINGH 'LALAN' v. U.0.l. [BALAKRISHNAN, J.] 757

Ministry of Finance had sought the opinion of the Ministry of Law. The A
petitioners have not made any specific allegation that these decisions were
taken at-the behest of respondent nos. 4 and 5 or any undue influence was
exerted to take such decisions. The allegations made by the petitioners are
vague and indefinite. Therefore, the prayer for Writ of Mandamus to direct
the respondent nos. I to 3 to file an appeal against the !TAT orders cannot B
be allowed and is liable to be rejected.

The next prayer of the petitioners is that the Special Judge who is
dealing with the CBI cases at Patna was not properly appointed by the High
Court of Patna and another Judge who was dealing with this case was
suddenly transferred to help respondent nos. 4 and 5. It may be noticed, at C
the outset, that no such allegations have been made in the original Writ
Petition. The petitioners filed IA as Criminal Miscellaneous Petition nos. 6589-
6590 of 2005 wherein certain allegations have been made. Subsequent to this
filing of these interim petitions, the original writ petition was not amended and
no prayer was incorporated in the relief portion as to whether the present
Special Judge is to be removed or not. In the interlocutory application as D
Criminal Miscellaneous Petition nos. 6589-6590 of2005, the petitioners alleged
that taking undue advantage of the ongoing summer vacations, in an attempt
to over reach the orders passed by this Hon 'ble Court which was already
seized of the matter in its entirety, the Patna High Court on the administrative
side, has directed the transfer of the Special Judge(AHD), Patna. Such act E
according to the petitioners amounts to contempt of this Hon 'ble Court and
the petitioners reserved their right to initiate appropriate proceedings for
contempt against the persons responsible for the same. The petitioners sought
for stay of the transfer of the then Special Judge Shri Yogender Prasad. This
Court on 1.8.2005 passed the following order:
F
"At the request of the learned counsel appearing for the parties,
the petitions are fixed for hearing on 20th September, 2005.

Jn the meantime, the prosecution arguments may continue but
thereafter the trial to remain stayed and defence argument not to start
without further orders of this Court. G
The Registrar General of the Patna High Court to send the details
and files when Judge Yogender Prasad was promoted as a District
Judge and all papers regarding posting of the present incumbent Shri
Muni Lal Paswan."
.,..
H
758 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A This Court declined to grant stay of transfer of Special Judge Shri
Yogender Prasad as he was promoted to the post of Principal Sessions Judge.
This Court also passed an Order on 26.12.2005 wherein the details regarding
the appointment of the present incumbent Shri Muni Lal Paswan were sought
from the High Court. The entire records relating to the appointment of Shri
B Muni Lal Paswan as a special judge CBI, Patna have been produced in this
case including the Confidential Registers of the various officers. On perusal
of these records, we find that the Standing Committee of the High Court took
a decision to post Shri Muni Lal Paswan as the CBI, Speci°lll Judge, Patna.
Six senior most judges of the High Court of Patna constituted the Standing
Committee of the High Court and the decision was taken in the meeting of
C the Committee held on 22nd June, 2005. The decision of the Standing Committee
is recorded as follows:-

"Having considered the relevant service records of the officers
concerned as also taking into consideration the fact that no allegation
petition has been received against Sri Muni Lal Paswan, Additional
D District Judge, Sahara. It is resolved that let him (Sri Muni Lal Paswan)
be posted as Special Judge for C.B.I. (Fodder Scam Cases) at Patna.
It is further resolved upon consideration of the relevant service records
of the officers concerned that Shri J.P. Ratnesh, Additional District
Judge, Patna, be posted as Special Judge, C.B.I. (South Bihar) and Sri
Ram Niwas Prasad, Additional District Judge, Patna, as Special Judge
E
for Vigilance Case (Court No. I).

In view of the urgency of the matter, the officer is directed to take
necessary steps for issue of notification immediately."

Though the petitioners have not made any allegations in the Writ
F Petitions, at the time of argument, the learned Senior Counsel stated that Shri
Muni Lal Paswan was having poor record and he was not senior to be
appointed as a Special Judge. We have perused the Confidential Register of
Shri Muni Lal Paswan which was made available to us. Of course, the
Confidential Register of this Officer was available only upto 2003. For some
G period, he was working on deputation and the inspecting judge had not
recorded the confidential registers for that period, though the confidential
registers of other officers were available to the Standing Committee. The
Confidential Reports of Shri Muni Lal Paswan from 1981 to 2003 have been
produced in Court. We have perused the Confidential Register of this Officer
and it has been repeatedly recorded that this Officer has maintained honesty
H and integrity during the period under report. About his conduct and integrity, -
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. (BALAKRISHNAN, J.] 759

nothing adverse is reported against him. Of course, in some of the years, this A
Officer has been graded as 'Category B' with regard to his judicial performance.
These are all matters considered by the Standing Committee which consists
of senior judges of the High Court. The appointment of this Officer is not
.- challenged by the petitioners and no pleadings also made in the main Writ
Petition. By filing a Criminal Miscellaneous Application, the petitioners have
made series of allegations which are not borne out by any records. If at all, B
the petitioners had any grievance regarding the appointment of any particular
Officer, the proper remedy was to approach the High Court and to bring this
fact to the notice of the Chief Justice. Under the above circumstances, we do
not find any material on record to show that there was any illegality or serious
infraction of any procedure in the appointment of the present CBI (Special c
Judge), Patna and the appointment as such cannot be challenged in a collateral
proceedings and this Court cannot go into the question of appointment of
: a Special Judge which is exclusively within the domain of the High Court
under Article 235 of. the Constitution. Therefore, the oral appeal of the
petitioners for the change of the Officer of the Special Judge cannot be
granted. D

The learned Counsel for the petitioners also alleged that the public
prosecutor who was conducting the case no. 5/98 against the respondent
nos. 4 and 5 was removed by the Director of the CBI presumably under
pressure from the accused and one Uma Shankar Singh was appointed and
E
' he was a Deputy Superintendent of Delhi Police and had commenced his law
practice only recently. The petitioners alleged that the respondent nos. 4 and
5 were unnecessarily interfering in the course of justice and managed to
change the public prosecutor who was diligently discharging his duties.

In the rejoinder atlidavit filed on behalf of the petitioners, the petitioners F
reiterated their allegation and stated that Shri L.R. Ansari who had been
conducting the disproportionate assets case, had examined 225 witnesses,
was sent elsewhere and some other public prosecutor was appointed. Refuting
all these allegations, a counter-affidavit was filed on behalf of respondent no.
2 CBI. In the counter-affidavit, it is stated that disproportionate assets case
against respondent nos. 4 and 5 was being conducted by Shri L.R. Ansari, G

-- right from the beginning. He had examined 132 witnesses from the prosecution
and the defence had also examined 93 witnesses. Arguments on behalf of the
petitioners were completed on 14. 7.2004 and the arguments on behalf of the
defence started on 19.7.2004. and as the case was practically over, it was
.,.;.. decided to avail Shri Ansari's service in other Animal Pusbandary cases. It H
760 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A is also stated that if found necessary, Mr. Ansari would be called to give any
reply at the end of the case. As regards Shri Oma Shankar Sharma, it is
submitted that he had started his practice as an Advocate on 23.2.1968 and
he was appointed as a Prosecutor in 2.1.1973 in Delhi and conducted several
cases before criminal courts in New Delhi. He was promoted as Senior-cum-
B Additional Public Prosecutor on 16.10.1992 and conducted several important
cases including TADA cases. He was appointed as a Legal Adviser to the
Commissioner of Police, Delhi and continued upto 31.8.2003.

From the averments made in the counter-affidavit, it is clear that the
earlier prosecutor Shri Ansari had completed the cases and examined all the
C witnesses for the prosecution as well as for the defence and he had also
submitted his entire arguments to the Special Judge. Therefore, the contention
of the petitioners that the prosecutoI" was purposely changed to give benefit
to respondent nos. 4 and 5 is not correct. There is no allegation to prove that
respondent nos. 4 and 5 had in any way interfered with the appointment of
the Public Prosecutor. The petitioners could not produce any documents to
D show tt.at the allegations made in the original petitions were true.

The learned Counsel for the respondent nos. 4 and 5 submitted that the
original petition is a politically motivated move to malign respondent nos. 4
and 5 and this sort of public interest litigation should not be entertained by
E the Court and placed reliance on the series of decisions passed by this Court.
It may be noticed that the case nos. 5198 has been filed against the respondent
nos. 4 and 5 alleging that they had amassed wealth disproportionate to their
known sources of income while holding the post of Chief Minister of the State
of Bihar. Both the petitioners are not in any way connected with this case.
They are not de-facto complainant in this case. It is for the prosecution to
F prove its case and the respondent nos. 4 and 5 to deny that the allegations
are not true and they did not have the disproportionate income as alleged by
the prosecution. It is a criminal litigation exclusively between respondent nos.
4 and 5 and the State. It is also important to note that in a case of this nature,
nobody else has got any right to interfere especially by way of public interest
litigation or else such public interest litigation would only hamper the course
G of justice and may cause prejudice to the accused by denying a fair trial. In
this case, as early as 2004, 132 witnesses were examined on the side of the
prosecution and 93 witnesses were examined on the defence side. Arguments
of the prosecution were over as early as in 14.7.2004 and the defence arguments
-
continued upto 19. 7.2004. Because of the present public interest litigation, the
H trial could not be conducted. It is equally important to note that though the
-
RAJIV RANJAN SINGH LALAN' v. U.0.1. [BALAKRISHNAN, J.] 761
petitioners have alleged series of irregularities, but they are not supported by A
basic facts having solid foundation.

This Court in Janata Dal v. H.S. Chaudhary and Ors., [ 1992] 4 SCC 305
held that in a criminal case, a person who has no interest shall not invoke
the jurisdiction of the Court by h1tervening in the proceedings and a person
acting bona fide and having sufficient interest in the proceeding alone has B
locus standi to file a public interest litigation and a person for personal gain
or private profit or political motive, or any oblique consideration has no such
right to file public interest litigation.

The respondent nos. 4 and 5 relied on Ashok Kumar Pandey v. State
of W.B., [2004] 3 SCC 349. That is a case where petition was filed under Article C
32 of the Constitution purportedly in public interest but the prayer was to the
effect that the death sentence imposed on one 'D' by the Sessions Court,
affirmed by the Calcutta High Court and the Supreme Court, needed to be
converted to a life sentence because there had been no execution of the death
sentence for a long time. Therein, this Court said that a person acting bona D
fide and having sufficient interest in the proceeding alone can initiate public
interest litigation and that the court must not allow its process to be abused
for oblique considerations.

In Union of India and Ors. v. Sushi/ Kumar Modi and Ors., [1998] 8
sec 661, a three Judge bench of this Court held that once a charge-sheet is E
filed in the competent court after completion of the investigation, the process
of monitoring by the monitoring Court for the purpose of making the CBI and
other investigative agencies concerned perform their function of investigating
into the offences concerned comes to an end; and thereafter it is only the
court in which the charge-sheet is filed which is to deal with all matters F
relating to the trial of the accused, including matters falling within the scope
of Section 173(8) of the Code of Criminal Procedure.

In the instant case, the petitioners have approached this Court by filing
this public interest litigation under Article 32 of the Constitution at the time
when the recording of the prosecution evidence was almost over and the trial G
of the case reached a final stage. If at all, the petitioners had any grievance
regarding the removal of the public prosecutor, they should have submitted
their grievance before the Special Judge or before the High Court. It is already
noticed that the petitioners had no direct connection with this case. They
were absolutely strangers as regards the criminal ;ases against respondent
--· nos. 4 and 5 which was pending before the Special Judge. This unnecessary H
762 SUPREME COURT REPORTS [20061 SUPP. 4 S.C.R.

A interference in the criminal case may cause, sometimes, damage to the
prosecution case and at times may cause serious prejudice to the accused
also. In any view of the matter, this sort of interference in the criminal
prosecution would only deny a fair trial to the accused.

The petitioners in the writ petitions have prayed to re-engage the same
B prosecutor who was handling the case in the Trial Court from the very
beginning of the trial. The earlier prosecutor had already been deployed to
conduct some other case and we do not think that there is any necessity to
give any direction to the CBI. However, the CBI would be at liberty to make
use of the services of the earlier Prosecutor Shri Ansari. The second prayer
C of the petitioners that the present Special Judge is to be replaced by another
Judicial Officer also cannot be granted as the appointment of the Judge has
been validly made by the High Court. In the petition, there was no allegation
agaimt the present Judicial Officer warranting his removal from the post.

The petitioners prayed for a Writ of Mandamus directing the respondent
D nos. I to 3 to file appeal against the orders passed by the IT AT. The petitioners
have not made out any case for issuing any such Writ of Mandamus. The
respondent nos. I to 3, after following the due procedure, have decided not
to file an appeal against the order passed by IT AT and we do not find any
reason to give any direction to file appeal.

E The last prayer of the petitioners is that the bail granted to respondent
nos. 4 and 5 is liable to be set aside. The petitioners could not prove anything
that these respondents have interfered in the course of justice and they
misused the privilege of bail extended to them. The petitioners have also no
case that they are likely to flee from justice. The petitioners have not made
F out any case for cancellation of their bail.

The prayers sought for in the Writ Petitions cannot be allowed and the
Writ Petitions being without any merits are liable to be and dismissed
accordingly. All interim orders passed in the Writ Petitions are vacated.

G DR. AR. LAKSHMANAN, J. I had the privilege of perusing the judgment
proposed by my learned Brother - Hon'ble Mr. Justice K.G. Balakrishnan.
While respectfully concurring with the conclusion arrived by the learned
Judge, I would like to add the following few paragraphs:-

The first petitioner is a Member of Parliament and the second petitioner
H is the Deputy Chief Minister of Bihar. The above writ petition, ostensibly in ......
76-'
~

RAJIV RANJAN SINGH 'LALAN' v. U.0.1. (LAKSHMANAN, J.]

public interest, has been filed by them for the following relief: A
a. issue an appropriate writ, order or direction monitoring the conduct
of the trials relating to the fodder scam case proceeding against
respondent nos. 4 and 5 in the State of Bihar & State of Jharkhand;

b. issue an appropriate writ, order or direction directing the Director,
CBI to reinstate the prosecutors who were handling the cases in
B
the Trial Court and the High Court and directing that no
prosecutor or any CBI officer attached with the investigation and
the trial of these scam cases should be removed, harassed or
victimized for discharging their duties, without specific orders
from this Hon 'hie Court; c
c. issue an appropriate writ, order or direction directing the Director,
CBI to provide the logistics and ensure that it is represented by
at least one Inspector in each of the 7 courts by Special Judge,
CBI in the State of Jharkhand which is trying the fodder scam
cases so that no adjournments are sought and granted; D
d. issue an appropriate writ, order or direction canceling the bail
granted to respondent nos.4 and 5

e. issue an appropriate writ, order or direction directing the
respondent no. I and/or 3 to file an appeal against the order
passed by the Hon'ble Income Tax Appellate Tribunal" E
On our direction, the Registrar General of the Patna High Court was
present in Court on 26.07.2006. He filed an affidavit and also explained the
procedure followed in the appointment of Shri Munni Lal Paswan as a special
Judge to try the disproportionate assets cases with reference to the records.
F
We heard Mr. Mukul Rohatgi and Mr. Kailas Vasudev learned senior
counsel for the petitioners and Mr. Ram Jethmalani, learned senior counsel
assisted by Mr. P.H.Parekh and Mr. G.E. Vahanvati, learned Solicitor General
and Mr. Mohan Parasan, learned ASG for the respondents.

Mr. Mukul Rohatgi and Mr. Kailash Vasudev, learned senior counsel G
made elaborate submissions on the question of maintainability of the writ
petitions and also submitted that Mr. Munni Lal Paswan was promoted recently
and posted at Patna for disposing off the case filed against respondent Nos.
4 and 5 and that the said Munni Lal Paswan is not a desirable person to be
posted in the said post to conduct the case. He also requested that the Public H
764 SUPREME COURT REPORTS (2006) SUPP. 4 S.C.R.

A Prosecutors who were proving to be inconvenient to respondent Nos. 4 and
5 are being supplanted with chosen ones. Like that, Member (Judicial) in the
Income-tax Appellate Tribunal-Mr. R.K. Tyagi who had been hearing the
appeal of respondent Nos. 4 and 5 was curiously sent on deputation and was
replaced by Mr. Mohanarajan, a person who was on the verge of retirement
B to head the Tribunal. Within 2 weeks, the matter was heard and allowed in
favour of the assesses. He also submitted that the case relating to
disproportionate assets before the Special Judge, CBI is at the final stage of
hearing. The Director, CBI has started changing the prosecutors mid-way
when the case was nearing completion and that the public prosecutor who
was conducting the cases from the very beginning has been replaced by Shri
C Om Shankar Singh, a retired Deputy Superintendent of Delhi Police who has
commenced law practice recently. It is also submitted that respondent Nos.
4 and 5 are deliberately pr:ltracting the trial by taking unnecessary
adjournments which, by itself, would be a ground for cancellation of bail. He
further submitted that by virtue of the new political equations between the
D party in power in the State of Bihar and at the Centre, respondent No.5 one
of the main accused in the fodder scam now has substantial administrative
control and politicai say in the functioning of the Government of India and
that the CBI and the Central Board of Direct Taxes, respondent Nos. 2 and
3 have become a party in an efrort to shield respondent Nos. 4 and 5. He
continued to submit that this Court shall monitor the case since the accused
E are using state machinery to block the judicial process and subvert tht: trial
and dilatory tactics being adopted by the accused to delay the trial on one
pretext or the other. He also submitted that the prosecutors or investigators
connected with the fodder scam matters in the State of Bihar who have till
date been discharging their functions in the trial Court should not be disturbed,
replaced or sidelined.
F
Mr. Rohatgi, in support of his contentions, invited our attention to the
various documents, annexures, income-tax records and the paperbooks.

Appearing for respondent Nos. 4 and 5, Mr. Ram Jethmalani, learned
senior counsel argued that the petition had been filed only to achieve personal
G or political gain, no case had been made out for the cancellation of bail to
Mr. Latu Prasad Yadav and his wife and this court should not monitor the trial
as it would send wrong signals. He also cited m<.ny decisions with regard to
the maintainability of the writ petitions at the instance of practicing politicians.
He sought dismissal of the writ petitions with exemplary costs.
H
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [LAKSHMANAN, J.] 765

Appearing for the CBI, learned Solicitor General G.E. Vahanwati denied A
point by point the allegations of the petitioners made in their pleadings with
reference to various documents and records and proved to our satisfaction
that the statements made by the petitioners are not true and correct and have
been made with an ulterior motive. Learned Solicitor General further submitted
that there had been no interference by Mr. Lalu Prasad Yadav or his wife in B
any of the matters whether in the appointment of Judges or in the change of
the prosecutor or on the decision not to file an appeal in the income-tax cases.
The learned Solicitor General cited TN. Godavarman Thirumulpad (98) v.
Union of India and Ors., (2006] 5 SCC 28 (Hon. Y.K. Sabharwal, C.J., Arijit
Pasayat and S.H. Kapadia, JJ.) and submitted that howsoever genuine a case
brought before the Court by a public interest litigant maybe, the Court has C
to decline its examination at the behest of a person who, in fact, is not a public
interest litigant and whose bonafides and credentials are in doubt and that
no trust can be placed by the Court on a mala fide applicant in public interest
litigation. Learned Solicit.or General submitted now it is time to give a severe
warning and sound alert since these are basic issues which are required to
be satisfied by every public interest litigant. He also cited paras 25 and 26 D
in support of the contention that the writ petition is not maintainable at the
instance of the political rivals.

Mr. Ram Jethmalani in regard to the maintainability of the writ petition
cited the following decisions:
E
Janata Dal v. H.S. Chowdhary and Ors, (1992] 4 SCC 305 (2 Judges)
para 109.

"It is thus clear that only a person acting bona fide an.i having
sufficient interest in the proceeding of PIL will alone have a locus F
standi and can approach the court to wipe out the tears of the poor
and needy, suffering from violation of their fundamental rights, but
not a person for personal gain or private profit or political motive or
any oblique consideration. Similarly, a vexatious petition under the
colour of PIL brought before the court for vindicating any personal
grievance, deserves rejection at the threshold." G
Dattaraj Nathuji Thaware v. State of Maharashtra and Ors., (2005] 1
SCC 590 (Hon. Arijit Pasayat and Hon. S.H.Kapadia, JJ) and invited our
attention to para 4,5,9,10,12 and 14.

Ashok Kumar Pandey v. State of W.B., [2004] 3 SCC 349 para 12 H
766 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A
"12. Public interest litigation is a weapon which ha~ to be used with
great care and circumspection and the judiciary has to be extremely
careful to see that behind the beautiful veil of public interest an ugly
private malice, vested interest and/or publicity-seeking is not lurking.
B It is to be used as an effective weapon in the armory of law for
delivering social justice to citizens. The attractive brand name of
public interest litigation should not be used for suspicious products
of mischief. It should be aimed at redressal of genuine public wrong
or public injury and not publicity-oriented or founded on personal
C vendetta. As indicated above, Court must be careful to see that a
body of persons or a member of the public, who approaches the court
is acting bona fide and not for personal gain or private motive or
political motivation or other oblique considerations. The Court must
not allow its process to be abused for oblique considerations. Some
persons with vested interest indulge in the pastime of meddling with
D judicial process either by force of habit or from improper motives.
Often they are actuated by a desire to win notoriety or cheap popularity.
The petitions of such busybodies deserve to be thrown out by rejection
at the threshold, and in appropriate cases, with exemplary costs."

S.P. Gupta v. Union of India and Anr., (1981] Supp SCC 87 7 Judges)
E para24
"24. But we must be careful to see that the member of the public, who
approaches the Court in cases of this kind, is acting bona fide and
not for personal gain or private profit or political motivation or other
oblique consideration. The Court must not allow its process to be
F abused by politicians and others to delay legitimate administrative
action or to gain a political objective. Andre Rabie has warned that
"political pressure groups who could not achieve their aims through
the administrative process" and we might add, through the political
process, "may try to use the Courts to further their aims". These are
G some of the dangers in public interest litigation which the Court has
to be careful to avoid. It is also necessary for the Court to bear in
mind that there is a vital distinction between locus standi and
justiciability and it is not every default on the part of the State or a
public authority that is justiciable. The Court must take care to see
that it does not overstep the limits of its judicial function and trespass
H into areas which are reserved to the Execut:ve and the Legislature by
RAJJV RANJAN SINQH 'LALAN' v. U.0.1. [LAKSHMANAN, J.] 767

the Constitution. It is a fascinating exerCise for the Court to deal with A
public interest litigation because it is a new jurisprudence which the
Court is evolving, a jurisprudence which demands judicial
statesmanship and high creative ability. The frontiers ofpublic law are
expanding far and wide and new concepts and doctrines which will
change the complexion of the law and which were so far as embedded B
in the womb of the future, are beginning to be born."

Mr. Rohatgi submitted that this Court should monitor the conduct of
the trial relating to the fodder scam cases against respondent Nos. 4 and 5.

Union of India and Ors v. Sushi/ Kumar Modi and Ors., [1998] 8 SCC
661 (3 Judges) para 6 C
"6. This position is so obvious that no discussion of the point is
necessary. However, we may add that this position has never been
doubted in similar cases dealt with by this Court. It was made clear
by this Court in the very first case, namely Vineet Narain v. Union D
of India, [ 1996] 2 SCC 199 that once a charge-sheet is filed in the
competent court after completion of the investigation, the process of
monitoring by this Court for the purpose of making the CBI and
other investigative agencies concerned perform their function of
investigating into the offences concerned comes to an end; and
thereafter it is only the court in which the charge-sheet is filed which E
is to deal with all matters relating to the trial of the accused,
including matters falling within the scope of Section 173(8) of the
Code of Criminal Procedure. We make this observation only to reiterate
this clear position in law so that no doubts in any quarter may
survive. It is, therefore, cl.ear that the impugned order of the High F
Court dealing primarily with this aspect cannot be sustained."

(emphasis supplied)

It is thus clear from the above judgment that once a charge-sheet is filed
in the competent Court after completion of the investigation, the process of
monitoring by this Court for the purpose of making the CBI and other G ·
investigative agencies concerned perform their function of investigating into
offences concerned comes to an end and thereafter, it is only the Court in
which the charge-sheet is filed which is to deal with all matters relating to the
trial of the accused including matters falling within the scope of Section
173(8). H
768 SUPREME COURT REPORTS (2006) SUPP. 4 S.C.R.

A We respectfully agree with the above view expressed by this Court. In
our view, monitoring of pending trial is subversion of criminal law as it stands
to mean that the Court behind the back of the accused is entering into a
dialogue with the investigating agency. Therefore, there can be no monitoring,
after the charge sheet is filed.

B This Court issued a direction on 22.02.2005 to the President of the
Income-tax Appellate Tribunal to submit a detailed report in regard to the
allegations made by the petitioners. Pursuant to the directions of this Court,
the President of ITAT filed a detailed report dated 09.03.2005. A perusal of
which shows that there is not an iota of truth in the allegation and all the
C aforesaid averments are completely baseless. As noticed earlier, certain
allegations were made against Mr. R.K. Tyagi and Mr. Mohanarajan whom,
according to the petitioners, were due for retirement was appointed to head
the Tribunal. It was further stated that on 02.07 .2004 Mr. R.K. Tyagi who had
been hearing the appeal of respondent Nos. 4 and 5 was sent on deputation
for 2 weeks and was replaced by Mr. Mohanarajan, a person who was on the
D verge of the retirement to head the Tribunal and that the said Mohanarajan
picked up only the cases pertaining to respondent Nos. 4 and 5 and heard
the matter and allowed in favour of the assesses and that no appeal has been
filed against the said order.

On 22.02.2005, an order was passed by this Court directing the Union
E of India to produce before this Court the proposal of CBI dated 20.07.2004
and the entire file including notations pertaining to the appointment of Mr.
Uma Shankar Shanna as prosecutor. fhe President, IT AT was directed to send
to this Court all papers pertaining to constitution of the Bench of Mr.
Mohanarajan and Mr. M.K. Sarkar and also to sent copies/order sheets of ITA
F Nos. 233-237 of 2000 etc. etc. The President, ITAT was directed to state
whether Mr. R. K. Tyagi was sent on deputation for two weeks during the
period the other two persons were appointed and if so why and on whose
behalf he was sent on deputation.

On 09.03 .2005, Mr. Vimal Gandhi, President, ITAT submitted his report.
G Flash figures of investigation, disposal and dependency of appeals for the
month of April, 2004 and the position as on 01.05.2004 with reference to the
various benches in the country was furnished (Annexure-2). lt is seen from
the report that Mr. D.K. Tyagi, JM, Patna had left India without obtaining
pennission as required under the rules and he was accordingly issued a show
H cause notice to explain about the Jets of indiscipline. This was done in early
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [LAKSHMANAN, J.] 769

June. Mr. Tyagi also explained the circumstances under which he had gone A
abroad etc. The President acceded to his request on compassionate grounds
and permitted him to remain in Delhi without any T.A. D.A. for I month from
June, 21 onwards. The President, ITAT, therefore, has stated that it is not
correct to suggest that Tyagi was shunted out of Patna by him.

Insofar as Mohanarajan is concerned, the President has explained the B
position with regard to Mohanarajan and M.K. Sarkar. He said Mr. Mohanarajan
joined the Tribunal as Judicial Member in November, 1995 and posted at
Jabalpur, Chennai, Patna and Bangalore and he served in Patna from 02.09.2002
onwards till he was transferred to Bangalore in March, 2003. He is sobre in
nature and that he is to retire on 06.11.2009 and he had never sat with Mr. C
Sarkar earlier. When Mr. Agarwal's inability to tour Patna was made known
to the President in Bangalore, Mohanarajan's name came to his mind as an
appropriate person to replace Mr. D.K. Agrawal and he was accordingly
directed to camp at Patna in June, 2004 and that the camp was organized
accordingly. Insofar as Mr. M.K.Sarkar is concerned, he before joining the
Appellate Tribunal Mr. Sarkar was asked managed to Patna and other Benches D
on camp till regular members were available as pendency at Kolkata was also
low. The details of tour of Sarkar to Patna in 2004 has also been furnished.

The learned Solicitor General then invited our attention to Annexure-7
filed along with the report of the President, ITAT. Respondent No. 4 Mr.-
Latu Prasad, by his letter dated 15.10.2003, addressed a letter to the President, E
!TAT, New Delhi requesting for transfer of appeals filed before Patna Bench
of the Tribunal to Delhi Bench in his case. On 17.10.2003, the President made
a note on the said letter to call for comments/objections, if any, from the
Department/Patna Bench by fax. Mr. Latu Prasad has stated in the said letter
that since he is elected as a Member of Rajya Sabha and performed duties p
as a Member of Rajya Sabha he has to be present in Delhi and, therefore, the
appeals may be transferred from Patna to Delhi Bench. By annexure-8, the
Patna Bench gave its response on 31. 12.2003 stating that the legal aspect of
the matter was being examined and that a final report will follow soon. By
annexure-9 dated 08.01.2004, the Directorate General of Income-tax Patna
addressed a letter to Assistant Registrar, ITAT Patna Bench as to whether G
constituting a special Bench for early disposal of the appeals of Shri Latu
Prasad. Annexure-9 was in reply to the ITAT Patna Bench letter dated
11.11.2003 and during that time the present Government was not in power. By
Annexure-10 the DGIT by their letter dated 23.04.2004 stated that it would not
be possible to agree to transfer the appeals of Mr. Latu Prasad from ITAT, H
770 Sl!PREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A Patna B.:nch to !TAT, Delhi Bench and it may be worthwhile to consider
constituting a special Bench for early disposal of these appeals. It is seen
from annexure-12 dated 11.03.2004 signed by M.A. Bakshi, V.P. !TAT,
Chandigarh Zone that it may not be necessary to constitute a special Bench
for disposal of the appeals n:lating to Mr. Latu Prasad.

B In regard to the prayer for cancellation of the bail at the instance of the
petitioner. we are of the opinion that the said request cannot at all be
countenanced. Our attention was drawn to order dated 14.07.2003 passed by
this Court which reads thus:

"We have been extending bail from time to time for a period of six
c months in order to monitor the trial. In our view, it is not now necessary
to do so any further. We, therefore, order that the bail which has been
granted by this Court will continue for the duration of the case on the
same terms and conditions. We clarify that it will be open to the C.B.I
to apply for cancellation of bail in accordance with law in this court.
D Further, if it is found that the petitioner is deliberately protracting the
trial or taking unnecessary adjournments then that by itself would be
a ground for cancellation of bail."

Mr. Rohatgi submitted that respondent Nos. 4 and 5 are interfering with
the cause of justice so far as conduct of the trial and IT proceedings are
E concerned and, therefore, the bail granted to them is liable to be cancelled.
This submission has no merits in view of the arguments advanced by learned
Solicitor General inviting our attention to the various documents and annexures
etc. to the effect that the respondent Nos. 4 and 5 have never interfered with
the conduct of trail or with the IT proceedings. It is stated that respondent
F Nos. 4 and 5 are deliberately protracting the trial by taking unnecessary
adjournments. Then that itself would be a ground for cancellation of bail. This
argument has no substance. It is a fact that the matter was adjourned at the
instance of the defence on various occasions. Court itself has adjourned the
matter for vari.ius reasons. We, therefore, cannot hold that the delay is solely
attributable to respondent Nos. 4 and 5 which, in our opinion, cannot be a
G ground for cancellation of bail when it is not proved that any of the bail
conditions has been violated. The delay is attributable to both the prosecution
and the defence and also to the Court. Therefore, respondent Nos. 4 and 5
cannot be held responsible for the delay.

Mr. Rohatgi argued that Munni Lal Paswan should be changed from the
H present place and some other officer should be posted there. Mr. Ram
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [LAKSHMANAN, J.] 771

Jethmalani, at the time of hearing, explained to this Court as to how and under A
what circumstances the earlier incumbent of the office - Mr. Yogendra Prasad
was shifted at his own request and that how Munni Lal Paswan was promoted
recently and posted at Patna for the conduct of the matters. We summoned
the Registrar General of Patna High Court on 26.07 .2006. The Registrar General
Madhusudhan Singh has also filed an affidavit in regard to the three queries B
raised by us. The Registrar General explained to this Court in regard to the
practice in the High Court of Patna and how the matter is placed before the
Standing Committee and the remarks of the inspecting Judges and the guard
files which are maintained separately of each officers which were made available
to the Standing Committee. The said fact also finds mention in the decision
dated 22.06.2005 of the Standing Committee. In regard to query No.3 the C
Registrar has submitted as follows:-

That in regard to Query No.3 of this Hon 'ble Court as mentioned in
the order dated 26.7.2006, I respectfully say and submit that the
remarks of the Hon'ble Inspecting Judge in case of Shri Jawahar
Prasad Ratnesh was of the year 1985, 1986-87, 1988, 200 I, 2003 and D
2005 (and remarks recorded by P.O., Industrial Tribunal, Patna in
1998). In respect of Shri Ram Ni was Prasad, the remarks recorded by
the Hon'ble Inspecting Judge was of 1985, 1986, 1997 and 2002. As
regards Shri Munni Lal Paswan, the remarks recorded by the Hon'ble
Inspecting Judge was of 1985 and 1990 and by Vice•Chainnan, Industrial E
Tribunal, Patna Bench in 1997 ."

We have perused the records submitted by the High Court in regard to
the officers including Munni Lal Paswan. There is absolutely no adverse
entry against Munni Lal Paswan and that poor record if any is not the record
of integrity and that no gradation has been given to officers after 1997 F
onwards including Paswan.

We have perused the proceedings of the meetings of the Standing
Committee held on 22.06.2005 in the chambers of the Hon'ble Chief Justice
which reads thus:
G
Proceedings of the meeting of the Standing Committee held on 22nd
June, 2005 in the Chambers of the Hon'ble the Chief Justice:

H
772 SUPREME COURT REPORTS (2006) SUPP. 4 S.C.R.

A Agenda Decision

To consider the matter regarding Having considered the relevant service
Postings if three Special Judges at records of the officers concerned and also
Patna for C.B.I. (Foddert!Scam taking into consideration the fact that
Cases), C.B.I. (South Bihar) and no allegation petition has been recieved
B Vigilance Cases (Court No. I) in against Sri Muni Lal Paswan. Additional
Place of S/Shri Yogendra Prasad, District Judge, Saharsa. It is resolved that
Mungeshwar Sahoo and Jitendra let him (Sri Muni Lal Paswan) be posted
Mohan Sharma, respectively (P.F. as Special Judge for C.B.I. (Fodder Scam
XXVII-5-98) Cases) at Patna. It is further resolved upon

c consideration of the relevant service records
of the officers concerned that Sri J.P.
Ratnesh, Additional District Judge, Patna,
be posted as Special Judge, C.B.I. (South ...,....
Bihar) and Sri Ram Niwas Prasad,
Additional District Judge, Patna as Special
Judge for Vigilance Case (Court No. I).
D
In view of the urgency of the matter,
the office is directed to take necessary steps
for issue of notification immediately.
Sd/- Nagendra Rai, Actg, C.J.
Sd/- LP.Singh, J.A.D. I
E Sd/- R.N. Prasad, 1.A.D. II
Sd/- Barin Ghosh, J.
Sd/- M.L. Visa, J.
Sd/- Rajendra Prasad, J."

It is thus seen from the above that all the relevant service records of
F the officers concerned including Munni Lal Paswan was placed before the
Standing Committee which took into consideration the fact that no allegation
petition has been received against Munni Lal Paswan, Addi. District Judge.
It was resolved that Munni Lal Paswan be posted as Special Judge, CBI
Fodder scam cases at Patna. The Registrar General had also stated at the time
G of headng that the resolution of the Standing Committee was also placed
before the Full Court which also approved the same.

Article 233 of the Constitution of India deals with subo~dinate Courts.
The appointment of persons, posting and promotion of District Judges in any
-
State shall be made by the Governor of the State in consultation with the High
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [LAKSHMANAN, J.] 773
Court exercising jurisdiction in relation to such State. Likewise, under Article A
235 the control over district courts and courts subordinate thereto including
the posting and promotion of and the grant of leave to persons belonging
to judicial service of a State and holding any post inferior to the post of
District Judge shall be vested in the High Court.

The appointment of lawyers is the prerogative of the Government and B
the prosecuting agency. The petitioners are trying to find fault with every
attempt with every steps taken. Cases like this the delay is inevitable.

It is also settled law that appointment of advocates, public prosecutors
etc. is the prerogative of the government in power and court has no role to C
play.

In the above case, the Standing Committee has taken a decision to
appoint Munni Lal Paswan and other office~s after scrutinizing the records,
ACRs etc. in accordance with Article 233 and 235 of the Constitution oflndia
which is the prerogative right of the Standing Committee and the High Court D
and when a decision is taken it is not for this Court to scrutinize the correctness
of the decision that too at the instance of third parties.

In regard to the prayer of the petitioner to direct the Government of
India to file the appeal in the income-tax matters, we are of the opinion that
the said prayer also cannot at all be countenanced. In this regard, Section 260- E
A(!) and (2)(a) may be referred to which reads as under:

"260A. Appeal to High Court (I) An appeal shall lie to the High Court
from every order passed in appeal by the Appellate Tribunal, if the
High Court is satisfied that the case involves a substantial question
~~ F
(2) The Chief Commissioner or the Commissioner or an assessee
aggrieved by any order passed by the Appellate Tribunal may file an
appeal to the High Court and such appeal under the sub-section shall
be-
G
(a) filed within one hundred and twenty days from the date on which
the order appealed against is received by the assessee or the
Chief Commissioner or Commissioner;
(b) ******
(c) ******" H
774 SUPREME COURT REPORTS [2006) SUPP. 4 S.C.R.

A In this regard, counter affidavit filed on behalf of the Under Secretary
to the Government of India, Ministry of Finance may be usefully referred to.
It is stated in the said counter affidavit that the matter has been fully considered
and legal opinion was sought by BCIT investigation, Patna and that the
opinion of the learned ASG was received stating that there is no substantial
B question of law for filing an appeal and that the consideration of this aspect
had been done properly and independently and there have been no extraneous
consideration.

This apart, another affidavit was filed by Mr. L.K. Sighvi, the Chief
Commissioner of Income-tax (VIII), New Delhi para I
c "I was the Director General IT (Inv.), Patna during the relevant period
when decision was taken regarding filing of appeals pertaining to the
ITAT orders in the cases of Smt. Rabri Devi and Shri. Lalu Prasad
Yadav before the Hon 'ble High Court at Patna. Considering the facts
and circumstances of the case and the fact that the present petition
D was pending before this Hon 'ble Court, I thought it fit to refer the
matter to the CBDT for consideration and seeking opinion from the
Ministry of Law. The CBDT and the Ministry of Finance obtained the
opinion of the Ministry of Law to the effect that no substantial
questions of law arose out of the judgments of the ITAT in the cases
of Smt. Rabri Devi and Shri La/u Prasad Yadav for filing appeals
E before the Hon'ble High Court. Accordingly, instructions were issued
by me that appeals would not be filed in respect of these cases.

It is thus seen that the Government of India has taken into consideration
the views of the Ministry of Law, Ministry of Finance to the effect that no
F substantial questions of law arise out of the judgments of the IT AT in the
case of respondent Nos. 4 and 5 for filing appeals before the High Court and
that instructions were issued that appeals would not be filed in respect of
those cases.

Certain allegations have been made against CBDT and the Public
G Prosecutors, Members of the Income-tax Tribunal etc. None of them were
made parties before us. Therefore, the allegations made against them are one-
sided and cannot be looked into at all. We cannot also say that all these
authorities have acted in a ma/a fide manner.

In our opinion, public interest litigation meant for the benefit of the lost
H and lonely and it is meant for the benefit of those whose social backwardness
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 775
is the reason for no access to the Court. We also say that PILs are not meant A
to advance the political gain. and also settle their scores under the guise of
a public interest litigation and to fight a legal battle. In our opinion, the liberty
of an accused cannot be taken away except in accordance with the established
procedure of law under the Constitution criminal procedure and other cognate
statutes. We are also of the opinion that PlL is totally foreign to pending B
criminal proceedings. The records placed before us would only go to show
that respondent No.4 had no hand in any of these matters whether in the
appointment of judges or in the change of the. prosecutor or on the decision
not to file an appeal in the income tax cases.

For the foregoing reasons, we hold that both the writ petitions have no C
merit and is liable to be dismissed and accordingly we do so.

In the circumstances, we order no costs. Before concluding, we say that
the petitioners are waging a political battle against respondent Nos. 4 and 5
through the medium of Public Interest Litigation. The venue for political
battle, in our opinion, can never be this Court by filing a writ petition under D
Article 32 of the Constitution of India.

S.H. KAPADIA, J. I have had the privilege of reading the opinions of
Brother Justice Balakrishnan and Brother Justice Lakshmanan, I have to
record my respectful dissent with the views expressed by my learned brothers.
E
In these writ petitions under Article 32 of the Constitution, filed to
enforce Article 14 of the Constitution, following three issues arise for
determination:

(a) ·Whether the writ petitions were maintainable as Public Interest
Litigation; F
(b) whether there was failure of statutory and public duty on the part
of the Revenue in not preferring an appeal to the High Court
under Section 260A of the Income Tax Act, 1961; and
(c) whether the procedure adopted at the time of posting Mr. Munni
...,._ Lal Paswan, ADJ as Special Judge, CBI, Patna (Fodder Scam G
Cases) on 22.06.2005, needs to be relooked by the Patna High
Court.
(a) WHETHER THE WRIT PETITIONS WERE MAINTAINABLE AS
,.. PUBLIC INTEREST LITIGATION:
H
776 SUPREME COURT REPORTS (2006] SUPP. 4 S.C.R.

A BACKGROUND FACTS.

Large-scale defalcation of public funds, fraudulent transactions and
falsification of accounts, of around Rs.500 crores, came to light in the Animal
Husbandry Department of the State ofBihar. This scam took place during the
period 1977 to 1996. A similar situation existed in the Education, Corporation
B and Fisheries Departments. By judgment dated 11.03.1996 delivered by the
Division Bench of the Patna High Court in Writ Petition No.459 of 1996 the
High Court, in exercise of its powers under Article 226 of the Constitution,
took away the investigation from the State police and entrusted it to CBI. The
said decision of the Patna High Court was challenged by the State vide Civil
C Appeal Nos. 5177-81 of 1996. By judgment dated 19.03.96, this Court observed
that the exercise of the power under Article 226 in a public interest litigation
was not to give any advantage to a political party or group of people but it
was done to investigate corruption in public administration, misconduct by
the bureaucracy, fabrication of official records and misappropriation of public
funds. Therefore, this Court refused to interfere with the impugned judgment
D of the Patna High Court [See: State of Bihar and Anr. v. Ranchi Zila Samra
Party and Anr., [1996] 3 SCC 682].

In the case of Union of India and Ors. v. Sushi/ Kumar Modi and Ors.,
[1996] 6 SCC 500 certain allegations were made against the then Director, CBI,
in the context of investigations into the above fodder scam. The relevant
E paragraphs 11 and 14 of the said judgment are quoted hereinbelow:

"11. We deem it proper to emphasise that every officer of the CBI
associated with the investigation has to function a~ a member of a
cohesive team which is engaged in the common pursuit of a fair,
honest and complete investigation into the crimes alleged. It is needless
F to further emphasise that the exercise has to be performed objectively
and fairly, mindful of the fact that the majesty of law has to be upheld
and the 'rule of law' preserved, which does not discriminate between
individuals on the basis of their status, position or power. The law
treats everyone as equal before it and this has to be kept in view
G constantly in every State action to avoid violation of the 'right to
equality' guaranteed in Article 14 of the Constitution.

14. It appears necessary to add that the Court, in this proceeding, is
concerned with ensuring proper and honest performance of its duty
by the CBI and not the merits of the accusations being investigated,
H which are to be determined at the trial on the filing of the chargesheet
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 777
in the competent court, according to the ordinary procedure prescribed A
by law. Care must, therefore, be taken by the High Court to avoid
making any observation which may be construed as the expression of
its opinion on merits relating to the accusation against any individual.
Any such observation made on the merits of the accusation so far by
the High Court, including those in Para 8 of the impugned order are B
not to be treated as final, or having the approval of this Court. Such
observations should not, in any manner influence the decision on
merits at the trial on the filing of the chargesheet. The directions given
by this Court in its aforesaid order dated March 19, 1996 have to be
understood in this manner by all concerned, including the High Court."

PLEADINGS
c
On 31.08.2004 the present Writ Petition (Crl.) Nos.197-198 of 2004 were
filed for enforcement of Article 14 of the Constitution. Briefly, it is alleged that
the Union of India (respondent no. I) and other respondents (including
respondent nos.4 and 5) are allegedly committing acts of misfeasance in D
relation to the corruption cases pending before the Special Judge, CBI, Patna
as well as in the appeals preferred by the accused before the Income Tax
Appellate Tribunal. Respondent no.4 is Smt. Rabri Devi, former Chief Minister
of Bihar and respondent no.5 is Mr. Latu Prasad, former Chief Minister of
Bihar. In the writ petitions it is alleged that trial judge as well as the Member
·'
(Judicial) of the Income Tax Appellate Tribunal who are found to be inconvenient E
are being transferred and supplanted with the chosen ones. That, even the
judgment of the Income Tax Appellate Tribunal (for short, 'the Tribunal')
allowing the appeal in favour of the assessees for the assessment years 1986-
87 to. 1996-97, though involving substantial questions of law, has not been
challenged by the Revenue by filing appeals under Section 260A of the p
Income Tax Act, 1961 (for short, 'the l.T. Act') in order to protect some of
the respondents-accused.

Respondent nos.4 and 5. as well as Union of India have categorically
denied the allegations made by the petitioners. It is the case of the respondents

•. that irrespons:bte statements have been made in the petitions without having G
any basis; that, political battles were being fought in the name of public
interest litigation (for short, 'PIL') by politicians and that respondent nos.4
and 5 had no role to play either in the transfer of lawyers in the criminal case,
in the transfer of the trial judge or in the constitution of the Special Bench
of the Tribunal. They have further submitted that they have no role to play H
778 SUPREME COURT REPOR rs [2006] SUPP. 4 S.C.R.

A in Revenue Department not going m appeal to the High Court under Section
260A of the I. T. Act. It is submitted that the Revenue Department took the
opinion of Additional Solicitor General of India who has certified that no
substantial questions of law arise for determination by the High Court under
Section 260A of the LT. Act. Accordingly, it is submitted by the respondents
B that the writ petitions deserve to be dismissed with heavy costs.

SUBMISSIONS

Mr. Ram Jethmalani, learned senior counsel appearing on behalf of
respondent nos.4 and 5, raised the preliminary objection stating that PIL has
no role to play in pending criminal proceedings. He submitted that if the
C petitioner is a politician and if it is found that the object is to win political
battle then PIL should be dismissed with costs. He submitted that in the
present case the PIL is politically motivated; that, in the present petitions
there is no breach of Article 14 and, therefore, it deserves to be dismissed
with strictures against the petitioners. Learned senior counsel submitted that
D PIL is meant for the benefit of the lost and lonely who have no access to
courts or the legal system. Learned senior counsel submitted that when the
provisions of the Constitution are violated and loss is caused to a group of
persons who are handicapped then PIL is maintainable, if it is shown that they
have no access to legal system. It is submitted that respondents 4 and 5 are
the accused persons before the criminal court and the liberty cannot he taken
E away except by the procedure established by law; that, the criminal procedure
code requires that the guilt of the accused must be determined by a special
judge in the present case which is the court of exclusive jurisdiction and if
anybody, aggrieved by the decision of the special judge, is free to hold
appeal. Learned senior counsel submitted that the assessment orders passed
p by the Revenue Department under the I. T. Act cannot be used to prove
holding of disproportionate assets by respondent nos.4 and 5. He submitted
that in the present case the CBI pressurized the assessing officer to pass
assessment order against respondent nos.4 and 5. Learned senior counsel
further alleged that in some cases even the Commissioner of Income Tax
(Appeals) was persuaded to make order of assessment against respondent
G nos.4 and 5 and in such circumstances and even otherwise orders of
assessment cannot form the basis of trials dealing with accusation of
disproportionate assets by respondent nos.4 and 5. Learned senior counsel
submitted that in fact a bare perusal of the decision of the Tribunal in the
present case indicates although the appeal is allowed in favour of the assessees
H the Tribunal has decided every point against the assessee and in the
..
RAJIV RAN.TAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 779

circumstances the Department was right in not moving the High Court in A
appeal under Section 260A of the LT. Act. Learned senior counsel further
urged that respondent nos.4 and 5, who are the accused in the criminal trial,
should be allowed to pursue their defence. Learned senior counsel stated that
admittedly there was a scam and misappropriation of public property but that
should not give right to the petitioners to obstruct the course of justice or B
obstruct the rights given to the accused under Criminal Procedure Code,
Evidence Act and the Constitution.

Learned senior counsel submitted three propositions in the context of
the parameters of the PIL. He submitted that - firstly, every criminal trial has
to proceed according to the procedure established by law and every deviation C
from that procedure, even if by a judicial order could violate Article 21 of the
Constitution; secondly, in every PIL the locus standi of the petitioner should
be examined at the threshold; and thirdly, the source of his information must
be subjected to strict scrutiny. Learned senior counsel submitted that if any
of the three conditions are not fulfilled then PIL should be dismissed. In this
connection, learned senior counsel relied upon the judgments of this Court D
in support of his above submissions.

In the case of Janata Dal v. H.S. Chowdhary and Ors., [1992] 4 SCC
305 this Court observed that violation of a fundamental right is the sine qua
non of the exercise of the right conferred by Article 32; that, PIL is part of
the process of participatory justice and in a competition between courts and E
streets the rule of law must win and, therefore, the rule of locus standi must
be liberalized to meet the challenges of the times. This Court, further, noted
the judgment in A.R. Antulay v. Ramadas Sriniwas Nayak and Anr., [1984)
2 sec 500 in which it has been observed that locus standi of the complainant
is a concept foreign to criminal procedure jurisprudence except where the F
statute creates an offence which provides for the eligibility of the complainant
to set the criminal case in motion.

In para 92 of the said judgment the concept of PIL has been explained.
Any member of the public having sufficient interest can maintain an action
for judicial redress for public injury arising from breach of duty or violation G
of the Constitution. This is absolutely essential for maintaining the rule oflaw,
furthering the cause of justice and achieving the constitutional goals, subject
to a caveat which states that the member of the public who approaches by
way of PIL should be acting bona fide and not for personal gain, private
profit or political motivation.
H
780 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A In the case of Union of India v. Sushi/ Kumar Modi and Ors., [I998]
8 SCC 661 this Court has held that once a chargesheet is filed in the competent
court after completion of investigation the process of monitoring for the
purposes of making the CBI and other investigating agencies to perform their
function comes to an end and, thereafter, it is only the court in which the
B chargesheet is filed has to deal with all matters relating to the trial of the
accused, including matters falling within Section 173(8) ofCr.P.C. Relying on
this judgment, learned senior counsel for respondent nos.4 and 5 stated that
in the present case the chargesheet has been filed and, therefore, the process
of monitoring has ended. It is urged that since the chargesheet has been filed
the criminal trial should be allowed to take its own course without any further
C interference from any court outside the trial court.

In the case of Dattaraj Nathuji Thaware v. State of Maharashtra and
Ors., [2005] I SCC 590 the Division Bench of this Court on facts found that
the petitioner was a lawyer who had filed PIL. He was a blackmailer. In the
circumstances the PIL was dismissed with costs. It is in that light, that the
D Division Bench of the Court speaking through Pasaya!, J. stated the parameters
of PIL. Learned senior counsel for respondent nos.4 and 5 has referred to para
4 of the said judgment in support of his contention that PIL is maintainable
to help poor and needy who have no access to the legal system. I quote
hereinbelow para 4 of the said judgment.
E "4. When there is material to show that a petition styled as a public
interest litigation is nothing but a camouflage to foster personal
disputes, the said petition is to be thrown out. Before we grapple with
the issue involved in the present case, we feel it necessary to consider
the issue regarding public interest aspect. Public Interest Litigation
F which has now come to occupy an important field in the administration
of law should not be "publicity interest litigation" or "private interest
litigation" or "politics interest litigation·' or the latest trend "paise .
income litigation". The High Court has found that the case at hand
belongs to the last category. If not properly regulated and abuse
averted, it beco'!les also a tool in unscrupulous hands to release '
G vendetta and wreck vengeance, as well. There must be real and genuine
public interest involved in the litigation and not merely an adventure
of knight errant borne out of wishful thinking. It cannot also be
invoked by a person or a body of persons to further his or their
personal causes or satisfy his or their personal grudge and enmity.
H Courts of justice should not be all-owed to be polluted by unscrupulous
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.) 781

litigants by resorting to the extraordinary jurisdiction. A person acting A
bona fide and having sufficient interest in the proceeding of public
interest litigation will alone have a locus standi and can approach the
Court to wipe out violation of fundamental rights and genuine infraction
of statutory provisions, but not for personal gain or private profit or
political motive or any oblique consideration. These aspects were B
highlighted by this Court in The Jania Dal v. HS. Chowdhary, [1992]
4 SCC 305 and Kazi Lhendup Dorji v. Central Bureau ofInvestigation,
[ 1994] Supp 2 SCC 116. A writ petitioner who comes to the Court for
relief in public interest must come not only with clean hands like any
other writ petitioner but also with a clean heart, clean mind and clean
objective. (See Ramjas Foundation v. Union of India, [1993] Supp 2 C
SCC 20 and K.R. Srinivas v. R.M. Premchand, [1994] 6 SCC 620.)"

To the same effect is the ratio of the decision of the Division Bench of
this Court in the case of Gurpal Singh v. State of Punjab and Ors., [2005]
5 SCC 136. In the said judgment it has been held that PIL will not lie in cases
of personal and political rivalry. While laying down the parameters the Division D
Bench speaking through Pasayat, J. observed that in the PIL nobody should
be allowed to make wild and reckless allegations spoiling the characters of
others; that, PIL is not maintainable in cases of personal vendetta. However,
in the said judgment it has been held that the court can act if it is satisfied
with the correctness or the nature of the information given by the petitioner. E

Mr. Goolamhusein E. Vahanvati, Learned Solicitor General of India,
appearing for Union of India, adopted the arguments advanced by Mr. Ram
Jethmalani, learned senior counsel, on the preliminary issue. He, however,
added that in the present case reckless allegations have been made without
any basis against important functionaries, judges and authorities under the F
I. T. Act. He submitted that the petitioners cannot destroy the service careers
of the government officers without any reason on basis except for their own
political rivalry with respondent no.5. He submitted that there.is no violation
of law or the Constitution, particularly, when Mr. Yogender Prasad, the earlier
trial judge who had extensively heard the matter, was promoted as District
Judge. Learned counsel further submitted that constitution of the Special G
Bench by the President of the Tribunal was done in the circumstances spelt
out in the various affidavits; that the matter was required to be expeditiously
heard which led to the constitution of the Special Bench; and that decision
was not arbitrary, as alleged. There is nothing on record to indicate that
favoured judges/members were appointed and that inconvenient judges/ H
782 SUPREME COURT REPORTS (2006] SUPP. 4 S.C.R.
,.
A members were dispensed with to favour the accused in the present case.
Learned senior counsel relied upon the judgment of this Court in the
case of TN. Godavarman Thirumu/pad (98) v. Union of India and Ors.,
(2006) 5 SCC 28 where this Court speaking through learned Chief Justice of
India has held vide para 26 as follows:
B
"26. For the last few years, inflow of public interest litigation has
increased manifold. Considerable judicial time is spent in dealing with
such cases. A person acting bona fide alone can approach the court
in public interest. Such a remedy is not open to an unscrupulous
person who acts, in fact, for someone else. The liberal rule of locus
c standi exercised in favour of bona fide public interest litigants has
immensely helped the cause of justice. Such litigants have been
instrumental in drawing attention of this Court and High Courts in
matters of utmost importance and in securing orders and directions for
many under-privileged such as, pavement dwellers, bonded labour,
D prisoners' conditions, children, sexual harassment of girls and women,
cases of communal riots, innocent killings. torture, long custody in
prison without trial or in the matters of environment, illegal stone
quarries, illegal mining, pollution of air and water, clean fuel, hazardous
and polluting industries or preservation of forest as in the TN.
<Jodavarman Thirumulpad (!) v. Union of India, (1997] 2 SCC 267.
E While this Court has laid down a chain of notable decisions with all
emphasis at their command about the importance and significance of
this newly developed doctrine of PIL, it has also hastened to sound
a red alert and a note of severe warning that courts should not allow
their process to be abused by a mere busybody or a meddlesome
F interloper or wayfarer or officious intervener without any interest or
concern except for personal gain or private profit or other oblique'
consideration. (See Jana/a Dal v. H.S. Chowdhary and Ors., (1992]
4 sec 305)."

FINDINGS:
G
At the outset, it Peeds to be noted that in this case we are concerned
not with the merits of the allegations but with the decision-making process,
be it in the posting of Mr. Munni Lal Paswan, Special ;udge, CBI, Patna or
in the matter of the Revenue Department not moving in appeal to the High
Court under Section 260A of the I.T. Act despite there being substantial
H questions of law arising from the impugned judgment of the Tribunal. It is
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 783
submitted on behalf of the petitioners that the present writ petitions should A
be seen in the context of the earlier two decisions of the Supreme Court under
which investigations were handed over to CBI as an amount of around Rs.500
crores stands misappropriated in the fodder scam. It is the case of the
petitioners that the present case should be seen in the light of the directions
given by the Supreme Court in the cases of Ranchi Zita Samia Party (supra) B
and Sushi! Kumar Modi (supra).

The present petitions are filed on the alleged acts of misfeasance. The
test which one has to apply to decide the maintainability of the PIL concerns
sufficiency of the petitioner's interest. Under this test it is necessary to
consider the subject matter to which the PIL relates. It is wrong in law for the C
court to judge the applicant's interest without looking at the subject matter
of his complaint. Ifthe petitioner shows failure of public duty, the court would
be in error in dismissing his PIL.

In the case of Inland Revenue Commissioners v. National Federation
of Self-employed and Small Business Ltd., reported in (1982) Appeal Cases D
617, a declaration was sought that the Revenue had acted unlawfully in
granting amnesty to the trade union of casual workers and accordingly a writ
of mandamus was sought to assess and collect income tax from casual
workers according to law. In the Divisional Court when the motion for judicial
review came, the point of locus standi was treated as a preliminary point. The
Divisional Court refused the leave saying that the petitioner had no power E
to bring such an action. The Court of Appeal by majority reversed the
decision of the Divisional Court and made a declaration that the applicants
have sufficient interest to apply for judicial review. Upholding the decision
of the Division C<mrt it was held by the House of Lords that the question
of sufficient interest of the petitioner cannot be considered in the abstract. F
It must be taken together with the legal and factual context. It was held that
the management of tax recovery falls within the domain of the Revenue but
if that act of management is found to be based on exercise of its authority
for extraneous reasons, then judicial review would certainly lie. It was held
that the Revenue Department was incharge of assessment and collection of
taxes for the welfare of the State; that, it was responsible for good management G
under the statute; that, if it was found that the Board was proposing to
exercise its authority or if the Board was refraining itself from exercising its
power not for good reasons of good management but for some extraneous or
ulterior reasons then that action or inaction by the Board would be ultra vires
and such a matter would be a proper matter for judicial review. In this respect H
784 SUPREME COURT REPORTS [2006) SUPP. 4 S.C.R.

A the following observation made by the House of Lords at pages 636-637 is
quoted hereinbelow:

"It is, in my view, very much to be regretted that a case of such
importance to the development of English public law under this new
procedure should have come before this House in the form that it
B does as a result of what my noble and learned friend, Lord Wilberforce,
has described as the unfortunate course that was taken in the courts
below when, leave to apply for judicial review having been previously
granted ex parte, the application itself came on for hearing. This has
had the result of deflecting the Divisional Court and the Court of
Appeal from giving consideration to the questions (I) what was the
c public duty of the Board of Inland Revenue of which it was alleged
to be in breach, and (2) what was the nature of the breaches of that
duty that were relied upon by the federation. Because of this, the
judgment of the Court of Appeal, against which appeal to your
Lordships' House is brought, takes the form of an interlocutory
D judgment declaring that the federation "have a sufficient interest to
apply for judicial review herein."

As my noble and learned friend has pointed out, these two omitted
questions need to be answered in the instant case before it is possible
to say whether the federation have "a sufficient interest in the matter
E to which the application relates," since, until they are answered, that
matter cannot be identified. This is likely also to be the case in most
applications for judicial review that are not on the face of them
frivolous or vexatious. Your Lordships have accordingly heard full
argument on both these questions.

F As respects the statutory powers and duties of the Board of
In land Revenue, these are described and dealt with in several of your
Lordships' speeches. It would be wearisome if I were to repeat what
already has been, and later wi II be, better said by others. All that I
need say here is that the board are charged by statute with the care,
G management and collection on behalf of the Crown of Income tax,
corporation tax and capital gains tax. In the exercise of these functions
the board have a wide managerial discretion as to the best means of
obtaining for the national exchequer from the taxes committed to their
charge, the highest net return that is practicable having regard to the
staff available to them and the cost of collection. The board and the
H inspectors and collectors who act under their directions are under a
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 785

statutory duty of confidentiality with respect to infonnation about A
individual taxpayers' affairs that has been obtained in the course of
their duties in making assessments and collecting the taxes; and this
imposes a limitation on their managerial discretion. I do not doubt,
however, and I do not understand any of your Lordships to doubt,
that if the were established that the board were proposing to exercise
or to refrain from exercising its powers not for reasons of "good B
management" but for some extraneous or ulterior reason, that action
or inaction of the board would be ultra vires and would be a proper
matter of judicial review if it were brought to the attention of the
court by an applicant with "a sufficient interest" in having the board
compelled to observe the law." C
(emphasis supplied)

Applying the above test we have to ascertain in the present case
whether the decision of the Government in not preferring the appeal to the
High Court under Section 260A of the I.T. Act constituted inaction on the part D
of the Department. This question needs to be answered not in an abstract but
having regard to position in law and having regard to the facts of the present
case.

(b) WHETHER THERE WAS FAILURE OF STATUTORY AND
PUBLIC DUTY ON THE PART OF THE REVENUE IN NOT E
PREFERRJNG AN APPEAL TO THE HIGH COURT UNDER
SECTION 260A OF THE INCOME TAX ACT, 1961:

The facts of the case of the assessee, Smt. Rabri Devi, are as follows:
On 14.10.1996 the assessee filed voluntary returns for assessment years 1995-
96 and 1996-97. On 14.11.1996 she filed voluntary returns for assessment F
years 1986-87 to 1994-95 declaring various incomes which had escaped
assessment as she had not filed her returns earlier. The assessee also applied
for waiver of interest and penalty under Section 273A of the I.T. Act. In the
voluntary returns, the assessee disclosed income derived from dairy farming,
agriculture and rent from house property. Upon receipt of returns for the
assessment years 1995-96 and 1996-97 the Assistant Commissioner of Income G
Tax issued notice of defecting returns under Section 139 of the l.T. Act in
which it was alleged that regular books of accounts were not maintained; that,
return was not accompanied by a statement indicating the amount of turn-
. over, gross receipts, gross profits and net profits from business/profession.
The assessee also received notices under Section 148 of the I. T. Act for the H
786 SUPREME COURT REPORTS [2006[ SUPP. 4 S.C.R.

A period 1986-87 to 1994-95. The Assessing Officer recorded the reasons for
reopening the assessment for each of the above years. For example, the
reasons for reopening the assessment for the year 1986-87 are as follows:

"A notice u/s 131 A of the l.T. Act' 61 was issued to the husband
of the assessee, asking him to furnish, among other things, details of
B income of other family members and details of assets owned by such
family members. In reply to the said notice the assessee' husband
submitted that the assessee had been deriving k rental income from
house prope1ty at Sheikhoura since 1983-84 and from dairy farms
since 1975. Subsequently, the assessee on 25.1.0.96 filed details of her
immovable and movable properties before the ADIT (Inv.), Patna.
c From a perusal of this, it is noticed that the assessee has made
substantial investments in residential house at Sheikhoura, in
agricultural land at Saran and Patna and land at Danapur, Patna. It is
also noticed that she has made substantial investments in FDs, Kisan
Vikas Patras and National Savings Certificates, besides having a number
D of bank a/cs. The assessee has also contributed to the construction
of her husband's house property at Phulwari.

Despite having made such large investments, the assessee has never
filed Income-tax returns, nor has she be assessed to Income-tax in
past. Recently, the asscssee had filed a petition u/s 273 A of the I. T.
E Act' 61 before the CIT, Patna. Pursuant to this petition, she had also
filed a disclosure of !ncome Rs.70,000 for the A/Yin question in order
to explain the capital required for the investment that she has made.

All these information in our possession give us reason to believe that
at the very least a sum of Rs. 70,000 has escaped assessment for the
F AIY 1986-87. Owing to the failure of th.: assessee to file return within
stipulated time limit and to disclose material facts relevant to have
assessment at the appropriate time.

As more than four years from end of the assessment year have lapsed,
approval is solicited from DCIT, Range-I, Patna to issue notice u/s 148
G of the I. T. Act' 61. It is clarified that notice u/s 148 of the I. T. Act is
issuable as income escaping assessment exceeds the amount stipulated
iil section 149( l )(b ).
Sd/- Nikhil Choudhary 20.11.96
Asst. Commissioner of Income-tax,
H Sp!. Inv. Circle- I, Patna."
RAJIV RANJAN SINGH 'LALAN' v. U.O.l. [S.H. KAPADIA, J.] 787
need not go into further details regarding the alleged undisclosed A
income for each assessment year. Suffice it to state that additions have been
made by the Department to the income of the assessee under various orders
passed by the Assessing Officer and the Commissioner of Income Tax
(Appeals). These orders were challenged by the assessee before the Tribunal.

By the impugned judgment the appeals filed by the assessee were B
allowed by the Tribunal. While allowing the appeal of the assessee the
Tribunal held that the case involved highly intricate issues; that, these issues
were extremely difficult to understand; that, but for the assistance of the
learned advocates on both sides it was difficult to adjudicate such disputes.
At the same time the Tribunal without any basis castigated the officers of the
Department including the Commissioner (Appeals) saying that rampant
c
additions were made to destroy the case of the assessees and to destroy the
, political career of respondent no.5 (See: para 40 of the judgment of the
Tribunal). Similarly, the Tribunal has castigated the higher officers of the
Department saying that they were biased and that they had acted at the
behest of the Centre in clubbing the i'.1come of respondent no.4 with that of D
respondent no.5 who was going through political crisis (See: para 54 of the
said judgment).

There is no basis given in the impugned decision of the Tribunal for
making such strong observations against the officers of the Revenue. Although
the High Court under Section 260A of the l.T. Act would not have enquired E
into the sufficiency of materials or substituted its judgment for that of the
Tribunal in regard to facts, nevertheless, if the conclusion drawn by the
Tribunal is without any basis or based on irrelevant considerations then the
High Court was required ·to interfere under Section 260A.

PIL is not maintainable to. probe or enquire into the returns of another
F
taxpayer except in special circumstances. It is the ratio of the decision of
House of Lords in the case of National Federation of Self-employed (supra).
However, when scams take place, accusation of disproportionate assets are
required to be looked into.
G
In the case of MC. Mehta v. Union of India and Ors., (Taj Trapezium
Matter), [2003] 8 SCC 696 the Division Bench of this Court not only directed
CBI to investigate the cases against the bureaucrats but also to enquire the
outflow of Rs.17 crores released by the State of U.P. in respect of project

- undertaken by NPCC. In that matter the income tax returns of the former Chief
Minister and other officials were ordered to be collected by this Court. They H
788 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A were directed to be collected from various income tax authorities. The point ,..
to be noted is that the source of the funds plays a crucial role in investigations
by CBI in matters involving misappropriation of public funds. Departments
have to work in tandem. The evidentiary value of the collected material in the
criminal trial is a matter different from the collection of information by the
officers of the Revenue Department. In the present case officers of the
B Revenue have been condemned by the aforesaid judgment of the Tribunal.
Comments have been made without any basis and yet till today appeals have
not been filed by the government under Section 260A of the LT. Act. As
stated above, even the Tribunal has observed in its judgment that complicated
legal issues were involved in the matter; that, even the members of the
c Tribunal found it very difficult to understand those issues, particularly, matters
involving interpretation of Sections 131, 13 l(IA), 273A and 147/148 of the l.T.
Act. If the issues were so difficult for the members to understand, one fails
to appreciate why high-ranking officers of the Department were castigated by
the Tribunal. This Court has noticed in number of cases that even an innocuous
statement of the tribunal against the Revenue Officers is challenged before
D the higher courts on the ground that such observations are aspersions against
the officers who have performed their duty and that they need to be expunged.
Surprisingly, in this particular case till today no such appeal has been filed
under Section 260A of the I. T. Act. There is one more reason which is
required to be mentioned. The judgment of the jurisdictional tribunal on the
E scope and interpretation of the above sections which the Tribunal itself says
involve complex legal issues, is binding on assessing officers and the appellate
authority within that jurisdiction. If so, one fails to understand why the
Department has not moved in appeal under Section 260A of the I. T. Act. In
the circumstances of this case, Union of India should apply its mind afresh
and take its decision keeping in mind the factors referred to hereinabove.
F
Before concluding, it may be noted that arguments have been vehemently
advanced on behalf of respondent no. I saying that these petitions need to
be dismissed as the petitioners have made irresponsible statements against
judicia! officers and members of the Tribunal whose service records are
sought to be tarnished. Applying the same yardstick one fails to understand
G as to why the Revenue has not moved in appeal even when its own higher
officers are branded as biased in deciding matters against respondent nos.4
and 5. Their service records are as important as the service records of
members of the trial court or the judicial officers.

H
(c) WHETHER THE PROCEDURE ADOPTED AT THE TIME OF
....
RA.llV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 789
-
'~ POSTING MR. MUNN! LAL PASWAN, ADJ AS SPECIAL JUDGE, A
CBI, PATNA (FODDER SCAM CASES) ON 22.06.2005, NEEDS
TO BE RELOOKED BY THE PATNA HIGH COURT:

Institutional autonomy of the High Court on its administrative side
under Article 233 and Article 235 is a well-known concept. It is based on
public trust and confidence. Existence of the power, as a concept, is different B
from exercise of power. Promotions and posting of judicial officers fall within
its domain on its administrative side. At the same time it is important to note
that choice of the candidate falls in the domain of public law and, therefore,
that choice has to be exercised on some standard, failing which judicial review
steps in. Standards of evaluation in matters of promotion and posting have
to be uniformly applied otherwise arbitrariness comes in. Integration of the C
evaluation process has to be maintained. If different standards or no standards
are applied it breaks the integrity of the process which brings in discrimination
and arbitrariness which violates Article 14 and therefore judicial review.

In the present case we are required to see whether the standards D
applied to evaluate Mr. J.P. Ratnesh and Mr. Ram Niwas Prasad, trial judges,
appointed as Special Judges vide Minutes of the meeting of the Standing
Committee dated 22.06.2005 were equally applied while posting Mr. Munni Lal
Paswan as Special Judge, CBI, Patna (fodder scam cases).

By order dated 26.10.2005 this Court directed the Registrar General, E
Patna High Court, to forward this Court A.C.Rs recorded by the Inspecting
Judges of the High Court in the case of Mr. Munni Lal Paswan. In reply the
Registrar General has stated as follows:

"The A.C.Rs, recorded by the Hon'ble Inspecting "Judges in the years
1985, 1990 and by the Chairman of CAT in 1997, have been placed F
before the Supreme Court. Besides them no ACRs of Sri Munni Lal
Paswan have ever been recorded by the Hon 'ble Inspecting Judges.
The A.C.Rs of Additional District and Sessions Judges are recorded
by the Hon'ble Inspecting Judges."

(emphasis supplied) G

Mr. Munni Lal Paswan was promoted to the post of ADJ on 17th June,
2003. Therefore, when Mr. Paswan was promoted as A.DJ. there was no
categorization available.

In the report submitted by the Registrar General to this Court on H
790 SUPREME COURT REPORTS (2006) SUPP. 4 S.C.R.

A 18.12.2005 p:.irsuant to our order dated 26. I0.2005, the Registrar General has ,..
forwarded the consolidated statement showing the Outturn of the work done
by Mr. Paswan during the peciod 1998, 1999, 2000, 2001, 2002, 2003, 2004 and
2005 (partly). This statement refers to various parameters like disposal, remarks
of P.O .. remark of D.J. etc. as approved by the court. At this stage, I do not
wish to comment about the remarks mentioned therein. These remarks have
B been approved by the District Judge and by the Courts. These remarks are
he:wily weighted against Mr. Paswan. It is not clear whether these remarks
were ever noticed by the Committee and if not they need to be relooked by
the High Court.

C One more aspect needs to be stressed. There is a prescribed form in
which the C.Rs are recorded. That form indicates various parameters, namely, .
knowledge of law, whether the officer is hardworking, the rating to be given
~in respect of the judgments, namely, A+(outstanding), A(very good), B+(good),
B(satisfactory). The point to be noted is that apart from honesty and integrity
there are other parameters to be fulfilled by the judicial officers and that is
D where the disposals, ability and all other relevant factors come.
On 26th July, 2006 this Court put up the following three questions in
the form of order to the Registrar General of the Patna High Court:

"I. Is it the practice in the High Court of Patna to prepare gradation/
E remarks of the Judicial Officers by the Inspecting Judges?
2. As regards the three officers, including Shri M.L. Paswan, who
were appointed as Special Judges on 22.6.2005 by the Standing
Committee of the High Court, whether any remarks/gradation
expressed by the Inspecting Judges were available to the Standing
F Committee?
3. Whether the gradation/remarks of the Inspecting Judges were
made as regards these three officers?"

In reply, the Registrar General of the Patna High Court stated as follows
in paras 2 to 4:
G
"2. That in regard to Query No. I of this Hon 'ble Court as mentioned
in the Order dated 26.7.2006, I re;pectfully say and submit that there
is a practice in the High Court of Patna to record remarks of
Judicial Officers by the Hon 'b/e Inspecting Judges of the concerned
Judgeships which is known as Annual Confidential Remarks. The
H ....
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 791
Annual Confidential remarks recorded by the Hon 'ble Inspecting A
Judges which includes knowledge of law, integrity, behaviour with
Bar, general reputation, industriousness, efficiency, behaviour towards
superiors and subordinate colleagues and categorization made by the
Hon 'ble Inspecting Judges and net result categorization is to be
placed before the Standing Committee where the gradation is given to
the Officer by the Hon'ble Standing Committee. B
3. That in regard to Query No.2 of this Hon'ble Court as mentioned
in the Order dated 26.7 .2006, I respectfully say and submit that the 3
Officers, namely, Shri Jawahar Prasad Ratnesh, Shri Ram Niwas Prasad
and Shri Munni Lal Paswan who were appointed as Special Judge on C
22.6.2005 by the Standing Committee, the remarks of the Hon'ble
Inspecting Judges as maintained in the Guard Files which are maintained
separately of each officers, were available to the Hon'ble Standing
Committee. The said fact also finds mention in the decision dated
22.6.2005 of the Hon'ble Standing Committee.

4. That in regard to Query No.3 of this Hon'ble Court as mentioned
D
in the Order dated 26. 7.2006, I respectfully say and submit that the
remarks of the Hon 'b/e Inspecting Judge in case of Mr. Jawahar
Prasad Ratnesh was of the year 1985, 1986-87, 1988, 2001, 2003
and 2005 (And remarks recorded by P.O., Industrial Tribunal, Patna
in 1998). In respect ofShri Ram Niwas Prasad, the remarks recorded E
by the Hon 'b/e Inspecting Judge was of 1985, 1986, 1997 and 2002.
As regards Shri Munni Lal Paswan, the remarks recorded by the
Hon'b/e Inspecting Judge was of 1985 and 1990 and by Vice-
Chairman, Industrial Tribunal, Patna Bench in 19.97.

(emphasis supplied) F
Reading para 4 it is clear that the remarks of Inspecting Judge, in the
case of Mr. J.P. Ratnesh, were duly updated when they were placed before
the Standing Committee of the High Court. In respect of Mr. Ram Niwas
Prasad the remarks recorded by the Inspecting Judge for the years 1985,. 1986,
1997 and 2002 were updated and placed before the Standing Committee of the G
High Court. However, in case of Mr. Munni Lal Paswan the remarks of the
Inspecting Judge duly recorded ;ire only of 1985 and 1990. Mr. Munni Lal
Paswan was promoted as A.D.J,- on 17.06.2003. He was posted as Special
Judge on 22.06.2005. Therefore, it is clear that there is no gradation/
categorisation of the confidential reports of Mr. Munni Lal Paswan by the H
792 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A Inspecting Judge of the High Cou1t particularly after becoming A.DJ.
..
In the case of High Court of Punjab & Haryana, through Registrar
General v. lshwar Chand Jain and Anr., [ 1999] 4 SCC 579 this Court has held
as follows:

B "32. Since late this Court is watching the spectre of either judicial
officers or the High Courts coming to this Court when there is an
order prematurely retiring a judicial officer. Under Article 235 of the
Constitution the High Court exercises complete control over
subordinate courts which include District Courts. Inspection of the
subordinate courts is one of the most important functions which the
c High Court performs for control over the subordinate courts. The
object of such inspection is for the purpose of assessment of the work
performed by the Subordinate Judge, his capability, integrity and
competency. Since Judges are human beings and also prone to all the
human failings inspection provides an opportunity for pointing out
D mistakes so that they are avoided in future and deficiencies, if any,
in the working of the subordinate court, remedied. Inspection should
act as a catalyst in inspiring Subordinate Judges to give the best
results. They should feel a sense of achievement. They need
encouragemtnt. They work under great stress and man the courts
while working under great discomfort and hardship. A satisfactory
E judicial system depends largely on the satisfactory functioning of
courts at the grass-roots level. Remarks recorded by the Inspecting
Judge are normally endorsed by the Full Court and become part of
the annual confidentiai reports and are foundations on which the
career of a judicial officer is made or marred. Inspection of a
subordinate court is thus of vital importance. It has to be both effective
F
and productive. It can be so only if it is well regulated and is workman-
like. Inspection of subordinate courts is not a one-day or an hour or
a few minutes' affair. It has to go on all the year round by monitoring
the work of the court by the Inspecting Judge. A casual inspection
can hardly be beneficial to a judicial system. It does more harm than
G good. As noticed in the case of Registrar, High Court of Madras v.
R. Rajiah, [1988] 3 SCC 211 there could be ill-conceived or motivated
complaints. Rumour-mongering is to be avoided at all costs as it
seriously jeopardizes the efficient working of the subordinate courts.

33. Time has come that a proper and uniform system of inspection of
H subordinate courts should be devised by the High Courts. In fact the
RAJIV RANJAN SINGH 'LALAN' v. U.0.1. [S.H. KAPADIA, J.] 793

whole system of inspection needs rationalization. There should be A
some scope of self-assessment by the officer concerned. We are
infonned that the First National Judicial Pay Commission is also looking
into the matter. This subject, however, can be well considered in a
Chief Justices' Conference as the High Court itself can devise an
effective system of inspection of the subordinate courts. The Registrar B
General shall place a copy of this judgment before the Hon 'ble Chief
Justice of India for him to consider if the method of inspection of
subordinate courts could be a matter of the agenda for the Chief
Justices' Conference."

(emphasis supplied) C

The above judgment emphasizes the importance of the remarks given
by the Inspecting Judge. The object of Inspection is to assess the work
performed, capability, competency besides integrity of the candidate. Those
gradations/categorisations given by Inspecting Judges are required to be
placed before the Full Court. In the present case, that exercise is done for two D
out of three judicial officers when they were posted. However, it appears from
the affidavit of the Registrar General that no gradation/categorisation has
been done after 1990 by the Inspecting Judge vis-a-vis the judgments of Mr.
Munni Lal Paswan.

It is important to bear in mind that in the matter of economic scams be E
it security transactions or fodder scams or Taj corridor it is the economic
interest of the country which is at stake. These cases are highly complicated
in which complicated questions are involved and, therefore, posting plays a
vital role.

In the circumstances, it seems that the procedure followed by the High F
Court in the meeting on 22.06.05 has lost sight of the above criteria. In the
circumstances, a request is being made to the Chief Justice of the Patna High
Court to convene an urgent meeting of Administrative Judges and complete
the exercise of giving appropriate gradation/categorisation after looking at the
judgments and orders delivered by the concerned judge, Mr. Paswan. I may G
make it clear that this is just a request to the High Court and not a direction
so that the evaluation standards are commonly applied to all the three
candidates.

.,_. Before concluding it may be pointed out that this decision is confined
strictly to the decision-making process and it is not concerned with the merits H
794 SUPREME COURT REPORTS [2006] SUPP. 4 S.C.R.

A of the allegations made in the petitions. The allegations made in the petitions
..
are not only against the accused, they are also directed against number of
functionaries. It is, therefore, made clear that this decision is only to rectify
the procedure of decision-making at the High Court level and at the Revenue
level so that in future such anomalies do not arise.

B To sum up, the Chief Justice of the Patna High Court is requested to
convene a meeting of Administrative Judges and have a fresh look at the
evaluation in the case of posting of Sri Paswan as Special Judge for C.B.I.
(Fodder Scam Cases) at Patna, vide Minutes of Meeting dated 22.06.2005. At
the same time, Union of India is directed to reconsider approaching the High
C Court against the decision of the Tribunal dated 2. 7.2004 under Section 260A
of the Income Tax Act, 1961 in the light of what is stated above.

In the end it may be stated that true value of a decision lies in its
propriety and not in the decision being right or wrong.

D Writ Petition (Cr!.) Nos.197-198 of2004 are accordingly allowed to the
extent indicated above.

R.P. Writ Petition allowed.

-