REPORTABLE
IN THE SUPREME COURT OF INDIA
CRIMINAL APPELLATE JURISDICTION
CRIMINAL APPEAL NO. 34 OF 2015
(arising out of Special Leave Petition (Crl.) No. 2961 of 2013)
|SUNIL BHARTI MITTAL |.....APPELLANT(S) |
|VERSUS | |
|CENTRAL BUREAU OF INVESTIGATION |.....RESPONDENT(S) |
W I T H
CRIMINAL APPEAL NO. 35 OF 2015
(arising out of Special Leave Petition (Crl.) No. 3161 of 2013)
A N D
CRIMINAL APPEAL NOS. 36-37 OF 2015
(arising out of Special Leave Petition (Crl.) No. 3326-3327 of 2013)
J U D G M E N T
A.K. SIKRI, J.
Leave granted.
Introduction:
In the year 2008, during the tenure of the then Minister of
Telecommunications, Unified Access Services Licenses ("UASL") were granted.
After sometime, an information was disclosed to the Central Bureau of
Investigation (CBI) alleging various forms of irregularities committed in
connection with the grant of the said UASL which resulted in huge losses to
the public exchequer. On the basis of such source information, the CBI
registered a case bearing RC DAI 2009 A 0045 on 21st October, 2009. It is
now widely known as "2G Spectrum Scam Case". The case was registered
against unknown officers of the Department of Telecommunications (DOT) as
well as unknown private persons and companies.
While the investigation into the said case was still on, a writ petition
was filed by an NGO known as Center for Public Interest Litigation (CPIL)
before the High Court of Delhi seeking directions for a Court monitored
investigation. Apprehension of the petitioner was that without such a
monitoring by the Court, there may not be a fair and impartial
investigation. Delhi High Court dismissed the petition.
Challenging the order of the Delhi High Court, CPIL filed Special Leave
Petition before this Court under Article 136 of the Constitution of India.
At that time, another petitioner, Dr.Subramanian Swamy, directly approached
the Supreme Court by way of a writ petition under Article 32 of the
Constitution of India seeking almost the same reliefs on similar kinds of
allegations. Leave was granted in the said SLP, converting it into a civil
appeal. Said civil appeal and writ petition were taken up together for
analogous hearing. On 16th December, 2010, a detailed interim order was
passed in the civil appeal inter alia giving the following directions:
"a. The CBI shall conduct thorough investigation into various issues
highlighted in the report of the Central Vigilance Commission, which was
forwarded to the Director, CBI vide letter dated 12.10.2009 and the report
of the CAG, who have prima facie found serious irregularities in the grant
of licences to 122 applicants, majority of whom are said to be ineligible,
the blatant violation of the terms and conditions of licences and huge loss
to the public exchequer running into several thousand crores. The CBI
should also probe how licences were granted to large number of ineligible
applicants and who was responsible for the same and why the TRAI and the
DoT did not take action against those licensees who sold their
stakes/equities for many thousand crores and also against those who failed
to fulfill roll out obligations and comply with other conditions of
licence.
b. The CBI shall, if it has already not registered first information
report in the context of the alleged irregularities committed in the grant
of licences from 2001 to 2006-2007, now register a case and conduct
thorough investigation with particular emphasis on the loss caused to the
public exchequer and corresponding gain to the licensees/service providers
and also on the issue of allowing use of dual/alternate technology by some
service providers even before the decision was made public vide press
release dated 19.10.2007."
Thereafter, detailed judgment was passed by the Bench of this Court in the
aforesaid proceedings on 2nd February, 2012 which is reported as Centre for
Public Interest Litigation & Ors. v. Union of India & Ors.[1]. The Court
allowed the appeal as well as the writ petition, holding that spectrum
licences were illegally granted to the beneficiaries at the cost of the
nation. The Court accordingly cancelled the licences granted to the
private respondents on or after 10.01.2008 and issued certain directions
for grant of fresh licences and allocation of spectrum in 2G Band. It was
also specifically clarified that the observations in the said judgment
would not, in any manner, affect the pending investigation by the CBI,
Directorate of Enforcement and other agencies or cause prejudice to those
who are facing prosecution in the cases registered by the CBI or who may
face prosecution on the basis of charge-sheet(s) which may be filed by the
CBI in future. The Court also made it clear that the Special Judge, CBI
would decide the matter uninfluenced by the judgment dated February 02,
2012. Thereafter, order dated 11.04.2011 was passed in that very appeal,
making its intention manifest that this Court would be monitoring the
investigation by CBI in larger public interest. Special Court was set up
for trial of the 2G case and a Senior Advocate was nominated as the Special
Public Prosecutor by the Court itself, who also agreed with his appointment
in that capacity. The Court also made it clear that no other Court would
stay or impede trial conducted by the Special Court and the aggrieved
person could approach this Court for any grievance. In the present
proceedings, we are not concerned with the subject matter of the said
trial. However, the aforesaid narrative became necessary to point out that
present proceedings triggered as a result of order dated 16.12.2010 vide
which the Court directed CBI to register a case and conduct the inquiry in
connection with alleged irregularities in grant of licences from 2001 to
2006-2007 as well. Further, as would be noticed later, the investigation
pertaining to this period also is being monitored by the Supreme Court and
the learned counsel for all the parties were at ad idem that challenge to
the impugned order is to be entertained by this Court only under Article
136 of the Constitution, though while entertaining these appeals, the Court
would bear in mind the parameters of Section 482 of the Code of Criminal
Procedure, 1973 (hereinafter referred to as "the Code").
The Instant Proceedings : Factual Narration
The CBI registered another RC being RC DAI 2011 A 0024 on 17th November,
2011 with regard to alleged irregularities in grant of additional spectrum
in the year 2002 during the tenure of late Shri Pramod Mahajan as Minister
of Communications. In this RC, apart from Shri Pramod Mahajan, others who
were named were Mr. Shyamal Ghosh, the then Secretary (Telecom), Mr. J.R.
Gupta, the then Deputy Director General (VAS) and three Cellular Companies
viz. M/s Bharti Cellular Limited, M/s Hutchison Max Telecom (P) Limited and
M/s Sterling Cellular Limited. After registering the said RC, the CBI
started investigation into the allegations contained therein. As already
pointed out above, since the matter was being monitored by this Court,
progress reports of investigation were filed from time to time in sealed
envelopes. On 29th November, 2012, after perusing certain documents
presented in a sealed cover, this Court directed the CBI to take action in
accordance with the views expressed by it on the issue of prosecution of
public servants and the companies in connection with the said case. The
precise nature of this order can be seen from the actual language thereof
which is reproduced hereunder:
"At the commencement of hearing in connection with CBI Case No. RC DAI 2011
A 0024, Shri K.K. Venugopal, learned senior counsel appearing for the
Central Bureau of Investigation placed before the Court a sealed envelope,
which was opened in the Court.
We have perused the papers contained in the sealed envelope and are of the
view that the CBI shall take action in accordance with the views expressed
by the Director, CBI on the issue of prosecution of public servants and the
companies in connection with the said case.
The report produced by Shri Venugopal shall be put in sealed cover and
handed over to the counsel instructing Shri Venugopal. The needful has
been done.
List the case on 05.12.2012.
To be taken up at 3.30 P.M."
On completion of the investigation, charge-sheet was filed by the CBI in
the Court of Shri O.P. Saini, the learned Special Judge, on 21st December,
2012.
Before proceeding further, it would be prudent to mention in brief the case
set up by the CBI in the charge-sheet to have the flavour of the
prosecution case. Though we are not much concerned about the merits of the
allegations in these proceedings, a brief account thereof will facilitate
in understanding the background leading to the roping in of the appellants
in these proceedings. During monitoring of the investigation of CBI Case
No. RC-DAI-2009-A-0045 (2G Spectrum Case), this Court vide its order dated
16.12.2010 directed CBI to investigate the irregularities committed in the
grant of licences from 2001 to 2007 with partial emphasis on the loss
caused to the public exchequer and corresponding gain to the
Licensees/Service Providers. Accordingly, in compliance to the said order,
a Preliminary Enquiry vide No. PE-DAI-2011-A-0001 was registered on
04.01.2011 at CBI, ACB, New Delhi. During inquiry of the said PE, it was
learnt from reliable sources that vide a decision dated 31.01.2002 of the
then MoC&IT, on the recommendation of certain DoT officers, the allocation
of additional spectrum beyond 6.2 MHz upto 10 MHz (paired) was approved
wherein only 1% additional revenue share was charged thereby causing
revenue loss to Government exchequer.
As pointed above, on the basis of the outcome of the aforesaid inquiry, a
regular case was registered on 17.11.2011 for the offences punishable under
Sections 120-B IPC r/w 13 (2) and 13 (1)(d) of the Prevention of Corruption
Act, 1988 (for short, 'PC Act'). It was against Mr. Shyamal Ghosh, Mr.
J.R. Gupta and the three Cellular Companies, names whereof have already
been mentioned above. The main allegation is that additional spectrum
beyond 6.2 MHz upto 10 MHz (paired) was approved at an additional revenue
share at the rate of 1% only, meaning thereby the said additional revenue
should have been at a higher rate. As per the investigation, Cellular
Operators Association of India (COAI) had made a request to DoT, in the
year 2001, for allocating additional spectrum particularly in Delhi and
Mumbai service areas. On this, Technical Committee was constituted which
gave its report on 21.11.2001 recommending therein that 6.2 MHz spectrum
was sufficient for a subscriber based out of about 9 lacs per operator in
service areas like Delhi and Mumbai for another 24-30 months. The
Committee also recommended to levy incremental charges for additional
spectrum. However, on 31.01.2002, a note was put up by Mr. J.R. Gupta
mentioning therein that a consensus had emerged after discussion that
additional spectrum to the extent of 1.8 MHz (paired) beyond 6.2 MHz in
1800 MHz band might be released on case to case co-ordination basis to the
Operators by charging additional 1% of revenue after customer base of 4-5
lacs was reached. On this note, Mr. Shyamal Ghosh agreed to the reduced
subscriber base from 9 lacs to 4/5 lacs for allocation of additional
spectrum and recommended to allocate additional spectrum beyond 6.2 MHz
upto 10 MHz by charging only additional 1% of AGR. This note was approved
by the then Minister of Communications and Information Technology on the
same day i.e. 31.01.2002 itself. It resulted in issuance and circulation
of General Order on 01.02.2002 to all Cellular Mobile Telecom Service
(CMTS) Operators. As per the allegations in the FIR, the accused public
servants entered into a criminal conspiracy with the accused beneficiary
companies in taking the aforesaid decision which caused undue cumulative
pecuniary advantage of Rs.846.44 crores to the beneficiary companies and
corresponding loss to the Government Exchequer, by charging an additional
1% AGR only for allotting additional spectrum from 6.2 MHz upto 10 MHz
(paired) instead of charging 2% AGR, as per the existing norms.
Thus, the allegation, in nutshell, is for grant of additional spectrum by
lowering the condition of 9 lacs subscribers to 4/5 lacs subscribers, by
only charging additional 1% AGR instead of charging additional 2% AGR which
has caused losses to the Government Revenue. It is further the case of the
prosecution that this was the result of conspiracy hatched between
Mr.Shyamal Ghosh and the then Minister as well as the accused Cellular
Operator Companies. The decision was taken in haste on 31st January, 2002
itself inasmuch as note was prepared by Mr. J.R. Gupta on that day which
was agreed to by Mr. Shyamal Ghosh and thereafter approved by the Minister
on the same day. On that basis, circular was issued on the very next day
i.e. on 01.02.2002. As per the charge-sheet, investigation has also
revealed that all this was done in haste to help M/s Bharti Cellular
Limited which had come out with Initial Public Offer (IPO) that was opened
and it was not getting good response from the public as it had remained
under-subscribed. The moment such a decision of allocating additional
spectrum was taken on 31.01.2002, on the very next day, the issue got over-
subscribed.
It would be pertinent to mention that in the charge-sheet filed, Mr.J.R.
Gupta was not made accused as no material of any conspiracy or being a part
of decision is attributed to him. In this charge-sheet, CBI named Mr.
Shyamal Ghosh and the aforesaid three companies namely M/s Bharti Cellular
Limited, M/s Hutchison Max Telecom (P) Limited and M/s Sterling Cellular
Limited as the accused persons in respect of offences under Section 13(2)
read with 13(1)(d) of the PC Act and allied offences.
The Impugned Order
The matter was taken up by the Special Judge on 19th March, 2013 for the
purposes of issuance of summons to the accused persons in the said charge-
sheet (CC No.101/12). The learned Special Judge passed orders dated 19th
March, 2013 recording his satisfaction to the effect that there was enough
incriminating material on record to proceed against the accused persons.
At the same time, the learned Special Judge also found that Mr.Sunil Bharti
Mittal was Chairman-cum-Managing Director of Bharti Cellular Limited, Mr.
Asim Ghosh was Managing Director of Hutchison Max Telecom (P) Limited and
Mr. Ravi Ruia was a Director in Sterling Cellular Limited, who used to
chair the meetings of its Board. According to him, in that capacity, these
persons, prima facie, could be treated as controlling the affairs of the
respective companies and represent the directing mind and will of each
company. They were, thus, "alter ego" of their respective companies and
the acts of the companies could be attributed and imputed to them. On this
premise, the Special Judge felt that there was enough material on record to
proceed against these three persons as well. Thus, while taking cognizance
of the case, he decided to issue summons not only to the four accused named
in the charge-sheet but the aforesaid three persons as well.
Two of the aforesaid three persons are before us in these appeals. Feeling
aggrieved, they have challenged the order insofar as it proceeds to
implicate them as accused persons in the said charge-sheet.
Before proceeding to record the submissions of the learned counsel for the
appellants as well as the counsel opposite, it becomes necessary to take
note of the brief order dated 19th March, 2013, as this order was read and
re-read time and again by each counsel with an attempt to give their own
interpretation to the same. Therefore, we deem it apposite to reproduce
the said order in its entirety as it would facilitate understanding the
arguments of counsel on either side, with more clarity. The impugned order
dated 19th March, 2003 reads as under:
"I have heard the arguments at the bar and have carefully gone through the
file and relevant case law.
It is submitted by the learned PP that accused Shyamal Ghosh was a public
servant, who has since retired. It is further submitted that remaining
three accused are companies, namely M/s Bharti Cellular Limited, M/s
Hutchison Max Telecom (P) Limited and M/s Sterling Cellular Limited. It is
further submitted that there is enough incriminating material on record
against the accused persons and, as such, they may be proceeded against, as
per law.
I have carefully gone through the copy of FIR, chargesheet, statement of
witnesses and documents on record. On the perusal of the record, I am
satisfied that there is enough incriminating material on record to proceed
against the accused persons.
I also find at the relevant time, Sh. Sunil Bharti Mittal was Chairman-cum-
Managing Director of Bharti Cellular Limited, Sh. Asim Ghosh was Managing
Director of Hutchison Max Telecom (P) Limited and Sh. Ravi Ruia was a
Director in Sterling Cellular Limited, who used to chair the meetings of
its board. In that capacity, they were/are, prima facie, in control of
affairs of the respective companies. As such, they represent the directing
mind and will of each company and their state of mind is the state of mind
of the companies. They are/were "alter ego" of their respective companies.
In this fact situation, the acts of the companies are to be attributed and
imputed to them. Consequently, I find enough material on record to proceed
against them also.
Accordingly, I take cognizance of the case. Issue summons to all seven
accused for 11.04.2013."
It will also be pertinent to mention that the appellants were not
implicated as accused persons in the charge-sheet. As discussed in some
details at the appropriate stage, Mr. Mittal was interrogated but in the
opinion of CBI, no case was made out against him. Mr. Ravi Ruia was not
even summoned during investigation.
The Arguments : Appellants
M/s Harish Salve and Fali Nariman, learned senior counsel, argued the case
on behalf of the appellant Sunil Bharti Mittal in an attempt to take him
out of the clutches of the impugned order. Mr.K.V. Viswanathan, learned
senior counsel, led the attack to the said order on behalf of the appellant
Ravi Ruia. Their onslaught was tried to be blunted by Mr. K.K. Venugopal,
learned senior counsel appearing for the CBI. Challenge of the appellants
was also sought to be thwarted by Mr. Prashant Bhushan, learned counsel
appearing for CPIL, and Mr. Sunil Malhotra, counsel who argued on behalf of
Telecom Watchdog, which has filed the appeal arising out of SLP (Crl.)
Nos.3326-3327/2013 challenging another order of the even date namely 19th
March, 2013 passed by the Special Judge whereby protest application filed
by this appellant has been dismissed.
Leading the attack from the front, Mr. Harish Salve opened his submission
by arguing that the impugned order was in two parts. Paras 1 to 3 pertain
to the charge-sheet which was filed by the CBI naming four accused persons
namely, Mr. Shyamal Ghosh and the three Cellular Companies. This fact is
noted in para 2. He pointed out that in respect of these four accused
persons named in the charge-sheet, after going through the copy of the FIR,
charge-sheet, statement of witnesses and documents on record, the learned
Judge was satisfied that there was enough incriminating material on record
to proceed against them. However, in the second part of the order, which
was contained in para 4, the Court also found that the three persons
(including the two appellants) were, prima facie, controlling the affairs
of the said three companies and, therefore, they represented the directing
mind and will of each company. On that basis, these three persons are
treated as "alter ego" of their respective companies and in the opinion of
the learned Special Judge, the acts of the companies are "to be attributed
and imputed to them". That was the reason given by the Special Judge
finding enough material to proceed against them also which resulted in
issuing of summons against these three persons including the appellant.
The neat submission of Mr. Salve was that the aforesaid reason given by the
learned Special Judge was clearly erroneous in law. Expanding this
argument, he submitted that principle of "alter ego" has always been
applied in reverse, inasmuch as general principle is that the acts of
individual, who is in control of the affairs of a company and is a
directing mind, are attributed to the company, inasmuch as whenever such a
person, who is controlling the affairs of the company, is made an accused,
on the application of the principle of "alter ego", the company can also be
implicated as accused person. It is on the well recognised principle that
company does not act of its own but through its Directors/Officers and when
such Directors/Officers act on behalf of the company, the company is also
held liable for those acts on the application of "principal - agent"
principle. He submitted that it has never been a case where for the act of
the company, an individual is made accused, unless there is a categorical
provision in the statute making such a person vicariously liable or there
is enough material to attribute the alleged acts of criminality to the said
person. For his aforesaid submissions, he placed heavy reliance upon the
decision of this Court in Iridium India Telecom Ltd. v. Motorola Inc[2].
He further submitted that merely on the basis of the appellant's status in
the company, it could not be presumed that it is the appellant who became a
party to the alleged conspiracy, as was held in Maharashtra State
Electricity Distribution Co. Ltd. v. Datar Switchgear Ltd.[3] in the
following manner:
"27. A bare perusal of the complaint shows that the gravamen of the
allegation is that a fabricated document containing the offending
endorsement was tendered in evidence before the Arbitral Tribunal on behalf
of MSEB by Accused 6, who was in charge of Shirpur Section. It is evident
from the aforeextracted paragraphs of the complaint that other accused have
been named in the complaint because, according to the complainant, MSEB,
Accused 1 was acting under their control and management. It bears
repetition that the only averment made against Appellant 2 is that
Appellant 1 i.e. MSEB was acting under the control and management of
Appellant 2 along with other three accused. There is no denying the fact
that Appellant 2 happened to be the Chairman of MSEB at the relevant time
but it is a settled proposition of law that one cannot draw a presumption
that a Chairman of a company is responsible for all acts committed by or on
behalf of the company. In the entire body of the complaint there is no
allegation that Appellant 2 had personally participated in the arbitration
proceedings or was monitoring them in his capacity as the Chairman of MSEB
and it was at his instance that the subject interpolation was made in Ext.
C-64.
xx xx xx
In this regard, it would be useful to advert to the observations made by a
three-Judge Bench of this Court in S.M.S. Pharmaceuticals (2005)8 SCC 89:
(SCC p. 98, para 8)
"8. ... There is no universal rule that a Director of a company is in
charge of its everyday affairs. We have discussed about the position of a
Director in a company in order to illustrate the point that there is no
[pic]magic as such in a particular word, be it Director, manager or
secretary. It all depends upon the respective roles assigned to the
officers in a company. A company may have managers or secretaries for
different departments, which means, it may have more than one manager or
secretary."
Mr. Salve also referred to the following observations in S.K. Alagh
v. State of U.P.[4]:
12. The short question which arises for consideration is as to whether the
complaint petition, even if given face value and taken to be correct in its
entirety, disclosed an offence as against the appellant under Section 406
of the Penal Code.
xx xx xx
19. As, admittedly, drafts were drawn in the name of the Company, even if
the appellant was its Managing Director, he cannot be said to have
committed an offence under Section 406 of the Penal Code. If and when a
statute contemplates creation of such a legal fiction, it provides
specifically therefor. In absence of any provision laid down under the
statute, a Director of a Company or an employee cannot be held to be
vicariously liable for any offence committed by the Company itself. (See
Sabitha Ramamurthy v. R.B.S. Channabasavaradhya, (2006) 10 SCC 581."
Reliance was also placed on the decision in the case of Aneeta
Hada v. Godfather Travels & Tours (P) Ltd.[5], with particular emphasis on
the following passage:
"32. We have referred to the aforesaid authorities to highlight that the
company can have criminal liability and further, if a group of persons that
guide the business of the companies have the criminal intent, that would be
imputed to the body corporate. In this backdrop, Section 141 of the Act has
to be understood. The said provision clearly stipulates that when a person
which is a company commits an offence, then certain categories of persons
in charge as well as the company would be deemed to be liable for the
offences under Section 138. Thus, the statutory intendment is absolutely
plain. As is perceptible, the provision makes the functionaries and the
companies to be liable and that is by deeming fiction. A deeming fiction
has its own signification."
In addition to the above, another submission of Mr. Salve was that in the
present case, role of the appellant was specifically looked into and
investigated by the CBI and an opinion was formed that there was no
material to implicate him. Since the appellant was consciously omitted
from the array of the accused persons after thorough discussions and
deliberations by the investigating agency at the appropriate level, and it
was specifically so stated in the charge-sheet itself, in a situation like
this even if the learned Judge wanted to differ from the investigating
agency and decided to take cognizance against the appellant, he should have
given valid reasons for proceeding against the appellant which could
include his opinion that there was sufficient material against the
appellant to be proceeded against. However, reasons given in the impugned
order, according to the learned senior counsel, are totally extraneous
amounting to wrong approach in law.
His further submission was that even at a later stage if any evidence
surfaces against the appellant, the Court is not powerless as any person
can be summoned as accused under Section 319 of the Code at any stage of
the trial.
Mr. Viswanathan who appeared for the appellant Mr. Ravi Ruia, while
adopting the aforesaid arguments and reiterating them briefly, tried to
canvass another feature peculiar to in the case of his client Mr. Ravi
Ruia. The learned counsel pointed out that he was not even called for
interrogation by the CBI which would show that there is no material against
him at all. His name is not even mentioned in the charge-sheet. He
painstakingly pleaded that in the absence of any material reflected even in
the charge-sheet, this appellant would be handicapped in making any
submission for his discharge at the stage of framing charges. As the
appellant was implicated involving the principle of vicarious liability,
which is not applicable and erroneously referred to, he had no option but
to file the present appeal for quashing of the notice of cognizance against
him. Mr. Viswanathan in support of his submission referred certain
judgments, which we shall discuss at the appropriate stage.
The Arguments: Respondents
Mr. K. K. Venugopal, learned senior counsel appearing for the CBI, refuted
the aforesaid submissions in strongest possible manner. He referred to the
various portions of the charge-sheet where allegations against the accused
persons are stated and outcome of the investigation revealed. His
endeavour was to demonstrate the manner in which the decision was taken,
resulting into huge loss to the Government Exchequer and, prima facie, it
was established that such a decision was taken to help the accused Telecom
Companies. He argued that once the companies are charged with mens rea
offences, they require guilty mind as these are not strict liability
offences. However, the companies would act through their Directors/Officers
only and the mens rea/guilty mind would be of those persons who are
controlling the affairs of the companies. He referred to the counter
affidavit filed by the CBI which, in summary form, mentions the role of
different persons including the manner in which note was put up by Mr. J.R.
Gupta; the changes that were made by Mr. Shyamal Ghosh to the said note
allegedly to benefit the companies; and the manner in which it was approved
by the Minister. This affidavit also mentions that there is evidence on
record to show that the appellant Mr. Sunil Mittal had met late Shri Pramod
Mahajan during 2001-2002 for getting allocated additional spectrum beyond
6.2 MHz for tele-service area of his company. There was also evidence of
meetings between the appellant and Mr. Shyamal Ghosh for the same purpose
during the same period which would constitute the circumstantial evidence
to implicate these persons. The thrust of his submission, thus, is that it
is the "human agency" in the accused companies who was responsible as it
was a mens rea offence and such an agency/person has to be the top person,
going by the circumstantial evidence. Therefore, even if in the charge-
sheet, names of these appellants were not included, the Special Judge was
within his powers to look into the matter in its entirety as the charge-
sheet along with documents spanning over 25000 pages was submitted to him.
Mr. Venugopal joined issue on the interpretation given by the appellants to
the impugned order. According to him, the order could not be bifurcated
into two parts. Para 3 of the order wherein the Special Judge has observed
that he had perused the FIR, charge-sheet, statement of witnesses and
documents on record was relatable to the three individuals, including the
two appellants as well. He even submitted that in the absence of
individual accused persons, who were in charge of the affairs of the three
accused companies, it may become difficult to proceed against the accused
companies alone as it was a mens rea offence. He also relied upon the
following judgments to support the impugned order, with the plea that the
trial court was invested with requisite powers to summon the appellants:
1. M.C. Mehta (Taj Corridor scam) v. Union of India[6]
"30. At the outset, we may state that this Court has repeatedly emphasised
in the above judgments that in Supreme Court monitored cases this Court is
concerned with ensuring proper and honest performance of its duty by CBI
and that this Court is not concerned with the merits of the accusations in
investigation, which are to be determined at the trial on the filing of the
charge-sheet in the competent court, according to the ordinary procedure
prescribed by law. Therefore, the question which we have to decide in the
present case is whether the administrative hierarchy of officers in CBI, in
the present case, have performed their duties in a proper and honest
manner."
2. Kishun Singh v. State of Bihar[7]
"13. The question then is whether de hors Section 319 of the Code, can
similar power be traced to any other provision in the Code or can such
power be implied from the scheme of the Code? We have already pointed out
earlier the two alternative modes in which the Criminal Law can be set in
motion; by the filing of information with the police under Section 154 of
the Code or upon receipt of a complaint or information by a Magistrate. The
former would lead to investigation by the police and may culminate in a
police report under Section 173 of the Code on the basis whereof cognizance
may be taken by the Magistrate under Section 190(1)(b) of the Code. In the
latter case, the Magistrate may either order investigation by the police
under Section 156(3) of the Code or himself hold an inquiry under Section
202 before taking cognizance of the offence under Section 190(1)(a) or (c),
as the case may be, read with Section 204 of the Code. Once the Magistrate
takes cognizance of the offence he may proceed to try the offender (except
where the case is transferred under Section 191) or commit him for trial
under Section 209 of the Code if the offence is triable exclusively by a
Court of Session. As pointed out earlier cognizance is taken of the offence
and not the offender. This Court in Raghubans Dubey v. State of Bihar
(1967) 2 SCR 423stated that once cognizance of an offence is taken it
becomes the Court's duty 'to find out who the offenders really are' and if
the Court finds 'that apart from the persons sent up by the police some
other persons are [pic]involved, it is its duty to proceed against those
persons' by summoning them because 'the summoning of the additional accused
is part of the proceeding initiated by its taking cognizance of an
offence'. Even after the present Code came into force, the legal position
has not undergone a change; on the contrary the ratio of Dubey case was
affirmed in Hareram Satpathy v. Tikaram Agarwala. (1978) 4 SCC 58 Thus far
there is no difficulty.
3. Dharam Pal v. State of Haryana[8]
"40. In that view of the matter, we have no hesitation in agreeing with the
views expressed in Kishun Singh case (1993) 2 SCC 16 that the Sessions
Court has jurisdiction on committal of a case to it, to take cognizance of
the offences of the persons not named as offenders but whose complicity in
the case would be evident from the materials available on record. Hence,
even without recording evidence, upon committal under Section 209, the
Sessions Judge may summon those persons shown in column 2 of the police
report to stand trial along with those already named therein.
41. We are also unable to accept Mr Dave's submission that the Sessions
Court would have no alternative, but to wait till the stage under Section
319 CrPC was reached, before proceeding against the persons against whom a
prima facie case was made out from the materials contained in the case
papers sent by the learned Magistrate while committing the case to the
Court of Session."
He also referred to the decision in the case of Lee Kun Hee, President,
Samsung Corpn., South Korea v. State of Uttar Pradesh[9] wherein this Court
has set down the limits of High Court's power under Section 482 of the Code
to interfere with summoning orders passed by the trial court, as follows:
"10. JCE Consultancy filed a criminal complaint (Complaint No. 30 of 2005)
under Sections 403, 405, 415, 418, 420 and 423 read with Sections 120-B and
34 of the Penal Code, 1860 before the VIIth Additional Chief Judicial
Magistrate, Ghaziabad. In the complaint filed by Shaikh Allauddin Pakir
Maiddin, the sole proprietor of JCE Consultancy, Samsung, Dubai, was
impleaded as Accused 1 (Appellant 5 herein); Byung Woo Lee, Managing
Director of Samsung, Dubai, was impleaded as Accused 2 (Appellant 3
herein); Lee Kun Hee, President, Samsung Corporation, was impleaded as
Accused 3 (Appellant 1 herein); Yon Jung Yung, Vice-President and Chief
Executive Officer, Samsung Corporation, was impleaded as Accused 4
(Appellant 2 herein); Dong Kwon Byon, ex-Managing Director, Samsung, Dubai,
was impleaded as Accused 5 (Appellant 4 herein); S.C. Baek, [pic]ex-
Financial Advisor, Samsung, Dubai, was impleaded as Accused 6; Sky Impex
Ltd. was impleaded as Accused 7; and the Chairman of Sky Impex Ltd. was
impleaded as Accused 8.
xx xx xx
21. In order to support the aforesaid primary contention, it was also
emphasised, that Appellants 1 to 4 are all foreign citizens, whereas,
Appellant 5 is a foreign company incorporated in Dubai. Appellant 1, we are
told, was Chairman and Director of Samsung, South Korea. It is contended
that he has had nothing to do with Samsung, Dubai. We are informed that he
lives in South Korea. Appellant 2, we are informed, was a former Vice-
Chairman and CEO of Samsung, South Korea. He also has had nothing to do
with Samsung, Dubai. He too lives in South Korea.
xx xx xx
54. The fourth contention advanced at the hands of the learned counsel for
the appellants was aimed at demonstrating; firstly, that the charges, as
have been depicted in the summoning order, were not made out; secondly,
that the appellants herein were functionaries of a company, and therefore,
per se could not be made vicariously liable for offences emerging out of
actions allegedly taken in furtherance of the discharge of their
responsibilities towards the company; and thirdly, that none of the
appellants had any concern whatsoever (even as functionaries of the company
concerned), with the allegations levelled by the complainant.
xx xx xx
57. In paras 24 to 30, this Court in Iridium India Telecom Ltd. case
(2011) 1 SCC 74 noticed the facts pertaining to the controversy, and the
emerging legal technicalities canvassed at the hands of the appellants. In
paras 31 to 37, this Court recorded the response thereto, at the behest of
the accused. Thereupon, this Court in Iridium India Telecom Ltd. case made
the following observations in para 38: (SCC p. 89) "38. We have considered
the submissions made by the learned Senior Counsel. A bare perusal of the
submissions would be sufficient to amply demonstrate that this cannot be
said to be an 'open and shut' case for either of the parties. There is much
to be said on both sides. The entire scenario painted by both the sides is
circumscribed by 'ifs' and 'buts'. A mere reading of the 1992 PPM would not
be sufficient to conclude that the entire information has been given to the
prospective investors. Similarly, merely because there may have been some
gaps in the information provided in the PPM would not be sufficient to
conclude that [pic]the respondents have made deliberate misrepresentations.
In such circumstances, we have to examine whether it was appropriate for
the High Court to exercise its jurisdiction under Section 482 CrPC to quash
the proceedings at the stage when the Magistrate had merely issued process
against the respondents."
xx xx xx
59. While dealing with the various judgments rendered by this Court on the
subject reference was also made to the decision in M.N. Ojha v. Alok Kumar
Srivastav (2009) 9 SCC 682 . In M.N. Ojha case similar views as in Bhajan
Lal case 1992 Supp (1) SCC 335 came to be recorded in the following words:
(M.N. Ojha case, SCC pp. 686-88, paras 25 & 27-30)
"25. Had the learned SDJM applied his mind to the facts and circumstances
and sequence of events and as well as the documents filed by the
complainant himself along with the complaint, surely he would have
dismissed the complaint. He would have realised that the complaint was only
a counterblast to the FIR lodged by the Bank against the complainant and
others with regard to the same transaction.
xx xx xx
27. The case on hand is a classic illustration of non-application of mind
by the learned Magistrate. The learned Magistrate did not scrutinise even
the contents of the complaint, leave aside the material documents available
on record. The learned Magistrate truly was a silent spectator at the time
of recording of preliminary evidence before summoning the appellants.
xx xx xx
28. The High Court committed a manifest error in disposing of the petition
filed by the appellants under Section 482 of the Code without even
adverting to the basic facts which were placed before it for its
consideration.
29. It is true that the Court in exercise of its jurisdiction under Section
482 of the Code of Criminal Procedure cannot go into the truth or otherwise
of the allegations and appreciate the evidence if any available on record.
Normally, the High Court would not intervene in the criminal proceedings at
the preliminary stage/when the investigation/enquiry is pending.
30. Interference by the High Court in exercise of its jurisdiction under
Section 482 of the Code of Criminal Procedure can only be where a clear
case for such interference is made out. Frequent and uncalled for
interference even at the preliminary stage by the High Court may result in
causing obstruction in the progress of the inquiry in a criminal case which
may not be in the public interest. But at the same time the High Court
cannot refuse to exercise its jurisdiction if the interest of justice so
required where the allegations made in the FIR or complaint are so absurd
and inherently improbable on the basis of which no fair-minded and informed
observer can ever reach a just and proper conclusion as to the existence of
sufficient grounds for proceeding. In such cases refusal to exercise the
jurisdiction may equally result in injustice more particularly in cases
where the complainant sets the criminal law in motion with a view to exert
pressure and harass the persons arrayed as accused in the complaint."
63. As of now we are satisfied, that the factual foundation/background of
the acts of omission and commission presented by the complainant is
specific and categorical. We are also satisfied that the allegations
levelled by the complainant, fully incorporate all the basic facts which
are necessary to make out the offences whereunder the impugned summoning
order dated 12-1-2005 has been passed. The instant controversy does not
suffer from any of the impairments referred in Iridium India Telecom Ltd.
case. Accordingly, we leave it open to the appellants to canvass the legal
issues, as were canvassed before us, before the trial court. After the
rival parties have led their evidence the trial court will return its
finding thereon in accordance with law without being influenced by any
observations made on the merits of the controversy hereinabove, or
hereafter.
xx xx xx
71. It was also the contention of the learned counsel for the respondents,
that the civil liability, in the instant case, was raised as against the
eventual purchaser of the goods/product (Samsung, Dubai), in lieu of the
goods/product supplied by the complainant JCE Consultancy, which had passed
onto the purchasers under the agreement dated 1-12-2001. Accordingly, the
civil liability was only raised as against Samsung, Dubai. However, insofar
as the criminal liability is concerned, Samsung, Dubai being one of the
subsidiary companies of Samsung, South Korea, it was allegedly under the
overall control exercised by Samsung, South Korea. Samsung, South Korea,
according to the complainant, was instrumental in the eventual decision
taken by Samsung, Dubai to deny the passing of the reciprocal monetary
consideration for the goods supplied under the agreement dated 1-12-2001.
This, according to the respondents, has been the categorical stance of JCE
Consultancy in the criminal complaint, as also, in the pre-summoning
evidence recorded before the VIIth Additional Chief Judicial Magistrate,
Ghaziabad under Section 200 of the Code of Criminal Procedure.
72. These allegations made by JCE Consultancy, are supported by documents
furnished to the summoning court. The aforesaid factual position has also
been endorsed by Sky Impex Ltd. before this Court. According to the learned
counsel for the respondents, the culpability of the appellants before this
Court, in a series of similar actions, clearly emerges even from documents
placed on record of the instant case by Sky Impex Ltd. As such, it is
submitted, that the respondents have per se repudiated all the submissions
advanced on behalf of the appellant, obviously subject to the evidence
which rival parties will be at liberty to adduce before the trial court.
xx xx xx
74. It would not be appropriate for us to delve into the culpability of the
appellants at the present juncture on the basis of the factual position
projected by the rival parties before us. The culpability (if at all) would
emerge only after evidence is adduced by the rival parties before the trial
court. The only conclusion that needs to be drawn at the present juncture
is that even on the basis of the last submission canvassed on behalf of the
appellants it is not possible to quash the summoning order at this stage.
In the aforesaid view of the matter, it is left open to the appellants to
raise their objections, if they are so advised, before the trial court. The
trial court shall, as it ought to, adjudicate upon the same in consonance
with law after allowing the rival parties to lead evidence to substantiate
their respective positions."
He concluded his submission by reiterating that when it was a case of
circumstantial evidence which appeared on record in abundance, the trial
court was right in summoning the appellants and in fact, judgment in Keshav
Mahindra v. State of M.P.[10] fully supported the impugned order. On the
other hand, decision in Iridium India Telecom Ltd. (supra) had no
application to the facts of this case.
Mr. Prashant Bhushan, appearing for intervenor, highlighted the role of the
appellant Mr. Sunil Bharti Mittal from the records and particularly the
extract of file noting which inter alia contained the views of the
Superintendent of Police. He, thus, submitted that this constituted
sufficient material to proceed against him and since it was only a
summoning order, the appellants were free to seek discharge before the
trial court. Submissions of Mr. Sunil Malhotra, Advocate, were also on the
same lines.
The Arguments: Appellants' Rejonder
Mr. Fali Nariman argued in rejoinder on the lines submissions were made by
Mr. Salve, and in the process lucidly expanded those submissions.
Emphasising that position in law with regard to vicarious liability was
that there is no such vicarious liability in criminal law unless something
is imputed or there is a specific statutory provision creating criminal
vicarious liability. He pointed out that in para 4 of the impugned order,
the learned Special Judge has not gone into the facts but did so taking
shelter under a legal cover, but went wrong in applying an ex facie
incorrect non- existing legal principle.
Our Analysis of the Subject Matter
We have given our serious consideration to all the submissions made before
us and fully conscious of the importance of the matter as well. At the
outset, we would like to point out that detailed submissions were made on
the nature of the charges, and in the process, learned counsel for the
appellants tried to trivialize the matter by stating that what was decided
was only a policy decision of the Government to allocate additional
spectrum by charging 1% additional AGR i.e. from 4% to 5%; benefit thereof
was extended to all Cellular Operating Companies including Pubic Sector
Companies like MTNL and BSNL etc. and, therefore, there cannot be a
criminal intent behind it. Mr. Salve as well as Mr. Nariman took pains in
showing various portions of the counter affidavit filed by the CBI to show
that the appellant was left out and not made accused after due
deliberations and argued that it was not a case of erroneous omission by
CBI. It was also argued at length that the allegations were in the domain
of the policy decision taken by the Government to charge 4% of AGR whereas
it was realised much later in the year 2010 when the TRAI has passed orders
that it should have been 5% AGR. According to them, it was merely a bona
fide policy decision which could not be subject matter of criminal
proceedings, in the absence of intent of criminality therein. More so, when
benefit of the said decision was not confined to the appellant's company,
namely M/s Bharti Cellular Limited, but was extended to all others as well
including public sector telecom companies like MTNL and BSNL. Therefore,
there cannot be a criminal intent behind such a decision. Mr. K.K.
Venugopal and others, appearing for the other side, had tried to
demonstrate that the aforesaid submission of the learned counsel for the
appellant was totally erroneous and contrary to records. He tried to
project that it was a conspiracy of major level with sole intention to
benefit the accused companies at the cost of the public exchequer and for
this purpose, criminal conspiracy was hatched up between them. However, we
make it clear at this juncture itself that this part of the submission is
beyond the scope of the present appeals inasmuch as even according to the
learned counsel for the appellants that the aforesaid is not made the basis
of the order while implicating the appellants herein. Insofar as four
persons who were made accused in the charge-sheet by the CBI is concerned,
they are concededly not before us as their summoning order has not been
challenged. Therefore, we deem it unnecessary to go into this question,
which position was even conceded by all the counsel appearing before us.
The fulcrum of the issue before us is the validity of that part of impugned
order vide which the two appellants who were not named in the charge sheet,
have been summoned by the Special Judge, for the reasons given therein.
(i) Dissecting the Impugned Order:
In the first instance, we make it clear that there is no denying the legal
position that even when a person is not named in the charge sheet as an
accused person, the trial court has adequate powers to summon such a non-
named person as well, if the trial court finds that the charge sheet and
the documents/material placed along with the charge-sheet disclose
sufficient prima facie material to proceed against such a person as well.
Kishun Singh (supra) and Dharam Pal (supra) are the direct decisions on
this aspect. However, in the present case, the question is not as to
whether there is sufficient material against the appellants filed in the
trial court to proceed against them. Whether such a material is there or
not is not reflected from the impugned order as that aspect is not even
gone into. The learned Special Judge has not stated in the order that
after examining the relevant documents, including statement of witnesses,
he is satisfied that there is sufficient incriminating material on record
to proceed against the appellants as well. On reading of the impugned
order which is already extracted verbatim, it is very clear that in para 2
of the order, the learned Special Judge discusses the submissions of the
Public Prosecutor in respect of the persons who are made accused in the
charge-sheet. Insofar as charge-sheet is concerned, it has named Mr.
Shyamal Ghosh, who was the public servant and other three accused persons
are the corporate entities. Submission of the learned Public Prosecutor is
recorded in this para that there is enough incriminating material on record
against them and they be proceeded against, as per law. Immediately
thereafter in para 3, the learned Special Judge records his satisfaction on
the perusal of the records namely FIR, charge-sheet, statement of witnesses
and documents and states that he is satisfied that there is enough
incriminating material on record to proceed against the "accused persons".
Para 3 is clearly relatable to para 2. Here, the "accused persons"
referred to are those four persons whose names are mentioned in para 2.
Obviously, till that stage, appellants were not the accused persons as they
are not named as such in the charge-sheet. After recording his
satisfaction qua the four said accused persons, discussion about other
three individuals (including the two appellants) starts from para 4 where
the Special Judge "also" finds and refers to the positions which these
three persons hold/held in the three companies respectively. In para 4,
the learned Special Judge does not mention about any incriminating material
against them in the statement of witnesses or documents etc. On the other
hand, the reason for summoning these persons and proceeding against them
are specifically ascribed in this para which, prima facie, are:
i) These persons were/are in the control of affairs of the respective
companies.
ii) Because of their controlling position, they represent the directing
mind and will of each company.
iii) State of mind of these persons is the state of mind of the
companies. Thus, they are described as "alter ego" of their respective
companies.
It is on this basis alone that the Special Judge records that "in this fact
situation, the acts of companies are to be attributed and imputed to them".
(ii) Principle of "alter ego", as applied
The moot question is whether the aforesaid proposition, to proceed against
the appellants is backed by law? In order to find the answer, let us scan
through the case law that was cited during the arguments.
First case which needs to be discussed is Iridium India (supra). Before we
discuss the facts of this case, it would be relevant to point out that the
question as to whether a company could be prosecuted for an offence which
requires mens rea had been earlier referred to in a Constitution Bench of
five Judges in the case of Standard Chartered Bank v. Directorate of
Enforcement[11]. The Constitution Bench had held that a company can be
prosecuted and convicted for an offence which requires a minimum sentence
of imprisonment. In para 8 of the judgment, the Constitution Bench
clarified that the Bench is not expressing any opinion on the question
whether a corporation could be attributed with requisite mens rea to prove
the guilt. Para 8 reads as under:
"8. It is only in a case requiring mens rea, a question arises whether a
corporation could be attributed with requisite mens rea to prove the guilt.
But as we are not concerned with this question in these proceedings, we do
not express any opinion on that issue."
In Iridium India (supra), the aforesaid question fell directly for
consideration, namely, whether a company could be prosecuted for an offence
which requires mens rea and discussed this aspect at length, taking note of
the law that prevails in America and England on this issue. For our
benefit, we will reproduce paras 59, 60, 61, 62, 63 and 64 herein:
"59. The courts in England have emphatically rejected the notion that a
body corporate could not commit a criminal offence which was an outcome of
an act of will needing a particular state of mind. The aforesaid notion has
been rejected by adopting the doctrine of attribution and imputation. In
other words, the criminal intent of the "alter ego" of the company/body
corporate i.e. the person or group of persons that guide the business of
the company, would be imputed to the corporation.
It may be appropriate at this stage to notice the observations made by
MacNaghten, J. in Director of Public Prosecutions v. Kent and Sussex
Contractors Ltd. 1972 AC 153: (AC p. 156):
"A body corporate is a "person" to whom, amongst the various attributes it
may have, there should be imputed the attribute of a mind capable of
knowing and forming an intention - indeed it is much too late in the day to
suggest the contrary. It can only know or form an intention through its
human agents, but circumstances may be such that the knowledge of the agent
must be imputed to the body corporate. Counsel for the respondents says
that, although a body corporate may be capable of having an intention, it
is not capable of having a criminal intention. In this particular case the
intention was the intention to deceive. If, as in this case, the
responsible agent of a body corporate puts forward a document knowing it to
be false and intending that it should [pic]deceive, I apprehend, according
to the authorities that Viscount Caldecote, L.C.J., has cited, his
knowledge and intention must be imputed to the body corporate."
61. The principle has been reiterated by Lord Denning in Bolton (H.L.)
(Engg.) Co. Ltd. v. T.J. Graham & Sons Ltd. in the following words: (AC p.
172):
"A company may in many ways be likened to a human body. They have a brain
and a nerve centre which controls what they do. They also have hands which
hold the tools and act in accordance with directions from the centre. Some
of the people in the company are mere servants and agents who are nothing
more than hands to do the work and cannot be said to represent the mind or
will. Others are directors and managers who represent the directing mind
and will of the company, and control what they do. The state of mind of
these managers is the state of mind of the company and is treated by the
law as such. So you will find that in cases where the law requires personal
fault as a condition of liability in tort, the fault of the manager will be
the personal fault of the company. That is made clear in Lord Haldane's
speech in Lennard's Carrying Co. Ltd. v. Asiatic Petroleum Co. Ltd. (AC at
pp. 713, 714). So also in the criminal law, in cases where the law requires
a guilty mind as a condition of a criminal offence, the guilty mind of the
directors or the managers will render the company themselves guilty."
62. The aforesaid principle has been firmly established in England since
the decision of the House of Lords in Tesco Supermarkets Ltd. v. Nattrass.
In stating the principle of corporate liability for criminal offences, Lord
Reid made the following statement of law: (AC p. 170 E-G)
"I must start by considering the nature of the personality which by a
fiction the law attributes to a corporation. A living person has a mind
which can have knowledge or intention or be negligent and he has hands to
carry out his intentions. A corporation has none of these: it must act
through living persons, though not always one or the same person. Then the
person who acts is not speaking or acting for the company. He is acting as
the company and his mind which directs his acts is the mind of the company.
There is no question of the company being vicariously liable. He is not
acting as a servant, representative, agent or delegate. He is an embodiment
of the company or, one could say, he hears and speaks through the persona
of the company, within his appropriate sphere, and his mind is the mind of
the company. If it is a guilty mind then that guilt is the guilt of the
company. It must be a question of law whether, once the facts have been
ascertained, a person in doing particular things is to be regarded as the
company or merely as the company's servant or agent. In that case any
liability of the company can only be a statutory or vicarious liability."
From the above it becomes evident that a corporation is virtually in the
same position as any individual and may be convicted of common law as well
as statutory offences including those requiring mens rea. The criminal
liability of a corporation would arise when an offence is committed in
relation to the business of the corporation by a person or body of persons
in control of its affairs. In such circumstances, it would be necessary to
ascertain that the degree and control of the person or body of persons is
so intense that a corporation may be said to think and act through the
person or the body of persons. The position of law on this issue in Canada
is almost the same. Mens rea is attributed to corporations on the principle
of "alter ego" of the company.
64. So far as India is concerned, the legal position has been clearly
stated by the Constitution Bench judgment of this Court in Standard
Chartered Bank v. Directorate of Enforcement (2005) 4 SCC 530 . On a
detailed consideration of the entire body of case laws in this country as
well as other jurisdictions, it has been observed as follows: (SCC p. 541,
para 6)
"6. There is no dispute that a company is liable to be prosecuted and
punished for criminal offences. Although there are earlier authorities to
the effect that corporations cannot commit a crime, the generally accepted
modern rule is that except for such crimes as a corporation is held
incapable of committing by reason of the fact that they involve personal
malicious intent, a corporation may be subject to indictment or other
criminal process, although the criminal act is committed through its
agents."
It is abundantly clear from the above that the principle which is laid down
is to the effect that the criminal intent of the "alter ego" of the
company, that is the personal group of persons that guide the business of
the company, would be imputed to the company/corporation. The legal
proposition that is laid down in the aforesaid judgment is that if the
person or group of persons who control the affairs of the company commit an
offence with a criminal intent, their criminality can be imputed to the
company as well as they are "alter ego" of the company.
In the present case, however, this principle is applied in an exactly
reverse scenario. Here, company is the accused person and the learned
Special Magistrate has observed in the impugned order that since the
appellants represent the directing mind and will of each company, their
state of mind is the state of mind of the company and, therefore, on this
premise, acts of the company is attributed and imputed to the appellants.
It is difficult to accept it as the correct principle of law. As
demonstrated hereinafter, this proposition would run contrary to the
principle of vicarious liability detailing the circumstances under which a
direction of a company can be held liable.
(iii) Circumstances when Director/Person in charge of the affairs of the
company can also be prosecuted, when the company is an accused person:
No doubt, a corporate entity is an artificial person which acts through its
officers, directors, managing director, chairman etc. If such a company
commits an offence involving mens rea, it would normally be the intent and
action of that individual who would act on behalf of the company. It would
be more so, when the criminal act is that of conspiracy. However, at the
same time, it is the cardinal principle of criminal jurisprudence that
there is no vicarious liability unless the statute specifically provides
so.
Thus, an individual who has perpetrated the commission of an offence on
behalf of a company can be made accused, along with the company, if there
is sufficient evidence of his active role coupled with criminal intent.
Second situation in which he can be implicated is in those cases where the
statutory regime itself attracts the doctrine of vicarious liability, by
specifically incorporating such a provision.
When the company is the offendor, vicarious liability of the Directors
cannot be imputed automatically, in the absence of any statutory provision
to this effect. One such example is Section 141 of the Negotiable
Instruments Act, 1881. In Aneeta Hada (supra), the Court noted that if a
group of persons that guide the business of the company have the criminal
intent, that would be imputed to the body corporate and it is in this
backdrop, Section 141 of the Negotiable Instruments Act has to be
understood. Such a position is, therefore, because of statutory intendment
making it a deeming fiction. Here also, the principle of "alter ego", was
applied only in one direction namely where a group of persons that guide
the business had criminal intent, that is to be imputed to the body
corporate and not the vice versa. Otherwise, there has to be a specific
act attributed to the Director or any other person allegedly in control
and management of the company, to the effect that such a person was
responsible for the acts committed by or on behalf of the company. This
very principle is elaborated in various other judgments. We have already
taken note of Maharashtra State Electricity Distribution Co. Ltd. (supra)
and S.K. Alagh (supra). Few other judgments reiterating this principle are
the following:
1. Jethsur Surangbhai v. State of Gujarat[12]
"9. With due respect what the High Court seems to have missed is that in
a case like this where there was serious defalcation of the properties of
the Sangh, unless the prosecution proved that there was a close cohesion
and collusion between all the accused which formed the subject matter of a
conspiracy, it would be difficult to prove the dual charges particularly
against the appellant (A-1). The charge of conspiracy having failed, the
most material and integral part of the prosecution story against the
appellant disappears. The only ground on the basis of which the High Court
has convicted him is that as he was the Chairman of the Managing Committee,
he must be held to be vicariously liable for any order given or
misappropriation committed by the other accused. The High Court, however,
has not referred to the concept of vicarious liability but the findings of
the High Court seem to indicate that this was the central idea in the mind
of the High Court for convicting the appellant. In a criminal case of such
a serious nature mens rea cannot be excluded and once the charge of
conspiracy failed the onus lay on the prosecution to prove affirmatively
that the appellant was directly and personally connected with acts or
omissions pertaining to Items 2, 3 and 4. It is conceded by Mr Phadke that
no such direct evidence is forthcoming and he tried to argue that as the
appellant was Chairman of the Sangh and used to sign papers and approve
various tenders, even as a matter of routine he should have acted with care
and caution and his negligence would be a positive proof of his intention
to commit the offence. We are however unable to agree with this somewhat
broad statement of the law. In the absence of a charge of conspiracy the
mere fact that [pic]the appellant happened to be the Chairman of the
Committee would not make him criminally liable in a vicarious sense for
items 2 to 4. There is no evidence either direct or circumstantial to show
that apart from approving the purchase of fertilisers he knew that the
firms from which the fertilisers were purchased did not exist. Similar is
the case with the other two items. Indeed, if the Chairman was to be made
liable then all members of the Committee viz. Tehsildar and other nominated
members, would be equally liable because all of them participated in the
deliberations of the meetings of the Committee, a conclusion which has not
even been suggested by the prosecution. As Chairman of the Sangh the
appellant had to deal with a large variety of matters and it would not be
humanly possible for him to analyse and go into the details of every small
matter in order to find out whether there has been any criminal breach of
trust. In fact, the hero of the entire show seems to be A-3 who had so
stage-managed the drama as to shield his guilt and bring the appellant in
the forefront. But that by itself would not be conclusive evidence against
the appellant. There is nothing to show that A-3 had either directly or
indirectly informed the appellant regarding the illegal purchase of
fertilisers or the missing of the five oil engines which came to light much
later during the course of the audit. Far from proving the intention the
prosecution has failed to prove that the appellant had any knowledge of
defalcation of Items 2 to 4. In fact, so far as item 3 is concerned, even
Mr Phadke conceded that there is no direct evidence to connect the
appellant."
2. Sham Sunder v. State of Haryana[13]
"9. But we are concerned with a criminal liability under penal provision
and not a civil liability. The penal provision must be strictly construed
in the first place. Secondly, there is no vicarious liability in criminal
law unless the statute takes that also within its fold. Section 10 does not
provide for such liability. It does not make all the partners liable for
the offence whether they do business or not."
3. Hira Lal Hari Lal Bhagwati v. CBI [14]
"30. In our view, under the penal law, there is no concept of vicarious
liability unless the said statute covers the same within its ambit. In the
instant case, the said law which prevails in the field i.e. the Customs
Act, 1962 the appellants have been thereinunder wholly discharged and the
GCS granted immunity from prosecution."
4. Maksud Saiyed v. State of Gujarat[15]
"13. Where a jurisdiction is exercised on a complaint petition filed in
terms of Section 156(3) or Section 200 of the Code of Criminal Procedure,
the Magistrate is required to apply his mind. The Penal Code does not
contain any provision for attaching vicarious liability on the part of the
Managing Director or the Directors of the Company when the accused is the
Company. The learned Magistrate failed to pose unto himself the correct
question viz. as to whether the complaint petition, even if given face
value and taken to be correct in its entirety, would lead to the conclusion
that the respondents herein were personally liable for any offence. The
Bank is a body corporate. Vicarious liability of the Managing Director and
Director would arise provided any provision exists in that behalf in the
statute. Statutes indisputably must contain provision fixing such vicarious
liabilities. Even for the said purpose, it is obligatory on the part of the
complainant to make requisite allegations which would attract the
provisions constituting vicarious liability."
5. R. Kalyani v. Janak C. Mehta[16]
"32. Allegations contained in the FIR are for commission of offences under
a general statute. A vicarious liability can be fastened only by reason of
a provision of a statute and not otherwise. For the said purpose, a legal
fiction has to be created. Even under a special statute when the vicarious
criminal liability is fastened on a person on the premise that he was in
charge of the affairs of the company and responsible to it, all the
ingredients laid down under the statute must be fulfilled. A legal fiction
must be confined to the object and purport for which it has been created."
6. Sharon Michael v. State of T.N.[17]
"16. The first information report contains details of the terms of
contract entered into by and between the parties as also the mode and
manner in which they were implemented. Allegations have been made against
the appellants in relation to execution of the contract. No case of
criminal misconduct on their part has been made out before the formation of
the contract. There is nothing to show that the appellants herein who hold
different positions in the appellant Company made any representation in
their personal capacities and, thus, they cannot be made vicariously liable
only because they are employees of the Company."
7. Keki Hormusji Gharda v. Mehervan Rustom Irani[18]
"16. We have noticed hereinbefore that despite of the said road being under
construction, the first respondent went to the police station thrice. He,
therefore, was not obstructed from going to the police station. In fact, a
firm action had been taken by the authorities. The workers were asked not
to do any work on the road. We, therefore, fail to appreciate that how, in
a situation of this nature, the Managing Director and the Directors of the
Company as also the Architect can be said to have committed an offence
under Section 341 IPC.
The Penal Code, 1860 save and except in some matters does not contemplate
any vicarious liability on the part of a person. Commission of an offence
by raising a legal fiction or by creating a vicarious liability in terms of
the provisions of a statute must be expressly stated. The Managing Director
or the Directors of the Company, thus, cannot be said to have committed an
offence only because they are holders of offices. The learned Additional
Chief Metropolitan Magistrate, therefore, in our opinion, was not correct
in issuing summons without taking into consideration this aspect of the
matter. The Managing Director and the Directors of the Company should not
have been summoned only because some allegations were made against the
Company.
18. In Pepsi Foods Ltd. v. Special Judicial Magistrate (1998) 5 SCC 749
this Court held as under: (SCC p. 760, para 28)
"28. Summoning of an accused in a criminal case is a serious matter.
Criminal law cannot be set into motion as a matter of course. It is not
that the complainant has to bring only two witnesses to support his
allegations in the complaint to have the criminal law set into motion. The
order of the Magistrate summoning the accused must reflect that he has
applied his mind to the facts of the case and the law applicable thereto.
He has to examine the nature of allegations made in the complaint and the
evidence both oral and documentary in support thereof and would that be
sufficient for the complainant to succeed in bringing charge home to the
accused. It is not that the Magistrate is a silent spectator at the time of
recording of preliminary evidence before summoning of the accused. The
Magistrate has to carefully scrutinise the evidence brought on record and
may even himself put questions to the complainant and his witnesses to
elicit answers to find out the truthfulness of the allegations or otherwise
and then examine if any offence is prima facie committed by all or any of
the accused."
19. Even as regards the availability of the remedy of filing an
application for discharge, the same would not mean that although the
allegations made in [pic]the complaint petition even if given face value
and taken to be correct in its entirety, do not disclose an offence or it
is found to be otherwise an abuse of the process of the court, still the
High Court would refuse to exercise its discretionary jurisdiction under
Section 482 of the Code of Criminal Procedure."
It is stated at the cost of repetition that in the present case, while
issuing summons against the appellants, the Special Magistrate has taken
shelter under a so-called legal principle, which has turned out to be
incorrect in law. He has not recorded his satisfaction by mentioning the
role played by the appellants which would bring them within criminal net.
In this behalf, it would be apt to note that the following observations of
this Court in the case of GHCL Employees Stock Option Trust v. India
Infoline Ltd.[19]:
"19. In the order issuing summons, the learned Magistrate has not recorded
his satisfaction about the prima facie case as against Respondents 2 to 7
and the role played by them in the capacity of Managing Director, Company
Secretary or Directors which is sine qua non for initiating criminal action
against them. (Thermax Ltd. v. K.M. Johny followed)
xx xx xx
21. In the instant case the High Court has correctly noted that issuance
of summons against Respondents 2 to 7 is illegal and amounts to abuse of
process of law. The order of the High Court, therefore, needs no
interference by this Court."
We have already mentioned above that even if the CBI did not implicate the
appellants, if there was/is sufficient material on record to proceed
against these persons as well, the Special Judge is duly empowered to take
cognizance against these persons as well. Under Section 190 of the Code,
any Magistrate of first class (and in those cases where Magistrate of the
second class is specially empowered to do so) may take cognizance of any
offence under the following three eventualities:
(a) upon receiving a complaint of facts which constitute such offence;
(b) upon a police report of such facts; and
upon information received from any person other than a police officer,
or upon his own knowledge, that such offence has been committed.
This Section which is the starting section of Chapter XIV is subject to the
provisions of the said Chapter. The expression "taking cognizance" has not
been defined in the Code. However, when the Magistrate applies his mind
for proceeding under Sections 200-203 of the Code, he is said to have taken
cognizance of an offence. This legal position is explained by this Court
in S.K. Sinha, Chief Enforcement Officer v. Videocon International Ltd &
Ors.[20] in the following words:
"19. The expression "cognizance" has not been defined in the Code. But
the word (cognizance) is of indefinite import. It has no esoteric or
mystic significance in criminal law. It merely means "become aware of: and
when used with reference to a court or a Judge, it connoted "to take notice
of judicially". It indicates the point when a court or a Magistrate takes
judicial notice of an offence with a view to initiating proceedings in
respect of such offence said to have been committed by someone.
20. "Taking Cognizance" does not involve any formal action of any kind.
It occurs as soon as a Magistrate applies his mind to the suspected
commission of an offence...."
Sine Qua Non for taking cognizance of the offence is the
application of mind by the Magistrate and his satisfaction that the
allegations, if proved, would constitute an offence. It is, therefore,
imperative that on a complaint or on a police report, the Magistrate is
bound to consider the question as to whether the same discloses commission
of an offence and is required to form such an opinion in this respect.
When he does so and decides to issue process, he shall be said to have
taken cognizance. At the stage of taking cognizance, the only
consideration before the Court remains to consider judiciously whether the
material on which the prosecution proposes to prosecute the accused brings
out a prima facie case or not.
Cognizance of an offence and prosecution of an offender are two different
things. Section 190 of the Code empowered taking cognizance of an offence
and not to deal with offenders. Therefore, cognizance can be taken even if
offender is not known or named when the complaint is filed or FIR
registered. Their names may transpire during investigation or afterwards.
Person who has not joined as accused in the charge-sheet can be summoned at
the stage of taking cognizance under Section 190 of the Code. There is no
question of applicability of Section 319 of the Code at this stage (See
SWIL Ltd. v. State of Delhi[21]). It is also trite that even if a person is
not named as an accused by the police in the final report submitted, the
Court would be justified in taking cognizance of the offence and to summon
the accused if it feels that the evidence and material collected during
investigation justifies prosecution of the accused (See Union of India v.
Prakash P. Hinduja and another[22]). Thus, the Magistrate is empowered to
issue process against some other person, who has not been charge-sheeted,
but there has to be sufficient material in the police report showing his
involvement. In that case, the Magistrate is empowered to ignore the
conclusion arrived at by the investigating officer and apply his mind
independently on the facts emerging from the investigation and take
cognizance of the case. At the same time, it is not permissible at this
stage to consider any material other than that collected by the
investigating officer.
On the other hand, Section 204 of the Code deals with the issue of process,
if in the opinion of the Magistrate taking cognizance of an offence, there
is sufficient ground for proceeding. This Section relates to commencement
of a criminal proceeding. If the Magistrate taking cognizance of a case
(it may be the Magistrate receiving the complaint or to whom it has been
transferred under Section 192), upon a consideration of the materials
before him (i.e., the complaint, examination of the complainant and his
witnesses if present, or report of inquiry, if any), thinks that there is a
prima facie case for proceeding in respect of an offence, he shall issue
process against the accused.
A wide discretion has been given as to grant or refusal of process and it
must be judicially exercised. A person ought not to be dragged into Court
merely because a complaint has been filed. If a prima facie case has been
made out, the Magistrate ought to issue process and it cannot be refused
merely because he thinks that it is unlikely to result in a conviction.
However, the words "sufficient grounds for proceeding" appearing in the
Section are of immense importance. It is these words which amply suggest
that an opinion is to be formed only after due application of mind that
there is sufficient basis for proceeding against the said accused and
formation of such an opinion is to be stated in the order itself. The
order is liable to be set aside if no reason is given therein while coming
to the conclusion that there is prima facie case against accused, though
the order need not contain detailed reasons. A fortiori, the order would
be bad in law if the reason given turns out to be ex facie incorrect.
However, there has to be a proper satisfaction in this behalf which should
be duly recorded by the Special Judge on the basis of material on record.
No such exercise is done. In this scenario, having regard to the aforesaid
aspects coupled with the legal position explained above, it is difficult to
sustain the impugned order dated 19.03.2013 in its present form insofar as
it relates to implicating the appellants and summoning them as accused
persons. The appeals arising out of SLP (Crl.) No. 2961 of 2013 and SLP
(Crl.) No. 3161 of 2013 filed by Mr. Sunil Bharti Mittal and Ravi Ruia
respectively are, accordingly, allowed and order summoning these appellants
is set aside. The appeals arising out of SLP (Crl.) Nos. 3326-3327 of 2013
filed by Telecom Watchdog are dismissed.
Epilogue
While parting, we make it clear that since on an erroneous presumption in
law, the Special Magistrate has issued the summons to the appellants, it
will always be open to the Special Magistrate to undertake the exercise of
going through the material on record and on that basis, if he is satisfied
that there is enough incriminating material on record to proceed against
the appellants as well, he may pass appropriate orders in this behalf. We
also make it clear that even if at this stage, no such prima facie material
is found, but during the trial, sufficient incriminating material against
these appellants surfaces in the form of evidence, the Special Judge shall
be at liberty to exercise his powers under Section 319 of the Code to rope
in the appellants by passing appropriate orders in accordance with law at
that stage.
.........................................CJI.
(H.L. DATTU)
.............................................J.
(MADAN B. LOKUR)
.............................................J.
(A.K. SIKRI)
NEW DELHI;
JANUARY 09, 2015.
ITEM NO. 1A COURT NO.1 SECTION II
(For Judgment)
S U P R E M E C O U R T O F I N D I A
RECORD OF PROCEEDINGS
CRIMINAL APPEAL NO. 34 OF 2015 @
PETITION FOR SPECIAL LEAVE TO APPEAL (Crl.) NO. 2961 OF 2013
Sunil Mittal .. Appellant(s)
vs.
Central Bureau of Investigation ..Respondent(s)
WITH
CRIMINAL APPEAL NO. 35 of 2015
(@ SLP(Crl.) No. 3161 of 2013
CRIMINAL APPEAL NOs.36-37 of 2015
(@ SLP(Crl.) Nos. 3326-3327 of 2013)
DATE : 09.01.2015 These matters were called on for
pronouncement of judgment today.
For Appellant(s) Mr. Harish Salve, Sr. Adv.
Mr. Fali S. Nariman, Sr. Adv.
Mr. Amit Desai, Sr. Adv.
Mr. Percival Billimonia, Adv.
Mr. Sidharth Agarwal, Adv.
Mr. Kamal Shankar, Adv.
Mr. Atul N, Adv.
Mr. Manpreet Lamba, Adv.
Mr. Gautam , Adv.
Mr. Utkarsh Saxena, Adv.
Mr. Utkarsh Saxena, Adv.
For Respondent(s) Ms. Pinky anand, ASG
Mr. Gopal Sankaranarayanan, Adv.
Mr. Rajesh Ranjan, Adv.
Mr. Balendu Shekhar, Adv.
Mr. B.V. Balram Das, Adv.
Ms. Meenakshi Grover, Adv.
Mr. Rohit Bhat, Adv.
Mr.D.S. Mehara, Adv.
---
2
Hon'ble Mr. Justice A.K. Sikri pronounced the judgment of the
Bench comprising Hon'ble the Chief Justice, Hon'ble Mr. Justice Madan B.
Lokur and His Lordship.
Leave granted.
The appeals arising out of SLP(Crl.) No. 2961 of 2013 and 3161
of 2013 are allowed. The appeals arising out of SLP(Crl.) Nos. 3326-3327
of 2013 are dismissed.
[ Charanjeet Kaur ] [ Vinod Kulvi ]
Court Master Asstt. Registrar
[ Signed reportable judgment is placed on the file ]
-----------------------
[1]
(2012) 3 SCC 1
[2] (2011) 1 SCC 74
[3] (2010) 10 SCC 479
[4] (2008) 5 SCC 662
[5] (2012) 5 SCC 661
[6] (2007) 1 SCC 110
[7] (1993) 2 SCC 16
[8] (2014) 3 SCC 306
[9] (2012) 3 SCC 132
[10] (1996) 6 SCC 129
[11] (2005) 4 SCC 530
[12] (1984) Supp. SCC 207
[13] (1989) 4 SCC 630
[14] (2003) 5 SCC 257
[15] (2008) 5 SCC 668
[16] (2009) 1 SCC 516
[17] (2009) 3 SCC 375
[18] (2009) 6 SCC 475
[19] (2013) 4 SCC 505
[20] (2008) 2 SCC 492
[21] (2001) 6 SCC 670
[22] (2003) 6 SCC 195
IN THE SUPREME COURT OF INDIA
CRIMINAL APPELLATE JURISDICTION
CRIMINAL APPEAL NO. 34 OF 2015
(arising out of Special Leave Petition (Crl.) No. 2961 of 2013)
|SUNIL BHARTI MITTAL |.....APPELLANT(S) |
|VERSUS | |
|CENTRAL BUREAU OF INVESTIGATION |.....RESPONDENT(S) |
W I T H
CRIMINAL APPEAL NO. 35 OF 2015
(arising out of Special Leave Petition (Crl.) No. 3161 of 2013)
A N D
CRIMINAL APPEAL NOS. 36-37 OF 2015
(arising out of Special Leave Petition (Crl.) No. 3326-3327 of 2013)
J U D G M E N T
A.K. SIKRI, J.
Leave granted.
Introduction:
In the year 2008, during the tenure of the then Minister of
Telecommunications, Unified Access Services Licenses ("UASL") were granted.
After sometime, an information was disclosed to the Central Bureau of
Investigation (CBI) alleging various forms of irregularities committed in
connection with the grant of the said UASL which resulted in huge losses to
the public exchequer. On the basis of such source information, the CBI
registered a case bearing RC DAI 2009 A 0045 on 21st October, 2009. It is
now widely known as "2G Spectrum Scam Case". The case was registered
against unknown officers of the Department of Telecommunications (DOT) as
well as unknown private persons and companies.
While the investigation into the said case was still on, a writ petition
was filed by an NGO known as Center for Public Interest Litigation (CPIL)
before the High Court of Delhi seeking directions for a Court monitored
investigation. Apprehension of the petitioner was that without such a
monitoring by the Court, there may not be a fair and impartial
investigation. Delhi High Court dismissed the petition.
Challenging the order of the Delhi High Court, CPIL filed Special Leave
Petition before this Court under Article 136 of the Constitution of India.
At that time, another petitioner, Dr.Subramanian Swamy, directly approached
the Supreme Court by way of a writ petition under Article 32 of the
Constitution of India seeking almost the same reliefs on similar kinds of
allegations. Leave was granted in the said SLP, converting it into a civil
appeal. Said civil appeal and writ petition were taken up together for
analogous hearing. On 16th December, 2010, a detailed interim order was
passed in the civil appeal inter alia giving the following directions:
"a. The CBI shall conduct thorough investigation into various issues
highlighted in the report of the Central Vigilance Commission, which was
forwarded to the Director, CBI vide letter dated 12.10.2009 and the report
of the CAG, who have prima facie found serious irregularities in the grant
of licences to 122 applicants, majority of whom are said to be ineligible,
the blatant violation of the terms and conditions of licences and huge loss
to the public exchequer running into several thousand crores. The CBI
should also probe how licences were granted to large number of ineligible
applicants and who was responsible for the same and why the TRAI and the
DoT did not take action against those licensees who sold their
stakes/equities for many thousand crores and also against those who failed
to fulfill roll out obligations and comply with other conditions of
licence.
b. The CBI shall, if it has already not registered first information
report in the context of the alleged irregularities committed in the grant
of licences from 2001 to 2006-2007, now register a case and conduct
thorough investigation with particular emphasis on the loss caused to the
public exchequer and corresponding gain to the licensees/service providers
and also on the issue of allowing use of dual/alternate technology by some
service providers even before the decision was made public vide press
release dated 19.10.2007."
Thereafter, detailed judgment was passed by the Bench of this Court in the
aforesaid proceedings on 2nd February, 2012 which is reported as Centre for
Public Interest Litigation & Ors. v. Union of India & Ors.[1]. The Court
allowed the appeal as well as the writ petition, holding that spectrum
licences were illegally granted to the beneficiaries at the cost of the
nation. The Court accordingly cancelled the licences granted to the
private respondents on or after 10.01.2008 and issued certain directions
for grant of fresh licences and allocation of spectrum in 2G Band. It was
also specifically clarified that the observations in the said judgment
would not, in any manner, affect the pending investigation by the CBI,
Directorate of Enforcement and other agencies or cause prejudice to those
who are facing prosecution in the cases registered by the CBI or who may
face prosecution on the basis of charge-sheet(s) which may be filed by the
CBI in future. The Court also made it clear that the Special Judge, CBI
would decide the matter uninfluenced by the judgment dated February 02,
2012. Thereafter, order dated 11.04.2011 was passed in that very appeal,
making its intention manifest that this Court would be monitoring the
investigation by CBI in larger public interest. Special Court was set up
for trial of the 2G case and a Senior Advocate was nominated as the Special
Public Prosecutor by the Court itself, who also agreed with his appointment
in that capacity. The Court also made it clear that no other Court would
stay or impede trial conducted by the Special Court and the aggrieved
person could approach this Court for any grievance. In the present
proceedings, we are not concerned with the subject matter of the said
trial. However, the aforesaid narrative became necessary to point out that
present proceedings triggered as a result of order dated 16.12.2010 vide
which the Court directed CBI to register a case and conduct the inquiry in
connection with alleged irregularities in grant of licences from 2001 to
2006-2007 as well. Further, as would be noticed later, the investigation
pertaining to this period also is being monitored by the Supreme Court and
the learned counsel for all the parties were at ad idem that challenge to
the impugned order is to be entertained by this Court only under Article
136 of the Constitution, though while entertaining these appeals, the Court
would bear in mind the parameters of Section 482 of the Code of Criminal
Procedure, 1973 (hereinafter referred to as "the Code").
The Instant Proceedings : Factual Narration
The CBI registered another RC being RC DAI 2011 A 0024 on 17th November,
2011 with regard to alleged irregularities in grant of additional spectrum
in the year 2002 during the tenure of late Shri Pramod Mahajan as Minister
of Communications. In this RC, apart from Shri Pramod Mahajan, others who
were named were Mr. Shyamal Ghosh, the then Secretary (Telecom), Mr. J.R.
Gupta, the then Deputy Director General (VAS) and three Cellular Companies
viz. M/s Bharti Cellular Limited, M/s Hutchison Max Telecom (P) Limited and
M/s Sterling Cellular Limited. After registering the said RC, the CBI
started investigation into the allegations contained therein. As already
pointed out above, since the matter was being monitored by this Court,
progress reports of investigation were filed from time to time in sealed
envelopes. On 29th November, 2012, after perusing certain documents
presented in a sealed cover, this Court directed the CBI to take action in
accordance with the views expressed by it on the issue of prosecution of
public servants and the companies in connection with the said case. The
precise nature of this order can be seen from the actual language thereof
which is reproduced hereunder:
"At the commencement of hearing in connection with CBI Case No. RC DAI 2011
A 0024, Shri K.K. Venugopal, learned senior counsel appearing for the
Central Bureau of Investigation placed before the Court a sealed envelope,
which was opened in the Court.
We have perused the papers contained in the sealed envelope and are of the
view that the CBI shall take action in accordance with the views expressed
by the Director, CBI on the issue of prosecution of public servants and the
companies in connection with the said case.
The report produced by Shri Venugopal shall be put in sealed cover and
handed over to the counsel instructing Shri Venugopal. The needful has
been done.
List the case on 05.12.2012.
To be taken up at 3.30 P.M."
On completion of the investigation, charge-sheet was filed by the CBI in
the Court of Shri O.P. Saini, the learned Special Judge, on 21st December,
2012.
Before proceeding further, it would be prudent to mention in brief the case
set up by the CBI in the charge-sheet to have the flavour of the
prosecution case. Though we are not much concerned about the merits of the
allegations in these proceedings, a brief account thereof will facilitate
in understanding the background leading to the roping in of the appellants
in these proceedings. During monitoring of the investigation of CBI Case
No. RC-DAI-2009-A-0045 (2G Spectrum Case), this Court vide its order dated
16.12.2010 directed CBI to investigate the irregularities committed in the
grant of licences from 2001 to 2007 with partial emphasis on the loss
caused to the public exchequer and corresponding gain to the
Licensees/Service Providers. Accordingly, in compliance to the said order,
a Preliminary Enquiry vide No. PE-DAI-2011-A-0001 was registered on
04.01.2011 at CBI, ACB, New Delhi. During inquiry of the said PE, it was
learnt from reliable sources that vide a decision dated 31.01.2002 of the
then MoC&IT, on the recommendation of certain DoT officers, the allocation
of additional spectrum beyond 6.2 MHz upto 10 MHz (paired) was approved
wherein only 1% additional revenue share was charged thereby causing
revenue loss to Government exchequer.
As pointed above, on the basis of the outcome of the aforesaid inquiry, a
regular case was registered on 17.11.2011 for the offences punishable under
Sections 120-B IPC r/w 13 (2) and 13 (1)(d) of the Prevention of Corruption
Act, 1988 (for short, 'PC Act'). It was against Mr. Shyamal Ghosh, Mr.
J.R. Gupta and the three Cellular Companies, names whereof have already
been mentioned above. The main allegation is that additional spectrum
beyond 6.2 MHz upto 10 MHz (paired) was approved at an additional revenue
share at the rate of 1% only, meaning thereby the said additional revenue
should have been at a higher rate. As per the investigation, Cellular
Operators Association of India (COAI) had made a request to DoT, in the
year 2001, for allocating additional spectrum particularly in Delhi and
Mumbai service areas. On this, Technical Committee was constituted which
gave its report on 21.11.2001 recommending therein that 6.2 MHz spectrum
was sufficient for a subscriber based out of about 9 lacs per operator in
service areas like Delhi and Mumbai for another 24-30 months. The
Committee also recommended to levy incremental charges for additional
spectrum. However, on 31.01.2002, a note was put up by Mr. J.R. Gupta
mentioning therein that a consensus had emerged after discussion that
additional spectrum to the extent of 1.8 MHz (paired) beyond 6.2 MHz in
1800 MHz band might be released on case to case co-ordination basis to the
Operators by charging additional 1% of revenue after customer base of 4-5
lacs was reached. On this note, Mr. Shyamal Ghosh agreed to the reduced
subscriber base from 9 lacs to 4/5 lacs for allocation of additional
spectrum and recommended to allocate additional spectrum beyond 6.2 MHz
upto 10 MHz by charging only additional 1% of AGR. This note was approved
by the then Minister of Communications and Information Technology on the
same day i.e. 31.01.2002 itself. It resulted in issuance and circulation
of General Order on 01.02.2002 to all Cellular Mobile Telecom Service
(CMTS) Operators. As per the allegations in the FIR, the accused public
servants entered into a criminal conspiracy with the accused beneficiary
companies in taking the aforesaid decision which caused undue cumulative
pecuniary advantage of Rs.846.44 crores to the beneficiary companies and
corresponding loss to the Government Exchequer, by charging an additional
1% AGR only for allotting additional spectrum from 6.2 MHz upto 10 MHz
(paired) instead of charging 2% AGR, as per the existing norms.
Thus, the allegation, in nutshell, is for grant of additional spectrum by
lowering the condition of 9 lacs subscribers to 4/5 lacs subscribers, by
only charging additional 1% AGR instead of charging additional 2% AGR which
has caused losses to the Government Revenue. It is further the case of the
prosecution that this was the result of conspiracy hatched between
Mr.Shyamal Ghosh and the then Minister as well as the accused Cellular
Operator Companies. The decision was taken in haste on 31st January, 2002
itself inasmuch as note was prepared by Mr. J.R. Gupta on that day which
was agreed to by Mr. Shyamal Ghosh and thereafter approved by the Minister
on the same day. On that basis, circular was issued on the very next day
i.e. on 01.02.2002. As per the charge-sheet, investigation has also
revealed that all this was done in haste to help M/s Bharti Cellular
Limited which had come out with Initial Public Offer (IPO) that was opened
and it was not getting good response from the public as it had remained
under-subscribed. The moment such a decision of allocating additional
spectrum was taken on 31.01.2002, on the very next day, the issue got over-
subscribed.
It would be pertinent to mention that in the charge-sheet filed, Mr.J.R.
Gupta was not made accused as no material of any conspiracy or being a part
of decision is attributed to him. In this charge-sheet, CBI named Mr.
Shyamal Ghosh and the aforesaid three companies namely M/s Bharti Cellular
Limited, M/s Hutchison Max Telecom (P) Limited and M/s Sterling Cellular
Limited as the accused persons in respect of offences under Section 13(2)
read with 13(1)(d) of the PC Act and allied offences.
The Impugned Order
The matter was taken up by the Special Judge on 19th March, 2013 for the
purposes of issuance of summons to the accused persons in the said charge-
sheet (CC No.101/12). The learned Special Judge passed orders dated 19th
March, 2013 recording his satisfaction to the effect that there was enough
incriminating material on record to proceed against the accused persons.
At the same time, the learned Special Judge also found that Mr.Sunil Bharti
Mittal was Chairman-cum-Managing Director of Bharti Cellular Limited, Mr.
Asim Ghosh was Managing Director of Hutchison Max Telecom (P) Limited and
Mr. Ravi Ruia was a Director in Sterling Cellular Limited, who used to
chair the meetings of its Board. According to him, in that capacity, these
persons, prima facie, could be treated as controlling the affairs of the
respective companies and represent the directing mind and will of each
company. They were, thus, "alter ego" of their respective companies and
the acts of the companies could be attributed and imputed to them. On this
premise, the Special Judge felt that there was enough material on record to
proceed against these three persons as well. Thus, while taking cognizance
of the case, he decided to issue summons not only to the four accused named
in the charge-sheet but the aforesaid three persons as well.
Two of the aforesaid three persons are before us in these appeals. Feeling
aggrieved, they have challenged the order insofar as it proceeds to
implicate them as accused persons in the said charge-sheet.
Before proceeding to record the submissions of the learned counsel for the
appellants as well as the counsel opposite, it becomes necessary to take
note of the brief order dated 19th March, 2013, as this order was read and
re-read time and again by each counsel with an attempt to give their own
interpretation to the same. Therefore, we deem it apposite to reproduce
the said order in its entirety as it would facilitate understanding the
arguments of counsel on either side, with more clarity. The impugned order
dated 19th March, 2003 reads as under:
"I have heard the arguments at the bar and have carefully gone through the
file and relevant case law.
It is submitted by the learned PP that accused Shyamal Ghosh was a public
servant, who has since retired. It is further submitted that remaining
three accused are companies, namely M/s Bharti Cellular Limited, M/s
Hutchison Max Telecom (P) Limited and M/s Sterling Cellular Limited. It is
further submitted that there is enough incriminating material on record
against the accused persons and, as such, they may be proceeded against, as
per law.
I have carefully gone through the copy of FIR, chargesheet, statement of
witnesses and documents on record. On the perusal of the record, I am
satisfied that there is enough incriminating material on record to proceed
against the accused persons.
I also find at the relevant time, Sh. Sunil Bharti Mittal was Chairman-cum-
Managing Director of Bharti Cellular Limited, Sh. Asim Ghosh was Managing
Director of Hutchison Max Telecom (P) Limited and Sh. Ravi Ruia was a
Director in Sterling Cellular Limited, who used to chair the meetings of
its board. In that capacity, they were/are, prima facie, in control of
affairs of the respective companies. As such, they represent the directing
mind and will of each company and their state of mind is the state of mind
of the companies. They are/were "alter ego" of their respective companies.
In this fact situation, the acts of the companies are to be attributed and
imputed to them. Consequently, I find enough material on record to proceed
against them also.
Accordingly, I take cognizance of the case. Issue summons to all seven
accused for 11.04.2013."
It will also be pertinent to mention that the appellants were not
implicated as accused persons in the charge-sheet. As discussed in some
details at the appropriate stage, Mr. Mittal was interrogated but in the
opinion of CBI, no case was made out against him. Mr. Ravi Ruia was not
even summoned during investigation.
The Arguments : Appellants
M/s Harish Salve and Fali Nariman, learned senior counsel, argued the case
on behalf of the appellant Sunil Bharti Mittal in an attempt to take him
out of the clutches of the impugned order. Mr.K.V. Viswanathan, learned
senior counsel, led the attack to the said order on behalf of the appellant
Ravi Ruia. Their onslaught was tried to be blunted by Mr. K.K. Venugopal,
learned senior counsel appearing for the CBI. Challenge of the appellants
was also sought to be thwarted by Mr. Prashant Bhushan, learned counsel
appearing for CPIL, and Mr. Sunil Malhotra, counsel who argued on behalf of
Telecom Watchdog, which has filed the appeal arising out of SLP (Crl.)
Nos.3326-3327/2013 challenging another order of the even date namely 19th
March, 2013 passed by the Special Judge whereby protest application filed
by this appellant has been dismissed.
Leading the attack from the front, Mr. Harish Salve opened his submission
by arguing that the impugned order was in two parts. Paras 1 to 3 pertain
to the charge-sheet which was filed by the CBI naming four accused persons
namely, Mr. Shyamal Ghosh and the three Cellular Companies. This fact is
noted in para 2. He pointed out that in respect of these four accused
persons named in the charge-sheet, after going through the copy of the FIR,
charge-sheet, statement of witnesses and documents on record, the learned
Judge was satisfied that there was enough incriminating material on record
to proceed against them. However, in the second part of the order, which
was contained in para 4, the Court also found that the three persons
(including the two appellants) were, prima facie, controlling the affairs
of the said three companies and, therefore, they represented the directing
mind and will of each company. On that basis, these three persons are
treated as "alter ego" of their respective companies and in the opinion of
the learned Special Judge, the acts of the companies are "to be attributed
and imputed to them". That was the reason given by the Special Judge
finding enough material to proceed against them also which resulted in
issuing of summons against these three persons including the appellant.
The neat submission of Mr. Salve was that the aforesaid reason given by the
learned Special Judge was clearly erroneous in law. Expanding this
argument, he submitted that principle of "alter ego" has always been
applied in reverse, inasmuch as general principle is that the acts of
individual, who is in control of the affairs of a company and is a
directing mind, are attributed to the company, inasmuch as whenever such a
person, who is controlling the affairs of the company, is made an accused,
on the application of the principle of "alter ego", the company can also be
implicated as accused person. It is on the well recognised principle that
company does not act of its own but through its Directors/Officers and when
such Directors/Officers act on behalf of the company, the company is also
held liable for those acts on the application of "principal - agent"
principle. He submitted that it has never been a case where for the act of
the company, an individual is made accused, unless there is a categorical
provision in the statute making such a person vicariously liable or there
is enough material to attribute the alleged acts of criminality to the said
person. For his aforesaid submissions, he placed heavy reliance upon the
decision of this Court in Iridium India Telecom Ltd. v. Motorola Inc[2].
He further submitted that merely on the basis of the appellant's status in
the company, it could not be presumed that it is the appellant who became a
party to the alleged conspiracy, as was held in Maharashtra State
Electricity Distribution Co. Ltd. v. Datar Switchgear Ltd.[3] in the
following manner:
"27. A bare perusal of the complaint shows that the gravamen of the
allegation is that a fabricated document containing the offending
endorsement was tendered in evidence before the Arbitral Tribunal on behalf
of MSEB by Accused 6, who was in charge of Shirpur Section. It is evident
from the aforeextracted paragraphs of the complaint that other accused have
been named in the complaint because, according to the complainant, MSEB,
Accused 1 was acting under their control and management. It bears
repetition that the only averment made against Appellant 2 is that
Appellant 1 i.e. MSEB was acting under the control and management of
Appellant 2 along with other three accused. There is no denying the fact
that Appellant 2 happened to be the Chairman of MSEB at the relevant time
but it is a settled proposition of law that one cannot draw a presumption
that a Chairman of a company is responsible for all acts committed by or on
behalf of the company. In the entire body of the complaint there is no
allegation that Appellant 2 had personally participated in the arbitration
proceedings or was monitoring them in his capacity as the Chairman of MSEB
and it was at his instance that the subject interpolation was made in Ext.
C-64.
xx xx xx
In this regard, it would be useful to advert to the observations made by a
three-Judge Bench of this Court in S.M.S. Pharmaceuticals (2005)8 SCC 89:
(SCC p. 98, para 8)
"8. ... There is no universal rule that a Director of a company is in
charge of its everyday affairs. We have discussed about the position of a
Director in a company in order to illustrate the point that there is no
[pic]magic as such in a particular word, be it Director, manager or
secretary. It all depends upon the respective roles assigned to the
officers in a company. A company may have managers or secretaries for
different departments, which means, it may have more than one manager or
secretary."
Mr. Salve also referred to the following observations in S.K. Alagh
v. State of U.P.[4]:
12. The short question which arises for consideration is as to whether the
complaint petition, even if given face value and taken to be correct in its
entirety, disclosed an offence as against the appellant under Section 406
of the Penal Code.
xx xx xx
19. As, admittedly, drafts were drawn in the name of the Company, even if
the appellant was its Managing Director, he cannot be said to have
committed an offence under Section 406 of the Penal Code. If and when a
statute contemplates creation of such a legal fiction, it provides
specifically therefor. In absence of any provision laid down under the
statute, a Director of a Company or an employee cannot be held to be
vicariously liable for any offence committed by the Company itself. (See
Sabitha Ramamurthy v. R.B.S. Channabasavaradhya, (2006) 10 SCC 581."
Reliance was also placed on the decision in the case of Aneeta
Hada v. Godfather Travels & Tours (P) Ltd.[5], with particular emphasis on
the following passage:
"32. We have referred to the aforesaid authorities to highlight that the
company can have criminal liability and further, if a group of persons that
guide the business of the companies have the criminal intent, that would be
imputed to the body corporate. In this backdrop, Section 141 of the Act has
to be understood. The said provision clearly stipulates that when a person
which is a company commits an offence, then certain categories of persons
in charge as well as the company would be deemed to be liable for the
offences under Section 138. Thus, the statutory intendment is absolutely
plain. As is perceptible, the provision makes the functionaries and the
companies to be liable and that is by deeming fiction. A deeming fiction
has its own signification."
In addition to the above, another submission of Mr. Salve was that in the
present case, role of the appellant was specifically looked into and
investigated by the CBI and an opinion was formed that there was no
material to implicate him. Since the appellant was consciously omitted
from the array of the accused persons after thorough discussions and
deliberations by the investigating agency at the appropriate level, and it
was specifically so stated in the charge-sheet itself, in a situation like
this even if the learned Judge wanted to differ from the investigating
agency and decided to take cognizance against the appellant, he should have
given valid reasons for proceeding against the appellant which could
include his opinion that there was sufficient material against the
appellant to be proceeded against. However, reasons given in the impugned
order, according to the learned senior counsel, are totally extraneous
amounting to wrong approach in law.
His further submission was that even at a later stage if any evidence
surfaces against the appellant, the Court is not powerless as any person
can be summoned as accused under Section 319 of the Code at any stage of
the trial.
Mr. Viswanathan who appeared for the appellant Mr. Ravi Ruia, while
adopting the aforesaid arguments and reiterating them briefly, tried to
canvass another feature peculiar to in the case of his client Mr. Ravi
Ruia. The learned counsel pointed out that he was not even called for
interrogation by the CBI which would show that there is no material against
him at all. His name is not even mentioned in the charge-sheet. He
painstakingly pleaded that in the absence of any material reflected even in
the charge-sheet, this appellant would be handicapped in making any
submission for his discharge at the stage of framing charges. As the
appellant was implicated involving the principle of vicarious liability,
which is not applicable and erroneously referred to, he had no option but
to file the present appeal for quashing of the notice of cognizance against
him. Mr. Viswanathan in support of his submission referred certain
judgments, which we shall discuss at the appropriate stage.
The Arguments: Respondents
Mr. K. K. Venugopal, learned senior counsel appearing for the CBI, refuted
the aforesaid submissions in strongest possible manner. He referred to the
various portions of the charge-sheet where allegations against the accused
persons are stated and outcome of the investigation revealed. His
endeavour was to demonstrate the manner in which the decision was taken,
resulting into huge loss to the Government Exchequer and, prima facie, it
was established that such a decision was taken to help the accused Telecom
Companies. He argued that once the companies are charged with mens rea
offences, they require guilty mind as these are not strict liability
offences. However, the companies would act through their Directors/Officers
only and the mens rea/guilty mind would be of those persons who are
controlling the affairs of the companies. He referred to the counter
affidavit filed by the CBI which, in summary form, mentions the role of
different persons including the manner in which note was put up by Mr. J.R.
Gupta; the changes that were made by Mr. Shyamal Ghosh to the said note
allegedly to benefit the companies; and the manner in which it was approved
by the Minister. This affidavit also mentions that there is evidence on
record to show that the appellant Mr. Sunil Mittal had met late Shri Pramod
Mahajan during 2001-2002 for getting allocated additional spectrum beyond
6.2 MHz for tele-service area of his company. There was also evidence of
meetings between the appellant and Mr. Shyamal Ghosh for the same purpose
during the same period which would constitute the circumstantial evidence
to implicate these persons. The thrust of his submission, thus, is that it
is the "human agency" in the accused companies who was responsible as it
was a mens rea offence and such an agency/person has to be the top person,
going by the circumstantial evidence. Therefore, even if in the charge-
sheet, names of these appellants were not included, the Special Judge was
within his powers to look into the matter in its entirety as the charge-
sheet along with documents spanning over 25000 pages was submitted to him.
Mr. Venugopal joined issue on the interpretation given by the appellants to
the impugned order. According to him, the order could not be bifurcated
into two parts. Para 3 of the order wherein the Special Judge has observed
that he had perused the FIR, charge-sheet, statement of witnesses and
documents on record was relatable to the three individuals, including the
two appellants as well. He even submitted that in the absence of
individual accused persons, who were in charge of the affairs of the three
accused companies, it may become difficult to proceed against the accused
companies alone as it was a mens rea offence. He also relied upon the
following judgments to support the impugned order, with the plea that the
trial court was invested with requisite powers to summon the appellants:
1. M.C. Mehta (Taj Corridor scam) v. Union of India[6]
"30. At the outset, we may state that this Court has repeatedly emphasised
in the above judgments that in Supreme Court monitored cases this Court is
concerned with ensuring proper and honest performance of its duty by CBI
and that this Court is not concerned with the merits of the accusations in
investigation, which are to be determined at the trial on the filing of the
charge-sheet in the competent court, according to the ordinary procedure
prescribed by law. Therefore, the question which we have to decide in the
present case is whether the administrative hierarchy of officers in CBI, in
the present case, have performed their duties in a proper and honest
manner."
2. Kishun Singh v. State of Bihar[7]
"13. The question then is whether de hors Section 319 of the Code, can
similar power be traced to any other provision in the Code or can such
power be implied from the scheme of the Code? We have already pointed out
earlier the two alternative modes in which the Criminal Law can be set in
motion; by the filing of information with the police under Section 154 of
the Code or upon receipt of a complaint or information by a Magistrate. The
former would lead to investigation by the police and may culminate in a
police report under Section 173 of the Code on the basis whereof cognizance
may be taken by the Magistrate under Section 190(1)(b) of the Code. In the
latter case, the Magistrate may either order investigation by the police
under Section 156(3) of the Code or himself hold an inquiry under Section
202 before taking cognizance of the offence under Section 190(1)(a) or (c),
as the case may be, read with Section 204 of the Code. Once the Magistrate
takes cognizance of the offence he may proceed to try the offender (except
where the case is transferred under Section 191) or commit him for trial
under Section 209 of the Code if the offence is triable exclusively by a
Court of Session. As pointed out earlier cognizance is taken of the offence
and not the offender. This Court in Raghubans Dubey v. State of Bihar
(1967) 2 SCR 423stated that once cognizance of an offence is taken it
becomes the Court's duty 'to find out who the offenders really are' and if
the Court finds 'that apart from the persons sent up by the police some
other persons are [pic]involved, it is its duty to proceed against those
persons' by summoning them because 'the summoning of the additional accused
is part of the proceeding initiated by its taking cognizance of an
offence'. Even after the present Code came into force, the legal position
has not undergone a change; on the contrary the ratio of Dubey case was
affirmed in Hareram Satpathy v. Tikaram Agarwala. (1978) 4 SCC 58 Thus far
there is no difficulty.
3. Dharam Pal v. State of Haryana[8]
"40. In that view of the matter, we have no hesitation in agreeing with the
views expressed in Kishun Singh case (1993) 2 SCC 16 that the Sessions
Court has jurisdiction on committal of a case to it, to take cognizance of
the offences of the persons not named as offenders but whose complicity in
the case would be evident from the materials available on record. Hence,
even without recording evidence, upon committal under Section 209, the
Sessions Judge may summon those persons shown in column 2 of the police
report to stand trial along with those already named therein.
41. We are also unable to accept Mr Dave's submission that the Sessions
Court would have no alternative, but to wait till the stage under Section
319 CrPC was reached, before proceeding against the persons against whom a
prima facie case was made out from the materials contained in the case
papers sent by the learned Magistrate while committing the case to the
Court of Session."
He also referred to the decision in the case of Lee Kun Hee, President,
Samsung Corpn., South Korea v. State of Uttar Pradesh[9] wherein this Court
has set down the limits of High Court's power under Section 482 of the Code
to interfere with summoning orders passed by the trial court, as follows:
"10. JCE Consultancy filed a criminal complaint (Complaint No. 30 of 2005)
under Sections 403, 405, 415, 418, 420 and 423 read with Sections 120-B and
34 of the Penal Code, 1860 before the VIIth Additional Chief Judicial
Magistrate, Ghaziabad. In the complaint filed by Shaikh Allauddin Pakir
Maiddin, the sole proprietor of JCE Consultancy, Samsung, Dubai, was
impleaded as Accused 1 (Appellant 5 herein); Byung Woo Lee, Managing
Director of Samsung, Dubai, was impleaded as Accused 2 (Appellant 3
herein); Lee Kun Hee, President, Samsung Corporation, was impleaded as
Accused 3 (Appellant 1 herein); Yon Jung Yung, Vice-President and Chief
Executive Officer, Samsung Corporation, was impleaded as Accused 4
(Appellant 2 herein); Dong Kwon Byon, ex-Managing Director, Samsung, Dubai,
was impleaded as Accused 5 (Appellant 4 herein); S.C. Baek, [pic]ex-
Financial Advisor, Samsung, Dubai, was impleaded as Accused 6; Sky Impex
Ltd. was impleaded as Accused 7; and the Chairman of Sky Impex Ltd. was
impleaded as Accused 8.
xx xx xx
21. In order to support the aforesaid primary contention, it was also
emphasised, that Appellants 1 to 4 are all foreign citizens, whereas,
Appellant 5 is a foreign company incorporated in Dubai. Appellant 1, we are
told, was Chairman and Director of Samsung, South Korea. It is contended
that he has had nothing to do with Samsung, Dubai. We are informed that he
lives in South Korea. Appellant 2, we are informed, was a former Vice-
Chairman and CEO of Samsung, South Korea. He also has had nothing to do
with Samsung, Dubai. He too lives in South Korea.
xx xx xx
54. The fourth contention advanced at the hands of the learned counsel for
the appellants was aimed at demonstrating; firstly, that the charges, as
have been depicted in the summoning order, were not made out; secondly,
that the appellants herein were functionaries of a company, and therefore,
per se could not be made vicariously liable for offences emerging out of
actions allegedly taken in furtherance of the discharge of their
responsibilities towards the company; and thirdly, that none of the
appellants had any concern whatsoever (even as functionaries of the company
concerned), with the allegations levelled by the complainant.
xx xx xx
57. In paras 24 to 30, this Court in Iridium India Telecom Ltd. case
(2011) 1 SCC 74 noticed the facts pertaining to the controversy, and the
emerging legal technicalities canvassed at the hands of the appellants. In
paras 31 to 37, this Court recorded the response thereto, at the behest of
the accused. Thereupon, this Court in Iridium India Telecom Ltd. case made
the following observations in para 38: (SCC p. 89) "38. We have considered
the submissions made by the learned Senior Counsel. A bare perusal of the
submissions would be sufficient to amply demonstrate that this cannot be
said to be an 'open and shut' case for either of the parties. There is much
to be said on both sides. The entire scenario painted by both the sides is
circumscribed by 'ifs' and 'buts'. A mere reading of the 1992 PPM would not
be sufficient to conclude that the entire information has been given to the
prospective investors. Similarly, merely because there may have been some
gaps in the information provided in the PPM would not be sufficient to
conclude that [pic]the respondents have made deliberate misrepresentations.
In such circumstances, we have to examine whether it was appropriate for
the High Court to exercise its jurisdiction under Section 482 CrPC to quash
the proceedings at the stage when the Magistrate had merely issued process
against the respondents."
xx xx xx
59. While dealing with the various judgments rendered by this Court on the
subject reference was also made to the decision in M.N. Ojha v. Alok Kumar
Srivastav (2009) 9 SCC 682 . In M.N. Ojha case similar views as in Bhajan
Lal case 1992 Supp (1) SCC 335 came to be recorded in the following words:
(M.N. Ojha case, SCC pp. 686-88, paras 25 & 27-30)
"25. Had the learned SDJM applied his mind to the facts and circumstances
and sequence of events and as well as the documents filed by the
complainant himself along with the complaint, surely he would have
dismissed the complaint. He would have realised that the complaint was only
a counterblast to the FIR lodged by the Bank against the complainant and
others with regard to the same transaction.
xx xx xx
27. The case on hand is a classic illustration of non-application of mind
by the learned Magistrate. The learned Magistrate did not scrutinise even
the contents of the complaint, leave aside the material documents available
on record. The learned Magistrate truly was a silent spectator at the time
of recording of preliminary evidence before summoning the appellants.
xx xx xx
28. The High Court committed a manifest error in disposing of the petition
filed by the appellants under Section 482 of the Code without even
adverting to the basic facts which were placed before it for its
consideration.
29. It is true that the Court in exercise of its jurisdiction under Section
482 of the Code of Criminal Procedure cannot go into the truth or otherwise
of the allegations and appreciate the evidence if any available on record.
Normally, the High Court would not intervene in the criminal proceedings at
the preliminary stage/when the investigation/enquiry is pending.
30. Interference by the High Court in exercise of its jurisdiction under
Section 482 of the Code of Criminal Procedure can only be where a clear
case for such interference is made out. Frequent and uncalled for
interference even at the preliminary stage by the High Court may result in
causing obstruction in the progress of the inquiry in a criminal case which
may not be in the public interest. But at the same time the High Court
cannot refuse to exercise its jurisdiction if the interest of justice so
required where the allegations made in the FIR or complaint are so absurd
and inherently improbable on the basis of which no fair-minded and informed
observer can ever reach a just and proper conclusion as to the existence of
sufficient grounds for proceeding. In such cases refusal to exercise the
jurisdiction may equally result in injustice more particularly in cases
where the complainant sets the criminal law in motion with a view to exert
pressure and harass the persons arrayed as accused in the complaint."
63. As of now we are satisfied, that the factual foundation/background of
the acts of omission and commission presented by the complainant is
specific and categorical. We are also satisfied that the allegations
levelled by the complainant, fully incorporate all the basic facts which
are necessary to make out the offences whereunder the impugned summoning
order dated 12-1-2005 has been passed. The instant controversy does not
suffer from any of the impairments referred in Iridium India Telecom Ltd.
case. Accordingly, we leave it open to the appellants to canvass the legal
issues, as were canvassed before us, before the trial court. After the
rival parties have led their evidence the trial court will return its
finding thereon in accordance with law without being influenced by any
observations made on the merits of the controversy hereinabove, or
hereafter.
xx xx xx
71. It was also the contention of the learned counsel for the respondents,
that the civil liability, in the instant case, was raised as against the
eventual purchaser of the goods/product (Samsung, Dubai), in lieu of the
goods/product supplied by the complainant JCE Consultancy, which had passed
onto the purchasers under the agreement dated 1-12-2001. Accordingly, the
civil liability was only raised as against Samsung, Dubai. However, insofar
as the criminal liability is concerned, Samsung, Dubai being one of the
subsidiary companies of Samsung, South Korea, it was allegedly under the
overall control exercised by Samsung, South Korea. Samsung, South Korea,
according to the complainant, was instrumental in the eventual decision
taken by Samsung, Dubai to deny the passing of the reciprocal monetary
consideration for the goods supplied under the agreement dated 1-12-2001.
This, according to the respondents, has been the categorical stance of JCE
Consultancy in the criminal complaint, as also, in the pre-summoning
evidence recorded before the VIIth Additional Chief Judicial Magistrate,
Ghaziabad under Section 200 of the Code of Criminal Procedure.
72. These allegations made by JCE Consultancy, are supported by documents
furnished to the summoning court. The aforesaid factual position has also
been endorsed by Sky Impex Ltd. before this Court. According to the learned
counsel for the respondents, the culpability of the appellants before this
Court, in a series of similar actions, clearly emerges even from documents
placed on record of the instant case by Sky Impex Ltd. As such, it is
submitted, that the respondents have per se repudiated all the submissions
advanced on behalf of the appellant, obviously subject to the evidence
which rival parties will be at liberty to adduce before the trial court.
xx xx xx
74. It would not be appropriate for us to delve into the culpability of the
appellants at the present juncture on the basis of the factual position
projected by the rival parties before us. The culpability (if at all) would
emerge only after evidence is adduced by the rival parties before the trial
court. The only conclusion that needs to be drawn at the present juncture
is that even on the basis of the last submission canvassed on behalf of the
appellants it is not possible to quash the summoning order at this stage.
In the aforesaid view of the matter, it is left open to the appellants to
raise their objections, if they are so advised, before the trial court. The
trial court shall, as it ought to, adjudicate upon the same in consonance
with law after allowing the rival parties to lead evidence to substantiate
their respective positions."
He concluded his submission by reiterating that when it was a case of
circumstantial evidence which appeared on record in abundance, the trial
court was right in summoning the appellants and in fact, judgment in Keshav
Mahindra v. State of M.P.[10] fully supported the impugned order. On the
other hand, decision in Iridium India Telecom Ltd. (supra) had no
application to the facts of this case.
Mr. Prashant Bhushan, appearing for intervenor, highlighted the role of the
appellant Mr. Sunil Bharti Mittal from the records and particularly the
extract of file noting which inter alia contained the views of the
Superintendent of Police. He, thus, submitted that this constituted
sufficient material to proceed against him and since it was only a
summoning order, the appellants were free to seek discharge before the
trial court. Submissions of Mr. Sunil Malhotra, Advocate, were also on the
same lines.
The Arguments: Appellants' Rejonder
Mr. Fali Nariman argued in rejoinder on the lines submissions were made by
Mr. Salve, and in the process lucidly expanded those submissions.
Emphasising that position in law with regard to vicarious liability was
that there is no such vicarious liability in criminal law unless something
is imputed or there is a specific statutory provision creating criminal
vicarious liability. He pointed out that in para 4 of the impugned order,
the learned Special Judge has not gone into the facts but did so taking
shelter under a legal cover, but went wrong in applying an ex facie
incorrect non- existing legal principle.
Our Analysis of the Subject Matter
We have given our serious consideration to all the submissions made before
us and fully conscious of the importance of the matter as well. At the
outset, we would like to point out that detailed submissions were made on
the nature of the charges, and in the process, learned counsel for the
appellants tried to trivialize the matter by stating that what was decided
was only a policy decision of the Government to allocate additional
spectrum by charging 1% additional AGR i.e. from 4% to 5%; benefit thereof
was extended to all Cellular Operating Companies including Pubic Sector
Companies like MTNL and BSNL etc. and, therefore, there cannot be a
criminal intent behind it. Mr. Salve as well as Mr. Nariman took pains in
showing various portions of the counter affidavit filed by the CBI to show
that the appellant was left out and not made accused after due
deliberations and argued that it was not a case of erroneous omission by
CBI. It was also argued at length that the allegations were in the domain
of the policy decision taken by the Government to charge 4% of AGR whereas
it was realised much later in the year 2010 when the TRAI has passed orders
that it should have been 5% AGR. According to them, it was merely a bona
fide policy decision which could not be subject matter of criminal
proceedings, in the absence of intent of criminality therein. More so, when
benefit of the said decision was not confined to the appellant's company,
namely M/s Bharti Cellular Limited, but was extended to all others as well
including public sector telecom companies like MTNL and BSNL. Therefore,
there cannot be a criminal intent behind such a decision. Mr. K.K.
Venugopal and others, appearing for the other side, had tried to
demonstrate that the aforesaid submission of the learned counsel for the
appellant was totally erroneous and contrary to records. He tried to
project that it was a conspiracy of major level with sole intention to
benefit the accused companies at the cost of the public exchequer and for
this purpose, criminal conspiracy was hatched up between them. However, we
make it clear at this juncture itself that this part of the submission is
beyond the scope of the present appeals inasmuch as even according to the
learned counsel for the appellants that the aforesaid is not made the basis
of the order while implicating the appellants herein. Insofar as four
persons who were made accused in the charge-sheet by the CBI is concerned,
they are concededly not before us as their summoning order has not been
challenged. Therefore, we deem it unnecessary to go into this question,
which position was even conceded by all the counsel appearing before us.
The fulcrum of the issue before us is the validity of that part of impugned
order vide which the two appellants who were not named in the charge sheet,
have been summoned by the Special Judge, for the reasons given therein.
(i) Dissecting the Impugned Order:
In the first instance, we make it clear that there is no denying the legal
position that even when a person is not named in the charge sheet as an
accused person, the trial court has adequate powers to summon such a non-
named person as well, if the trial court finds that the charge sheet and
the documents/material placed along with the charge-sheet disclose
sufficient prima facie material to proceed against such a person as well.
Kishun Singh (supra) and Dharam Pal (supra) are the direct decisions on
this aspect. However, in the present case, the question is not as to
whether there is sufficient material against the appellants filed in the
trial court to proceed against them. Whether such a material is there or
not is not reflected from the impugned order as that aspect is not even
gone into. The learned Special Judge has not stated in the order that
after examining the relevant documents, including statement of witnesses,
he is satisfied that there is sufficient incriminating material on record
to proceed against the appellants as well. On reading of the impugned
order which is already extracted verbatim, it is very clear that in para 2
of the order, the learned Special Judge discusses the submissions of the
Public Prosecutor in respect of the persons who are made accused in the
charge-sheet. Insofar as charge-sheet is concerned, it has named Mr.
Shyamal Ghosh, who was the public servant and other three accused persons
are the corporate entities. Submission of the learned Public Prosecutor is
recorded in this para that there is enough incriminating material on record
against them and they be proceeded against, as per law. Immediately
thereafter in para 3, the learned Special Judge records his satisfaction on
the perusal of the records namely FIR, charge-sheet, statement of witnesses
and documents and states that he is satisfied that there is enough
incriminating material on record to proceed against the "accused persons".
Para 3 is clearly relatable to para 2. Here, the "accused persons"
referred to are those four persons whose names are mentioned in para 2.
Obviously, till that stage, appellants were not the accused persons as they
are not named as such in the charge-sheet. After recording his
satisfaction qua the four said accused persons, discussion about other
three individuals (including the two appellants) starts from para 4 where
the Special Judge "also" finds and refers to the positions which these
three persons hold/held in the three companies respectively. In para 4,
the learned Special Judge does not mention about any incriminating material
against them in the statement of witnesses or documents etc. On the other
hand, the reason for summoning these persons and proceeding against them
are specifically ascribed in this para which, prima facie, are:
i) These persons were/are in the control of affairs of the respective
companies.
ii) Because of their controlling position, they represent the directing
mind and will of each company.
iii) State of mind of these persons is the state of mind of the
companies. Thus, they are described as "alter ego" of their respective
companies.
It is on this basis alone that the Special Judge records that "in this fact
situation, the acts of companies are to be attributed and imputed to them".
(ii) Principle of "alter ego", as applied
The moot question is whether the aforesaid proposition, to proceed against
the appellants is backed by law? In order to find the answer, let us scan
through the case law that was cited during the arguments.
First case which needs to be discussed is Iridium India (supra). Before we
discuss the facts of this case, it would be relevant to point out that the
question as to whether a company could be prosecuted for an offence which
requires mens rea had been earlier referred to in a Constitution Bench of
five Judges in the case of Standard Chartered Bank v. Directorate of
Enforcement[11]. The Constitution Bench had held that a company can be
prosecuted and convicted for an offence which requires a minimum sentence
of imprisonment. In para 8 of the judgment, the Constitution Bench
clarified that the Bench is not expressing any opinion on the question
whether a corporation could be attributed with requisite mens rea to prove
the guilt. Para 8 reads as under:
"8. It is only in a case requiring mens rea, a question arises whether a
corporation could be attributed with requisite mens rea to prove the guilt.
But as we are not concerned with this question in these proceedings, we do
not express any opinion on that issue."
In Iridium India (supra), the aforesaid question fell directly for
consideration, namely, whether a company could be prosecuted for an offence
which requires mens rea and discussed this aspect at length, taking note of
the law that prevails in America and England on this issue. For our
benefit, we will reproduce paras 59, 60, 61, 62, 63 and 64 herein:
"59. The courts in England have emphatically rejected the notion that a
body corporate could not commit a criminal offence which was an outcome of
an act of will needing a particular state of mind. The aforesaid notion has
been rejected by adopting the doctrine of attribution and imputation. In
other words, the criminal intent of the "alter ego" of the company/body
corporate i.e. the person or group of persons that guide the business of
the company, would be imputed to the corporation.
It may be appropriate at this stage to notice the observations made by
MacNaghten, J. in Director of Public Prosecutions v. Kent and Sussex
Contractors Ltd. 1972 AC 153: (AC p. 156):
"A body corporate is a "person" to whom, amongst the various attributes it
may have, there should be imputed the attribute of a mind capable of
knowing and forming an intention - indeed it is much too late in the day to
suggest the contrary. It can only know or form an intention through its
human agents, but circumstances may be such that the knowledge of the agent
must be imputed to the body corporate. Counsel for the respondents says
that, although a body corporate may be capable of having an intention, it
is not capable of having a criminal intention. In this particular case the
intention was the intention to deceive. If, as in this case, the
responsible agent of a body corporate puts forward a document knowing it to
be false and intending that it should [pic]deceive, I apprehend, according
to the authorities that Viscount Caldecote, L.C.J., has cited, his
knowledge and intention must be imputed to the body corporate."
61. The principle has been reiterated by Lord Denning in Bolton (H.L.)
(Engg.) Co. Ltd. v. T.J. Graham & Sons Ltd. in the following words: (AC p.
172):
"A company may in many ways be likened to a human body. They have a brain
and a nerve centre which controls what they do. They also have hands which
hold the tools and act in accordance with directions from the centre. Some
of the people in the company are mere servants and agents who are nothing
more than hands to do the work and cannot be said to represent the mind or
will. Others are directors and managers who represent the directing mind
and will of the company, and control what they do. The state of mind of
these managers is the state of mind of the company and is treated by the
law as such. So you will find that in cases where the law requires personal
fault as a condition of liability in tort, the fault of the manager will be
the personal fault of the company. That is made clear in Lord Haldane's
speech in Lennard's Carrying Co. Ltd. v. Asiatic Petroleum Co. Ltd. (AC at
pp. 713, 714). So also in the criminal law, in cases where the law requires
a guilty mind as a condition of a criminal offence, the guilty mind of the
directors or the managers will render the company themselves guilty."
62. The aforesaid principle has been firmly established in England since
the decision of the House of Lords in Tesco Supermarkets Ltd. v. Nattrass.
In stating the principle of corporate liability for criminal offences, Lord
Reid made the following statement of law: (AC p. 170 E-G)
"I must start by considering the nature of the personality which by a
fiction the law attributes to a corporation. A living person has a mind
which can have knowledge or intention or be negligent and he has hands to
carry out his intentions. A corporation has none of these: it must act
through living persons, though not always one or the same person. Then the
person who acts is not speaking or acting for the company. He is acting as
the company and his mind which directs his acts is the mind of the company.
There is no question of the company being vicariously liable. He is not
acting as a servant, representative, agent or delegate. He is an embodiment
of the company or, one could say, he hears and speaks through the persona
of the company, within his appropriate sphere, and his mind is the mind of
the company. If it is a guilty mind then that guilt is the guilt of the
company. It must be a question of law whether, once the facts have been
ascertained, a person in doing particular things is to be regarded as the
company or merely as the company's servant or agent. In that case any
liability of the company can only be a statutory or vicarious liability."
From the above it becomes evident that a corporation is virtually in the
same position as any individual and may be convicted of common law as well
as statutory offences including those requiring mens rea. The criminal
liability of a corporation would arise when an offence is committed in
relation to the business of the corporation by a person or body of persons
in control of its affairs. In such circumstances, it would be necessary to
ascertain that the degree and control of the person or body of persons is
so intense that a corporation may be said to think and act through the
person or the body of persons. The position of law on this issue in Canada
is almost the same. Mens rea is attributed to corporations on the principle
of "alter ego" of the company.
64. So far as India is concerned, the legal position has been clearly
stated by the Constitution Bench judgment of this Court in Standard
Chartered Bank v. Directorate of Enforcement (2005) 4 SCC 530 . On a
detailed consideration of the entire body of case laws in this country as
well as other jurisdictions, it has been observed as follows: (SCC p. 541,
para 6)
"6. There is no dispute that a company is liable to be prosecuted and
punished for criminal offences. Although there are earlier authorities to
the effect that corporations cannot commit a crime, the generally accepted
modern rule is that except for such crimes as a corporation is held
incapable of committing by reason of the fact that they involve personal
malicious intent, a corporation may be subject to indictment or other
criminal process, although the criminal act is committed through its
agents."
It is abundantly clear from the above that the principle which is laid down
is to the effect that the criminal intent of the "alter ego" of the
company, that is the personal group of persons that guide the business of
the company, would be imputed to the company/corporation. The legal
proposition that is laid down in the aforesaid judgment is that if the
person or group of persons who control the affairs of the company commit an
offence with a criminal intent, their criminality can be imputed to the
company as well as they are "alter ego" of the company.
In the present case, however, this principle is applied in an exactly
reverse scenario. Here, company is the accused person and the learned
Special Magistrate has observed in the impugned order that since the
appellants represent the directing mind and will of each company, their
state of mind is the state of mind of the company and, therefore, on this
premise, acts of the company is attributed and imputed to the appellants.
It is difficult to accept it as the correct principle of law. As
demonstrated hereinafter, this proposition would run contrary to the
principle of vicarious liability detailing the circumstances under which a
direction of a company can be held liable.
(iii) Circumstances when Director/Person in charge of the affairs of the
company can also be prosecuted, when the company is an accused person:
No doubt, a corporate entity is an artificial person which acts through its
officers, directors, managing director, chairman etc. If such a company
commits an offence involving mens rea, it would normally be the intent and
action of that individual who would act on behalf of the company. It would
be more so, when the criminal act is that of conspiracy. However, at the
same time, it is the cardinal principle of criminal jurisprudence that
there is no vicarious liability unless the statute specifically provides
so.
Thus, an individual who has perpetrated the commission of an offence on
behalf of a company can be made accused, along with the company, if there
is sufficient evidence of his active role coupled with criminal intent.
Second situation in which he can be implicated is in those cases where the
statutory regime itself attracts the doctrine of vicarious liability, by
specifically incorporating such a provision.
When the company is the offendor, vicarious liability of the Directors
cannot be imputed automatically, in the absence of any statutory provision
to this effect. One such example is Section 141 of the Negotiable
Instruments Act, 1881. In Aneeta Hada (supra), the Court noted that if a
group of persons that guide the business of the company have the criminal
intent, that would be imputed to the body corporate and it is in this
backdrop, Section 141 of the Negotiable Instruments Act has to be
understood. Such a position is, therefore, because of statutory intendment
making it a deeming fiction. Here also, the principle of "alter ego", was
applied only in one direction namely where a group of persons that guide
the business had criminal intent, that is to be imputed to the body
corporate and not the vice versa. Otherwise, there has to be a specific
act attributed to the Director or any other person allegedly in control
and management of the company, to the effect that such a person was
responsible for the acts committed by or on behalf of the company. This
very principle is elaborated in various other judgments. We have already
taken note of Maharashtra State Electricity Distribution Co. Ltd. (supra)
and S.K. Alagh (supra). Few other judgments reiterating this principle are
the following:
1. Jethsur Surangbhai v. State of Gujarat[12]
"9. With due respect what the High Court seems to have missed is that in
a case like this where there was serious defalcation of the properties of
the Sangh, unless the prosecution proved that there was a close cohesion
and collusion between all the accused which formed the subject matter of a
conspiracy, it would be difficult to prove the dual charges particularly
against the appellant (A-1). The charge of conspiracy having failed, the
most material and integral part of the prosecution story against the
appellant disappears. The only ground on the basis of which the High Court
has convicted him is that as he was the Chairman of the Managing Committee,
he must be held to be vicariously liable for any order given or
misappropriation committed by the other accused. The High Court, however,
has not referred to the concept of vicarious liability but the findings of
the High Court seem to indicate that this was the central idea in the mind
of the High Court for convicting the appellant. In a criminal case of such
a serious nature mens rea cannot be excluded and once the charge of
conspiracy failed the onus lay on the prosecution to prove affirmatively
that the appellant was directly and personally connected with acts or
omissions pertaining to Items 2, 3 and 4. It is conceded by Mr Phadke that
no such direct evidence is forthcoming and he tried to argue that as the
appellant was Chairman of the Sangh and used to sign papers and approve
various tenders, even as a matter of routine he should have acted with care
and caution and his negligence would be a positive proof of his intention
to commit the offence. We are however unable to agree with this somewhat
broad statement of the law. In the absence of a charge of conspiracy the
mere fact that [pic]the appellant happened to be the Chairman of the
Committee would not make him criminally liable in a vicarious sense for
items 2 to 4. There is no evidence either direct or circumstantial to show
that apart from approving the purchase of fertilisers he knew that the
firms from which the fertilisers were purchased did not exist. Similar is
the case with the other two items. Indeed, if the Chairman was to be made
liable then all members of the Committee viz. Tehsildar and other nominated
members, would be equally liable because all of them participated in the
deliberations of the meetings of the Committee, a conclusion which has not
even been suggested by the prosecution. As Chairman of the Sangh the
appellant had to deal with a large variety of matters and it would not be
humanly possible for him to analyse and go into the details of every small
matter in order to find out whether there has been any criminal breach of
trust. In fact, the hero of the entire show seems to be A-3 who had so
stage-managed the drama as to shield his guilt and bring the appellant in
the forefront. But that by itself would not be conclusive evidence against
the appellant. There is nothing to show that A-3 had either directly or
indirectly informed the appellant regarding the illegal purchase of
fertilisers or the missing of the five oil engines which came to light much
later during the course of the audit. Far from proving the intention the
prosecution has failed to prove that the appellant had any knowledge of
defalcation of Items 2 to 4. In fact, so far as item 3 is concerned, even
Mr Phadke conceded that there is no direct evidence to connect the
appellant."
2. Sham Sunder v. State of Haryana[13]
"9. But we are concerned with a criminal liability under penal provision
and not a civil liability. The penal provision must be strictly construed
in the first place. Secondly, there is no vicarious liability in criminal
law unless the statute takes that also within its fold. Section 10 does not
provide for such liability. It does not make all the partners liable for
the offence whether they do business or not."
3. Hira Lal Hari Lal Bhagwati v. CBI [14]
"30. In our view, under the penal law, there is no concept of vicarious
liability unless the said statute covers the same within its ambit. In the
instant case, the said law which prevails in the field i.e. the Customs
Act, 1962 the appellants have been thereinunder wholly discharged and the
GCS granted immunity from prosecution."
4. Maksud Saiyed v. State of Gujarat[15]
"13. Where a jurisdiction is exercised on a complaint petition filed in
terms of Section 156(3) or Section 200 of the Code of Criminal Procedure,
the Magistrate is required to apply his mind. The Penal Code does not
contain any provision for attaching vicarious liability on the part of the
Managing Director or the Directors of the Company when the accused is the
Company. The learned Magistrate failed to pose unto himself the correct
question viz. as to whether the complaint petition, even if given face
value and taken to be correct in its entirety, would lead to the conclusion
that the respondents herein were personally liable for any offence. The
Bank is a body corporate. Vicarious liability of the Managing Director and
Director would arise provided any provision exists in that behalf in the
statute. Statutes indisputably must contain provision fixing such vicarious
liabilities. Even for the said purpose, it is obligatory on the part of the
complainant to make requisite allegations which would attract the
provisions constituting vicarious liability."
5. R. Kalyani v. Janak C. Mehta[16]
"32. Allegations contained in the FIR are for commission of offences under
a general statute. A vicarious liability can be fastened only by reason of
a provision of a statute and not otherwise. For the said purpose, a legal
fiction has to be created. Even under a special statute when the vicarious
criminal liability is fastened on a person on the premise that he was in
charge of the affairs of the company and responsible to it, all the
ingredients laid down under the statute must be fulfilled. A legal fiction
must be confined to the object and purport for which it has been created."
6. Sharon Michael v. State of T.N.[17]
"16. The first information report contains details of the terms of
contract entered into by and between the parties as also the mode and
manner in which they were implemented. Allegations have been made against
the appellants in relation to execution of the contract. No case of
criminal misconduct on their part has been made out before the formation of
the contract. There is nothing to show that the appellants herein who hold
different positions in the appellant Company made any representation in
their personal capacities and, thus, they cannot be made vicariously liable
only because they are employees of the Company."
7. Keki Hormusji Gharda v. Mehervan Rustom Irani[18]
"16. We have noticed hereinbefore that despite of the said road being under
construction, the first respondent went to the police station thrice. He,
therefore, was not obstructed from going to the police station. In fact, a
firm action had been taken by the authorities. The workers were asked not
to do any work on the road. We, therefore, fail to appreciate that how, in
a situation of this nature, the Managing Director and the Directors of the
Company as also the Architect can be said to have committed an offence
under Section 341 IPC.
The Penal Code, 1860 save and except in some matters does not contemplate
any vicarious liability on the part of a person. Commission of an offence
by raising a legal fiction or by creating a vicarious liability in terms of
the provisions of a statute must be expressly stated. The Managing Director
or the Directors of the Company, thus, cannot be said to have committed an
offence only because they are holders of offices. The learned Additional
Chief Metropolitan Magistrate, therefore, in our opinion, was not correct
in issuing summons without taking into consideration this aspect of the
matter. The Managing Director and the Directors of the Company should not
have been summoned only because some allegations were made against the
Company.
18. In Pepsi Foods Ltd. v. Special Judicial Magistrate (1998) 5 SCC 749
this Court held as under: (SCC p. 760, para 28)
"28. Summoning of an accused in a criminal case is a serious matter.
Criminal law cannot be set into motion as a matter of course. It is not
that the complainant has to bring only two witnesses to support his
allegations in the complaint to have the criminal law set into motion. The
order of the Magistrate summoning the accused must reflect that he has
applied his mind to the facts of the case and the law applicable thereto.
He has to examine the nature of allegations made in the complaint and the
evidence both oral and documentary in support thereof and would that be
sufficient for the complainant to succeed in bringing charge home to the
accused. It is not that the Magistrate is a silent spectator at the time of
recording of preliminary evidence before summoning of the accused. The
Magistrate has to carefully scrutinise the evidence brought on record and
may even himself put questions to the complainant and his witnesses to
elicit answers to find out the truthfulness of the allegations or otherwise
and then examine if any offence is prima facie committed by all or any of
the accused."
19. Even as regards the availability of the remedy of filing an
application for discharge, the same would not mean that although the
allegations made in [pic]the complaint petition even if given face value
and taken to be correct in its entirety, do not disclose an offence or it
is found to be otherwise an abuse of the process of the court, still the
High Court would refuse to exercise its discretionary jurisdiction under
Section 482 of the Code of Criminal Procedure."
It is stated at the cost of repetition that in the present case, while
issuing summons against the appellants, the Special Magistrate has taken
shelter under a so-called legal principle, which has turned out to be
incorrect in law. He has not recorded his satisfaction by mentioning the
role played by the appellants which would bring them within criminal net.
In this behalf, it would be apt to note that the following observations of
this Court in the case of GHCL Employees Stock Option Trust v. India
Infoline Ltd.[19]:
"19. In the order issuing summons, the learned Magistrate has not recorded
his satisfaction about the prima facie case as against Respondents 2 to 7
and the role played by them in the capacity of Managing Director, Company
Secretary or Directors which is sine qua non for initiating criminal action
against them. (Thermax Ltd. v. K.M. Johny followed)
xx xx xx
21. In the instant case the High Court has correctly noted that issuance
of summons against Respondents 2 to 7 is illegal and amounts to abuse of
process of law. The order of the High Court, therefore, needs no
interference by this Court."
We have already mentioned above that even if the CBI did not implicate the
appellants, if there was/is sufficient material on record to proceed
against these persons as well, the Special Judge is duly empowered to take
cognizance against these persons as well. Under Section 190 of the Code,
any Magistrate of first class (and in those cases where Magistrate of the
second class is specially empowered to do so) may take cognizance of any
offence under the following three eventualities:
(a) upon receiving a complaint of facts which constitute such offence;
(b) upon a police report of such facts; and
upon information received from any person other than a police officer,
or upon his own knowledge, that such offence has been committed.
This Section which is the starting section of Chapter XIV is subject to the
provisions of the said Chapter. The expression "taking cognizance" has not
been defined in the Code. However, when the Magistrate applies his mind
for proceeding under Sections 200-203 of the Code, he is said to have taken
cognizance of an offence. This legal position is explained by this Court
in S.K. Sinha, Chief Enforcement Officer v. Videocon International Ltd &
Ors.[20] in the following words:
"19. The expression "cognizance" has not been defined in the Code. But
the word (cognizance) is of indefinite import. It has no esoteric or
mystic significance in criminal law. It merely means "become aware of: and
when used with reference to a court or a Judge, it connoted "to take notice
of judicially". It indicates the point when a court or a Magistrate takes
judicial notice of an offence with a view to initiating proceedings in
respect of such offence said to have been committed by someone.
20. "Taking Cognizance" does not involve any formal action of any kind.
It occurs as soon as a Magistrate applies his mind to the suspected
commission of an offence...."
Sine Qua Non for taking cognizance of the offence is the
application of mind by the Magistrate and his satisfaction that the
allegations, if proved, would constitute an offence. It is, therefore,
imperative that on a complaint or on a police report, the Magistrate is
bound to consider the question as to whether the same discloses commission
of an offence and is required to form such an opinion in this respect.
When he does so and decides to issue process, he shall be said to have
taken cognizance. At the stage of taking cognizance, the only
consideration before the Court remains to consider judiciously whether the
material on which the prosecution proposes to prosecute the accused brings
out a prima facie case or not.
Cognizance of an offence and prosecution of an offender are two different
things. Section 190 of the Code empowered taking cognizance of an offence
and not to deal with offenders. Therefore, cognizance can be taken even if
offender is not known or named when the complaint is filed or FIR
registered. Their names may transpire during investigation or afterwards.
Person who has not joined as accused in the charge-sheet can be summoned at
the stage of taking cognizance under Section 190 of the Code. There is no
question of applicability of Section 319 of the Code at this stage (See
SWIL Ltd. v. State of Delhi[21]). It is also trite that even if a person is
not named as an accused by the police in the final report submitted, the
Court would be justified in taking cognizance of the offence and to summon
the accused if it feels that the evidence and material collected during
investigation justifies prosecution of the accused (See Union of India v.
Prakash P. Hinduja and another[22]). Thus, the Magistrate is empowered to
issue process against some other person, who has not been charge-sheeted,
but there has to be sufficient material in the police report showing his
involvement. In that case, the Magistrate is empowered to ignore the
conclusion arrived at by the investigating officer and apply his mind
independently on the facts emerging from the investigation and take
cognizance of the case. At the same time, it is not permissible at this
stage to consider any material other than that collected by the
investigating officer.
On the other hand, Section 204 of the Code deals with the issue of process,
if in the opinion of the Magistrate taking cognizance of an offence, there
is sufficient ground for proceeding. This Section relates to commencement
of a criminal proceeding. If the Magistrate taking cognizance of a case
(it may be the Magistrate receiving the complaint or to whom it has been
transferred under Section 192), upon a consideration of the materials
before him (i.e., the complaint, examination of the complainant and his
witnesses if present, or report of inquiry, if any), thinks that there is a
prima facie case for proceeding in respect of an offence, he shall issue
process against the accused.
A wide discretion has been given as to grant or refusal of process and it
must be judicially exercised. A person ought not to be dragged into Court
merely because a complaint has been filed. If a prima facie case has been
made out, the Magistrate ought to issue process and it cannot be refused
merely because he thinks that it is unlikely to result in a conviction.
However, the words "sufficient grounds for proceeding" appearing in the
Section are of immense importance. It is these words which amply suggest
that an opinion is to be formed only after due application of mind that
there is sufficient basis for proceeding against the said accused and
formation of such an opinion is to be stated in the order itself. The
order is liable to be set aside if no reason is given therein while coming
to the conclusion that there is prima facie case against accused, though
the order need not contain detailed reasons. A fortiori, the order would
be bad in law if the reason given turns out to be ex facie incorrect.
However, there has to be a proper satisfaction in this behalf which should
be duly recorded by the Special Judge on the basis of material on record.
No such exercise is done. In this scenario, having regard to the aforesaid
aspects coupled with the legal position explained above, it is difficult to
sustain the impugned order dated 19.03.2013 in its present form insofar as
it relates to implicating the appellants and summoning them as accused
persons. The appeals arising out of SLP (Crl.) No. 2961 of 2013 and SLP
(Crl.) No. 3161 of 2013 filed by Mr. Sunil Bharti Mittal and Ravi Ruia
respectively are, accordingly, allowed and order summoning these appellants
is set aside. The appeals arising out of SLP (Crl.) Nos. 3326-3327 of 2013
filed by Telecom Watchdog are dismissed.
Epilogue
While parting, we make it clear that since on an erroneous presumption in
law, the Special Magistrate has issued the summons to the appellants, it
will always be open to the Special Magistrate to undertake the exercise of
going through the material on record and on that basis, if he is satisfied
that there is enough incriminating material on record to proceed against
the appellants as well, he may pass appropriate orders in this behalf. We
also make it clear that even if at this stage, no such prima facie material
is found, but during the trial, sufficient incriminating material against
these appellants surfaces in the form of evidence, the Special Judge shall
be at liberty to exercise his powers under Section 319 of the Code to rope
in the appellants by passing appropriate orders in accordance with law at
that stage.
.........................................CJI.
(H.L. DATTU)
.............................................J.
(MADAN B. LOKUR)
.............................................J.
(A.K. SIKRI)
NEW DELHI;
JANUARY 09, 2015.
ITEM NO. 1A COURT NO.1 SECTION II
(For Judgment)
S U P R E M E C O U R T O F I N D I A
RECORD OF PROCEEDINGS
CRIMINAL APPEAL NO. 34 OF 2015 @
PETITION FOR SPECIAL LEAVE TO APPEAL (Crl.) NO. 2961 OF 2013
Sunil Mittal .. Appellant(s)
vs.
Central Bureau of Investigation ..Respondent(s)
WITH
CRIMINAL APPEAL NO. 35 of 2015
(@ SLP(Crl.) No. 3161 of 2013
CRIMINAL APPEAL NOs.36-37 of 2015
(@ SLP(Crl.) Nos. 3326-3327 of 2013)
DATE : 09.01.2015 These matters were called on for
pronouncement of judgment today.
For Appellant(s) Mr. Harish Salve, Sr. Adv.
Mr. Fali S. Nariman, Sr. Adv.
Mr. Amit Desai, Sr. Adv.
Mr. Percival Billimonia, Adv.
Mr. Sidharth Agarwal, Adv.
Mr. Kamal Shankar, Adv.
Mr. Atul N, Adv.
Mr. Manpreet Lamba, Adv.
Mr. Gautam , Adv.
Mr. Utkarsh Saxena, Adv.
Mr. Utkarsh Saxena, Adv.
For Respondent(s) Ms. Pinky anand, ASG
Mr. Gopal Sankaranarayanan, Adv.
Mr. Rajesh Ranjan, Adv.
Mr. Balendu Shekhar, Adv.
Mr. B.V. Balram Das, Adv.
Ms. Meenakshi Grover, Adv.
Mr. Rohit Bhat, Adv.
Mr.D.S. Mehara, Adv.
---
2
Hon'ble Mr. Justice A.K. Sikri pronounced the judgment of the
Bench comprising Hon'ble the Chief Justice, Hon'ble Mr. Justice Madan B.
Lokur and His Lordship.
Leave granted.
The appeals arising out of SLP(Crl.) No. 2961 of 2013 and 3161
of 2013 are allowed. The appeals arising out of SLP(Crl.) Nos. 3326-3327
of 2013 are dismissed.
[ Charanjeet Kaur ] [ Vinod Kulvi ]
Court Master Asstt. Registrar
[ Signed reportable judgment is placed on the file ]
-----------------------
[1]
(2012) 3 SCC 1
[2] (2011) 1 SCC 74
[3] (2010) 10 SCC 479
[4] (2008) 5 SCC 662
[5] (2012) 5 SCC 661
[6] (2007) 1 SCC 110
[7] (1993) 2 SCC 16
[8] (2014) 3 SCC 306
[9] (2012) 3 SCC 132
[10] (1996) 6 SCC 129
[11] (2005) 4 SCC 530
[12] (1984) Supp. SCC 207
[13] (1989) 4 SCC 630
[14] (2003) 5 SCC 257
[15] (2008) 5 SCC 668
[16] (2009) 1 SCC 516
[17] (2009) 3 SCC 375
[18] (2009) 6 SCC 475
[19] (2013) 4 SCC 505
[20] (2008) 2 SCC 492
[21] (2001) 6 SCC 670
[22] (2003) 6 SCC 195
