REPORTABLE IN THE SUPREME COURT OF INDIA CRIMINAL ORIGINAL JURISDICTION WRIT PETITION (CRIMINAL) NO.

68 OF 2008

Lalita Kumari Versus Govt. of U.P. & Ors. Respondent(s)

.... Petitioner (s)

....

WITH S.L.P. (Crl.) No. S.L.P. (Crl.) No. !86 o" 2006 200 o" 200!

CRIMINAL APPEAL No. #$#0 OF 20## CRIMINAL APPEAL No. #26% OF 200% AND CONTEMPT PETITION (C) NO. D26%22 OF 2008 IN WRIT PETITION (CRIMINAL) NO. 68 OF 2008

JUDGMENT

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P.S&'(&)*+&,- CJI. 1) The important issue hi!h arises for !onsideration in

the referred matter is

hether "a poli!e offi!er is #ound to

re$ister a %irst &nformation Report (%&R) upon re!eivin$ an' information relatin$ to !ommission of a !o$ni(a#le offen!e under )e!tion 1*+ of the ,ode of ,riminal Pro!edure- 1./0 (in short 1the ,ode2) or the poli!e offi!er has the po er to !ondu!t a "preliminar' in3uir'4 in order to test the vera!it' of su!h information #efore re$isterin$ the same54 6) The present rit petition- under 7rti!le 06 of the

,onstitution- has #een filed #' one Lalita Kumari (minor) throu$h her father- vi(.- )hri 8hola Kamat for the issuan!e of a rit of Habeas Corpus or dire!tion(s) of li9e nature

a$ainst the respondents herein for the prote!tion of his minor dau$hter in the said report ho has #een 9idnapped. The $rievan!e ritten

rit petition is that on 11.:*.6::;- a

as su#mitted #' the petitioner #efore the offi!er ho did not ta9e hen %&R the as

in<!har$e of the poli!e station !on!erned an' a!tion on the of same. as

Thereaftermovedan

)uperintendent

Poli!e

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re$istered. steps

7!!ordin$ to the petitioner- even thereafter-

ere not ta9en either for apprehendin$ the a!!used

or for the re!over' of the minor $irl !hild. 0) 7 t o<=ud$e 8en!h of this ,ourt in- Lalita Kumari vs.

Government of Uttar Pradesh & Ors. (6::;) / ),, 1>+- after noti!in$ the disparit' in re$istration of %&Rs #' poli!e offi!ers on !ase to !ase #asis a!ross the !ountr'issued noti!e to the Union of &ndia- the ,hief )e!retaries of all the )tates and Union Territories and ?ire!tor Generals of Poli!e@,ommissioners of Poli!e to the effe!t that if steps are not ta9en for re$istration of %&Rs immediatel' and the !opies thereof are not handed over to the !omplainantsthe' ma' move the Aa$istrates !on!erned #' filin$ !omplaint petitions for appropriate dire!tion(s) to the poli!e to re$ister the the !ase immediatel' failin$ and for hi!h-

apprehendin$

a!!used

persons-

!ontempt pro!eedin$s must #e initiated a$ainst su!h delin3uent poli!e offi!ers if no suffi!ient !ause is sho n. +) Pursuant to the a#ove dire!tionshen the matter

as heard #' the ver' same 8en!h in Lalita Kumari vs. Government of Uttar Pradesh & Ors. (6::;) 1+ ),,
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00/- Ar. ).8. Upadh'a'- learned senior !ounsel for the petitioner- proBe!ted his !laim that upon re!eipt of information #' a poli!e offi!er in<!har$e of a poli!e station dis!losin$ a !o$ni(a#le offen!e- it is imperative for him to re$ister a !ase under )e!tion 1*+ of the ,ode and pla!ed relian!e upon t o<=ud$e 8en!h de!isions of this ,ourt in State of Haryana vs. Bhajan Lal 1..6 )upp. (1) ),, 00*- Ramesh Kumari vs. State ( !" of #elhi$ (6::>) 6 ),, >// and Par%ash Sin&h Badal vs. State of Punja' (6::/) 1 ),, 1. On the other hand- Ar. )he9har Caphadelearned senior !ounsel for the )tate of Aaharashtra su#mitted that an offi!er in<!har$e of a poli!e station is not o#li$ed under la - upon re!eipt of information dis!losin$ !ommission of a !o$ni(a#le offen!e- to re$ister a !ase rather the dis!retion lies ith him- in appropriate

!ases- to hold some sort of preliminar' in3uir' in relation to the vera!it' or other ise of the a!!usations made in the report. &n support of his su#mission- he pla!ed

relian!e upon t o<=ud$e 8en!h de!isions of this ,ourt in P. Sirajuddin vs. State of (adras (1./:) 1 ),, *.*Sevi vs. State of "amil adu 1.;1 )upp ),, +0-

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Shashi%ant

vs.

!entral

Bureau

of

)nvesti&ation

(6::/) 1 ),, >0:- and Rajinder Sin&h Kato*h vs. !handi&arh +dmn. (6::/) 1: ),, >.. &n vie of the

!onfli!tin$ de!isions of this ,ourt on the issue- the said #en!h- vide order dated 1>.:..6::;- referred the same to a lar$er #en!h. *) Dnsuin$ !omplian!e to the a#ove dire!tion- the as heard #' a 8en!h

matter pertainin$ to Lalita Kumari

of three<=ud$es in Lalita Kumari vs. Government of Uttar Pradesh & Ors. (6:16) + ),, 1 herein- this

,ourt- after hearin$ various !ounsel representin$ Union of &ndia- )tates and Union Territories and also after advertin$ to all the !onfli!tin$ de!isions eEtensivel'- referred the matter to a ,onstitution 8en!h hile !on!ludin$ as underF<

"./. Ge have !arefull' anal'sed various Bud$ments delivered #' this ,ourt in the last several de!ades. Ge !learl' dis!ern diver$ent Budi!ial opinions of this ,ourt on the main issueF hether under )e!tion 1*+ ,rP,- a poli!e offi!er is #ound to re$ister an %&R hen a !o$ni(a#le offen!e is made out or he (poli!e offi!er) has an optiondis!retion or latitude of !ondu!tin$ some 9ind of preliminar' in3uir' #efore re$isterin$ the %&R. .;. The learned !ounsel appearin$ for the Union of &ndia and different )tates have eEpressed totall' diver$ent vie s even #efore this ,ourt. This ,ourt also !arved out a spe!ial !ate$or' in the !ase of medi!al do!tors in the aforementioned !ases of Santosh Kumar and Suresh Gupta here preliminar' in3uir' had #een postulated #efore

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re$isterin$ an %&R. )ome !ounsel also su#mitted that the ,8& Aanual also envisa$es some 9ind of preliminar' in3uir' #efore re$isterin$ the %&R. ... The issue hi!h has arisen for !onsideration in these !ases is of $reat pu#li! importan!e. &n vie of the diver$ent opinions in a lar$e num#er of !ases de!ided #' this ,ourt- it has #e!ome eEtremel' important to have a !lear enun!iation of la and adBudi!ation #' a lar$er 8en!h of this ,ourt for the #enefit of all !on!ernedHthe !ourtsthe investi$atin$ a$en!ies and the !iti(ens. 1::. ,onse3uentl'- e re3uest the Ion2#le the ,hief =usti!e to refer these matters to a ,onstitution 8en!h of at least five =ud$es of this ,ourt for an authoritative Bud$ment.4

>)

Therefore- the onl' 3uestion #efore this ,onstitution

8en!h relates to the interpretation of )e!tion 1*+ of the ,ode and in!identall' to !onsider )e!tions 1*> and 1*/ also. /) Ieard Ar. ).8. Upadh'a'- learned senior !ounsel for

the petitioner- Ar. K.V. Vish anathan- learned 7dditional )oli!itor General for the Union of &ndia- Ar. )idharth Luthra- learned 7dditional )oli!itor General for the )tate of ,hhattis$arh- Ar. )he9har Caphade- Ar. R.K. ?ash- As. Vi#ha ?atta Aa9hiBa- learned senior !ounsel for the )tate of AaharashtraU.P. and A.P. respe!tivel'Ar. G.

)iva#alamuru$an- learned !ounsel for the a!!used- ?r. 7sho9 ?hamiBa- learned !ounsel for the ,8&- Ar. Kal'an 8andopodh'a- learned senior !ounsel for the )tate of Gest

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8en$al- ?r. Aanish )in$hvi- learned 77G for the )tate of RaBasthan and Ar. )udarshan )in$h Ra at. ;) &n order to ans er the main issue posed #efore this

8en!h- it is useful to refer the follo in$ )e!tions of the ,odeF<

"# $. I."or,&'*o. *. /o0.*1&2l3 /&)3).H (1) Dver' information relatin$ to the !ommission of a !o$ni(a#le offen!e- if $iven orall' to an offi!er in !har$e of a poli!e station- shall #e redu!ed to ritin$ #' him or under his dire!tion- and #e read over to the informantJ and ever' su!h information- hether $iven in ritin$ or redu!ed to ritin$ as aforesaid- shall #e si$ned #' the person $ivin$ it- and the su#stan!e thereof shall #e entered in a #oo9 to #e 9ept #' su!h offi!er in su!h form as the )tate Government ma' pres!ri#e in this #ehalf. (6) 7 !op' of the information as re!orded under su#< se!tion (1) shall #e $iven forth ith- free of !ost- to the informant. (0) 7n' person a$$rieved #' a refusal on the part of an offi!er in !har$e of a poli!e station to re!ord the information referred to in su#se!tion (1) ma' send the su#stan!e of su!h information- in ritin$ and #' post- to the )uperintendent of Poli!e !on!erned ho- if satisfied that su!h information dis!loses the !ommission of a !o$ni(a#le offen!e- shall either investi$ate the !ase himself or dire!t an investi$ation to #e made #' an' poli!e offi!er su#ordinate to him- in the manner provided #' this ,ode- and su!h offi!er shall have all the po ers of an offi!er in !har$e of the poli!e station in relation to that offen!e. # 6. Pol*/3 o""*/3r4) 5o63r 'o *.+3)'*0&'3 /o0.*1&2l3 /&)3. (1) 7n' offi!er in !har$e of a poli!e station ma'ithout the order of a Aa$istrateinvesti$ate an' !o$ni(a#le !ase hi!h a ,ourt havin$ Burisdi!tion over the lo!al area ithin the limits of su!h station ould have po er to in3uire into or tr' under the provisions of ,hapter K&&&. (6) Co pro!eedin$ of a poli!e offi!er in an' su!h !ase 7 Page 7

shall at an' sta$e #e !alled in 3uestion on the $round that the !ase as one hi!h su!h offi!er as not empo ered under this se!tion to investi$ate. (0) 7n' Aa$istrate empo ered under se!tion 1.: ma' order su!h an investi$ation as a#ove< mentioned. # %. Pro/378r3 "or *.+3)'*0&'*o.9 (1) &f- from information re!eived or other ise- an offi!er in !har$e of a poli!e station has reason to suspe!t the !ommission of an offen!e hi!h he is empo ered under )e!tion 1*> to investi$ate- he shall forth ith send a report of the same to a Aa$istrate empo ered to ta9e !o$ni(an!e of su!h offen!e upon a poli!e report and shall pro!eed in person- or shall depute one of his su#ordinate offi!ers not #ein$ #elo su!h ran9 as the )tate Government ma'- #' $eneral or spe!ial order- pres!ri#e in this #ehalf- to pro!eed- to the spot- to investi$ate the fa!ts and !ir!umstan!es of the !ase- and- if ne!essar'- to ta9e measures for the dis!over' and arrest of the offenderF Provided that< (a) hen information as to the !ommission of an' su!h offen!e is $iven a$ainst an' person #' name and the !ase is not of a serious nature- the offi!er in !har$e of a poli!e station need not pro!eed in person or depute a su#ordinate offi!er to ma9e an investi$ation on the spotJ (#) if it appears to the offi!er in !har$e of a poli!e station that there is no suffi!ient $round for enterin$ on an investi$ation- he shall not investi$ate the !ase. Provided further that in relation to an offen!e of rapethe re!ordin$ of statement of the vi!tim shall #e !ondu!ted at the residen!e of the vi!tim or in the pla!e of her !hoi!e and as far as pra!ti!a#le #' a oman poli!e offi!er in the presen!e of her parents or $uardian or near relatives or so!ial or9er of the lo!alit'. (6) &n ea!h of the !ases mentioned in !lauses (a) and (#) of the proviso to su#< se!tion (1)- the offi!er in !har$e of the poli!e station shall state in his report his reasons for not full' !ompl'in$ ith the re3uirements of that su#< se!tion- and- in the !ase mentioned in !lause (#) of the said proviso- the offi!er shall also forth ith notif' to the informant- if an'- in su!h manner as ma' #e pres!ri#ed #' the )tate Government- the fa!t that he ill not investi$ate the !ase or !ause it to #e investi$ated.4

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Co.'3.'*o.)9 .) 7t the foremost- Mr. S.B. U5&7(:&:- learned senior hile eEplainin$ the !onditions mentioned in

!ounsel-

)e!tion 1*+ su#mitted that )e!tion 1*+(1) is mandator' as the use of the ord 1shall2 is indi!ative of the statutor'

intent of the le$islature. Ie also !ontended that there is no dis!retion left to the poli!e offi!er eE!ept to re$ister an %&R. &n support of the a#ove proposition- he relied on the follo in$ de!isions- vi(.- B. Premanand and Ors. vs. (ohan Koi%al and Others (6:11) + ),, 6>>- (,s Hiralal Rattanlal -t*. -t*. vs. State of U.P. and +nr. -t*. -t*. (1./0) 1 ),, 61> and Govindlal !hha&anlal Patel vs. +&ri*ultural Produ*e (ar%et !ommittee. Godhra and Ors. (1./*) 6 ),, +;6. 1:) Ar. Upadh'a'- #' further dra in$ our attention to the lan$ua$e used in )e!tion 1*+(1) of the ,ode- !ontended that it merel' mentions 1information2 ithout prefiEin$ the

ords 1reasona#le2 or 1!redi#le2. &n order to su#stantiate this !laim- he relied on the follo in$ de!isions- vi(.Bhajan Lal (su/ra$Ganesh Bhavan Patel and

+nother vs. State of (aharashtra (1./;) + ),, 0/1-

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+le0ue Padamsee and Others vs. Union of )ndia and Others (6::/) > ),, 1/1- Ramesh Kumari ()85r&)Ram Lal aran& vs. State (#elhi +dministration$

(1./.) 6 ),, 066 and Lallan !haudhary and Others vs. State of Bihar and +nother (6::>) 16 ),, 66.. 8esides- he also #rou$ht to li$ht various adverse impa!ts of allo in$ poli!e offi!ers to hold preliminar' in3uir' #efore re$isterin$ an %&R. 11) Mr. ;.<. <*)6&.&'(&.- learned 7dditional )oli!itor General appearin$ on #ehalf of Union of &ndia su#mitted that in all the !ases here information is re!eived under

)e!tion 1*+ of the ,ode- it is mandator' for the poli!e to forth ith enter the same into the re$ister maintained for the said purpose- if the same relates to !ommission of a !o$ni(a#le offen!e. 7!!ordin$ to learned 7)G- the poli!e authorities have no dis!retion or authorit'hatsoever- to

as!ertain the vera!it' of su!h information #efore de!idin$ to re$ister it. Ie also pointed out that a poli!e offi!er-

ho pro!eeds to the spot under )e!tions 1*> and 1*/ of the ,ode- on the #asis of either a !r'pti! information or sour!e information- or a rumour et!.- has to immediatel'-

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on $atherin$ information relatin$ to the !ommission of a !o$ni(a#le offen!e- send a report (ru33a) to the poli!e station so that the same !an #e re$istered as %&R. Ie also hi$hli$hted the s!heme of the ,ode relatin$ to the re$istration of %&R- arrest- various prote!tions provided to the a!!used and the po er of poli!e to !lose investi$ation. &n support of his !laim- he relied on various de!isions of this ,ourt vi(.- Bhajan Lal (su/ra$- Ramesh Kumari (su/ra$ and +le0ue Padamsee (su/ra$. Ie also

deli#erated upon the distin$uisha#le Bud$ments in !onfli!t ith the mandator' proposition- vi(.- State of Uttar Pradesh vs. Bha&1ant Kishore 2oshi (1.>+) 0 ),R /1P. Sirajuddin (su/ra$Sevi (su/ra$Shashi%ant 2a*o'

(su/ra$-

Rajinder

Sin&h

Kato*h

(su/ra$-

(athe1 vs. State of Punja' & +nr. (6::*) > ),, 1. Ie !on!luded his ar$uments #' sa'in$ that if an' information dis!losin$ a !o$ni(a#le offen!e is led #efore an offi!er in< !har$e of a poli!e station satisf'in$ the re3uirements of )e!tion 1*+(1) of the ,ode- the said poli!e offi!er has no other option eE!ept to enter the su#stan!e thereof in the pres!ri#ed form- that is to sa'- to re$ister a !ase on the

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#asis of su!h information. %urther- he emphasi(ed upon various safe$uards provided under the ,ode a$ainst filin$ a false !ase. 16) Dr. A)(o= D(&,*>&- learned !ounsel for the ,8&su#mitted that the use of the 1*+(1) of the ,ode !learl' ord "shall4 under )e!tion mandates that if the

information $iven to a poli!e offi!er relates to the !ommission of a !o$ni(a#le offen!e- then it is mandator' for him to re$ister the offen!e. 7!!ordin$ to learned

!ounsel- in su!h !ir!umstan!es- there is no option or dis!retion $iven to the poli!e. Ie further !ontended that the ord "shall4 !learl' implies a mandate and is Ghat is

unmista9a#l' indi!ative of the statutor' intent.

ne!essar'- a!!ordin$ to him- is onl' that the information $iven to the poli!e must dis!lose !ommission of a !o$ni(a#le offen!e. Ie also !ontended that )e!tion 1*+ of the ,ode uses the ord "information4 simpliciter and does ords su!h as "!redi#le information4 Thus- the intention of the

not use the 3ualified

or "reasona#le !omplaint4.

Parliament is une3uivo!all' !lear from the lan$ua$e emplo'ed that a mere information relatin$ to !ommission

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of a !o$ni(a#le offen!e is suffi!ient to re$ister an %&R. Ie also relied on Bhajan Lal (su/ra$- Ramesh Kumari (su/ra$+le0ue Padamsee (su/ra$Lallan

!haudhary (su/ra$- Su/erintendent of Poli*e. !B) vs. "a/an Kumar Sin&h (6::0) > ),, 1/*- (,s Hiralal Rattanlal (su/ra$- B. Premanand (su/ra$- Khu'

!hand vs. State of Rajasthan 7&R 1.>/ ), 1:/+- P. Sirajuddin (su/ra$- Rajinder Sin&h Kato*h (su/ra$Bha&1ant Kishore 2oshi (su/ra$- State of 3est Ben&al vs. !ommittee for Prote*tion of #emo*rati* Ri&hts. 3est Ben&al (6:1:) 0 ),, */1. Ie also pointed out various safe$uards provided in the ,ode a$ainst filin$ a false !ase. &n the end- he !on!luded #' reiteratin$ that the re$istration of %&R is mandator' under )e!tion 1*+ of the ,ode- if the information dis!loses !ommission of a !o$ni(a#le offen!e and no preliminar' in3uir' is

permissi#le in su!h a situation. %urther- he also !larified that the preliminar' in3uir' !ondu!ted #' the ,8&- under !ertain situations- as provided under the ,8& ,rime Aanual- stands on a different footin$ due to the spe!ial provisions relatin$ to the ,8& !ontained in the ?elhi

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)pe!ial Poli!e Dsta#lishment 7!t- 1.+>under )e!tions +(6) and * of the ,ode.

hi!h is saved

10) Mr. ;&l:&. B&.7o5&7(:&:- learned senior !ounsel appearin$ on #ehalf of the )tate of Gest 8en$alsu#mitted that henever an' information relatin$ to

!ommission of a !o$ni(a#le offen!e is re!eived- it is the dut' of the offi!er in<!har$e of a poli!e station to re!ord the same and a !op' of su!h information- shall #e $iven forth ith- free of !ost- to the informant under )e!tion 1*+(6) of the ,ode. 7!!ordin$ to him- a poli!e offi!er has no other alternative #ut to re!ord the information in relation to a !o$ni(a#le offen!e in the first instan!e. Ie also hi$hli$hted various su#se3uent steps to #e follo ed #' the poli!e offi!er pursuant to the re$istration of an %&R. Gith re$ard to the s!ope of )e!tion 1*+ of the ,ode- he relied on H. . Rish'ud and )nder Sin&h vs. State of #elhi 7&R 1.** ), 1.>- Bhajan Lal (su/ra$- S. . Sharma vs. Bi/en Kumar "i1ari (1./:) 1 ),, >*0Union of )ndia vs. Pra%ash P. Hinduja (6::0) > ),, 1.*- Shei%h Hasi' alias "a'ara% vs. State of Bihar (1./6) + ),, //0- Shashi%ant (su/ra$- +sho% Kumar

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"odi vs. Kish1ar 2ahan and Others (6:11) 0 ),, /*;Padma Sundara Rao (#ead$ and Others vs. State of ". . and Others (6::6) 0 ),, *00- P. Sirajuddin (su/ra$- Rajinder Sin&h Kato*h (su/ra$- Bha&1ant Kishore 2oshi (su/ra$ and (annalal Khati* vs. "he State 7&R 1.>/ ,al +/;. 1+) Dr. M&.*)( S*.0(+*- learned 7dditional 7dvo!ate General for the )tate of RaBasthan- su#mitted that )e!tion 1*+(1) of the ,ode mandates !ompulsor' re$istration of %&R. Ie also hi$hli$hted various safe$uards in#uilt in the ,ode for lod$in$ of false %&Rs. Ie also pointed out that the onl' eE!eption relates to !ases arisin$ under the Prevention of ,orruption 7!t as- in those !ases- san!tion is ne!essar' #efore ta9in$ !o$ni(an!e #' the Aa$istrates and the pu#li! servants are a!!orded some 9ind of prote!tion so that veEatious !ases !annot #e filed to harass them. 1*) Mr. G. S*+&2&l&,8r80&. - learned !ounsel for the appellant in ,riminal 7ppeal Co. 1+1: of 6:11- after tra!in$ the earlier histor'- vi(.- the relevant provisions in the ,ode of ,riminal Pro!edure of 1;>1- 1;/6- 1;;6 and
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1;.; stressed as to

h' the !ompulsor' re$istration of %&R

is mandator'. Ie also hi$hli$hted the re!ommendations of the Report of the +1st La ,ommission and insertion of (7mendment) 7!t- 6:10

)e!tion 10 of the ,riminal La ith effe!t from :0.:6.6:10.

1>) Mr. R.;. D&)(- learned senior !ounsel appearin$ for the )tate of Uttar Pradesh- thou$h initiall' !ommen!ed his ar$uments #' assertin$ that in order to !he!9

unne!essar' harassment to inno!ent persons at the #ehest of uns!rupulous !omplainants- it is desira#le that a preliminar' in3uir' into the alle$ations should pre!ede ith the re$istration of %&R #ut su#se3uentl' after !onsiderin$ the salient features of the ,ode- various provisions li9e )e!tions 6(+) (h)- 1*>(1)- 6:6(1)- 1>+various provisions from the U.P. Poli!e Re$ulationslearned senior !ounsel !ontended that in no !ase

re!ordin$ of %&R should #e deferred till verifi!ation of its truth or other ise in !ase of information relatin$ to a !o$ni(a#le offen!e. &n addition to the same- he also relied on various pronoun!ements of this ,ourt- su!h as(ohindro vs. State of Punja' (6::1) . ),, *;1-

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Ramesh Kumari (su/ra$- Bhajan Lal (su/ra$- Par%ash Sin&h Badal (su/ra$(unna Lal vs. State of

Hima*hal Pradesh 1..6 ,rl. L.=. 1**;- Giridhari Lal Kana% vs. State and others 6::6 ,rl. L.=. 6110 and Katteri (oideen Kutty Haji vs. State of Kerala 6::6 (6) ,rimes 1+0. %inall'- he !on!luded that hen the

statutor' provisions- as envisa$ed in ,hapter K&& of the ,ode- are !lear and unam#i$uous- it permissi#le to allo ould not #e le$all'

the poli!e to ma9e a preliminar'

in3uir' into the alle$ations #efore re$isterin$ an %&R under )e!tion 1*+ of the ,ode. 1/) Mr. S*7(&r'( L8'(r&- learned 7dditional )oli!itor General appearin$ for the )tate of ,hhattis$arh-

!ommen!ed his ar$uments #' emphasi(in$ the s!ope of referen!e #efore the ,onstitution 8en!h. he ela#orated on various Bud$ments investi$atin$ offi!eron re!eivin$ )u#se3uentl'-

hi!h held that an information of

!ommission of a !o$ni(a#le offen!e under )e!tion 1*+ of the ,ode- has po er to !ondu!t preliminar' in3uir' #efore re$istration of %&Rvi(.Bha&1ant Kishore 2oshi

(su/ra$- P. Sirajuddin (su/ra$- Sevi (su/ra$ and

17 Page 17

Rajinder Sin&h Kato*h (su/ra$. ,on!urrentl'- he also #rou$ht to our noti!e the follo in$ de!isions- vi(.- Bhajan Lal (su/ra$- Ramesh Kumari (su/ra$- Par%ash Sin&h Badal (su/ra$- and +le0ue Padamsee (su/ra$hi!h

held that a poli!e offi!er is dut' #ound to re$ister an %&Rupon re!eipt of information dis!losin$ !ommission of a !o$ni(a#le offen!e and the po er of preliminar' in3uir' does not eEist under the mandate of )e!tion 1*+. Learned 7)G has put forth a !omparative anal'sis of )e!tion 1*+ of the ,ode of ,riminal Pro!edure of 1;.; and of 1./0. Ie also hi$hli$hted that ever' a!tivit' poli!e station L)e!tion 6(s)M is hi!h o!!urs in a in a diar'

entered

maintained at the poli!e station

hi!h ma' #e !alled as Ie

the General ?iar'- )tation ?iar' or ?ail' ?iar'.

underlined the relevan!e of General ?iar' #' referrin$ to various Budi!ial de!isions su!h as "a/an Kumar Sin&h (su/ra$- Re4 Su''aratnam & Ors. 7&R 1.+. Aadras >>0. the Ie further pointed out that- presentl'- throu$hout !ountr'in matrimonial!ommer!ialmedi!al

ne$li$en!e and !orruption related offen!es- there eEist provisions for !ondu!tin$ an in3uir' or preliminar' in3uir'

18 Page 18

#' the poli!e-

ithout@#efore re$isterin$ an %&R under

)e!tion 1*+ of the ,ode. Ie also #rou$ht to our noti!e various poli!e rules prevailin$ in the )tates of PunBa#RaBasthan- U.P.- Aadh'a Pradesh- Kol9ata- 8om#a'- et!.for !ondu!tin$ an in3uir' #efore re$isterin$ an %&R. 8esides- he also attempted to dra an inferen!e from the

,rime Aanual of the ,8& to hi$hli$ht that a preliminar' in3uir' #efore re$isterin$ a !ase is permissi#le and le$itimate in the e'es of la . 7dvertin$ to the a#ove !ontentions- he !on!luded #' pleadin$ that preliminar' in3uir' #efore re$istration of an %&R should #e held permissi#le. %urther- he emphasi(ed that the po er to !arr' out an in3uir' or preliminar' in3uir' #' the poli!ehi!h pre!edes the re$istration of %&R ill eliminate the

misuse of the pro!ess- as the re$istration of %&R serves as an impediment a$ainst a person for various important a!tivities li9e appl'in$ for a Bo# or a passport- et!. Learned 7)G further re3uested this ,ourt to frame $uidelines for !ertain !ate$or' of !ases in hi!h

preliminar' in3uir' should #e made. 1;) Mr. S(3=(&r N&5(&73- learned senior !ounsel

19 Page 19

appearin$

on

#ehalf

of

the

)tate

of

Aaharashtra-

su#mitted that ordinaril' the )tation Iouse Offi!er ()IO) should re!ord an %&R upon re!eivin$ a !omplaint dis!losin$ the in$redients of a !o$ni(a#le offen!e- #ut in !ertain situations- in !ase of dou#t a#out the !orre!tness or !redi#ilit' of the informationhe should have the

dis!retion of holdin$ a preliminar' in3uir' and thereafterif he is satisfied that there is a prima facie !ase for investi$ation- re$ister the %&R. 7 mandator' dut' of

re$isterin$ %&R should not #e !ast upon him. 7!!ordin$ to him- this interpretation ould harmoni(e t o eEtreme

positions- vi(.- the proposition that the moment the !omplaint dis!losin$ in$redients of a !o$ni(a#le offen!e is lod$ed- the poli!e offi!er must re$ister an %&R s!rutin' ithout an'

hatsoever is an eEtreme proposition and is

!ontrar' to the mandate of 7rti!le 61 of the ,onstitution of &ndia- similarl'- the other eEtreme point of vie is that the

poli!e offi!er must investi$ate the !ase su#stantiall' #efore re$isterin$ an %&R. 7!!ordin$l'- he pointed out that #oth must #e reBe!ted and a middle path must #e !hosen. Ie also su#mitted the follo in$ Bud$ments- vi(.- Bhajan

20 Page 20

Lal (su/ra$- Ramesh Kumari (su/ra$- Par%ash Sin&h Badal (su/ra$- and +le0ue Padamsee (su/ra$ herein

it has #een held that if a !omplaint alle$in$ !ommission of a !o$ni(a#le offen!e is re!eived in the poli!e station- then the )IO has no other option #ut to re$ister an %&R under )e!tion 1*+ of the ,ode. 7!!ordin$ to learned senior !ounsel- these verdi!ts re3uire re!onsideration as the' have interpreted )e!tion 1*+ de hors the other provisions of the ,ode and have failed to !onsider the impa!t of 7rti!le 61 on )e!tion 1*+ of the ,ode. 1.) 7lon$side- he pointed out the follo in$ de!isionsvi(.- Rajinder Sin&h Kato*h (su/ra$- P. Sirajuddin (su/ra$- Bha&1ant Kishore 2oshi (su/ra$ and Sevi (su/ra$hi!h hold that #efore re$isterin$ an %&R under

)e!tion 1*+ of the ,ode- it is open to the poli!e offi!er to hold a preliminar' in3uir' to as!ertain hether there is a

prima facie !ase of !ommission of a !o$ni(a#le offen!e or not. 7!!ordin$ to learned senior !ounsel- )e!tion 1*+ of the ,ode forms part of a !hain of statutor' provisions relatin$ to investi$ation and- therefore- the s!heme of provisions of )e!tions +1- 1*/- 1>/- 1>.- et!.- must have a

21 Page 21

#earin$ on the interpretation of )e!tion 1*+. &n additionhe emphasi(ed that $ivin$ a literal interpretation ould

redu!e the re$istration of %&R to a me!hani!al a!t. Parallell'- he unders!ored the impa!t of 7rti!le 61 on )e!tion 1*+ of the ,ode #' referrin$ to (ane%a Gandhi vs. Union of )ndia (1./;) 1 ),, 6+;herein this ,ourt

has applied 7rti!le 61 to several provisions relatin$ to !riminal la . This ,ourt has also stated that the

eEpression "la 4 !ontained in 7rti!le 61 ne!essaril' postulates la hi!h is reasona#le and not merel'

statutor' provisions irrespe!tive of its reasona#leness or other ise. Learned senior !ounsel pleaded that in the

li$ht of 7rti!le 61- provisions of )e!tion 1*+ of the ,ode must #e read do n to mean that #efore re$isterin$ an %&Rthe poli!e offi!er must #e satisfied that there is a prima facie !ase for investi$ation. Ie also emphasi(ed that

)e!tion 1*+ !ontains implied po er of the poli!e offi!er to hold preliminar' in3uir' if he bona fide possess serious dou#ts a#out the !redi#ilit' of the information $iven to him. 8' pointin$ out ,riminal La (7mendment) 7!t-

6:10- parti!ularl'- )e!tion 1>>7- Ar. Caphade !ontended

22 Page 22

that as far as other !o$ni(a#le offen!es (apart from those mentioned in )e!tion 1>>7) are !on!erned- poli!e has a dis!retion to hold preliminar' in3uir' if there is some dou#t a#out the !orre!tness of the information. 6:) &n !ase of alle$ations relatin$ to medi!al ne$li$en!e on the part of the do!tors- it is pointed out #' dra in$ our attention to some of the de!isions of this ,ourt vi(."a/an Kumar Sin&h (su/ra$. 2a*o' (athe1 (su/ra$ et!.- that no medi!al professional should #e prose!uted merel' on the #asis of the alle$ations in the !omplaint. 8' pointin$ out various de!isions- Ar. Caphade emphasi(ed that in appropriate !ases- it ould #e proper for a poli!e

offi!er- on re!eipt of a !omplaint of a !o$ni(a#le offen!eto satisf' himself that at least prima facie alle$ations levelled a$ainst the a!!used in the !omplaint are !redi#le. Ie also !ontended that no sin$le provision of a statute !an #e read and interpreted in isolation- #ut the statute must #e read as a hole. 7!!ordin$l'- he pra'ed that the

provisions of )e!tions +1- */- 1*>- 1*/- 1*.- 1>/- 1.:6:: and 6:6 of the ,ode must #e read to$ether. Ie also pointed out that )e!tion 1*+(0) of the ,ode ena#les an'

23 Page 23

!omplainant

hose !omplaint is not re$istered as an %&R

#' the offi!er in<!har$e of the poli!e station to approa!h the hi$her poli!e offi!er for the purpose of $ettin$ his !omplaint re$istered as an %&R and in su!h a !ase- the hi$her poli!e offi!er has all the po ers of re!ordin$ an %&R and dire!tin$ investi$ation into the matter. &n addition to the remed' availa#le to an a$$rieved person of

approa!hin$ hi$her poli!e offi!er- he !an also move the !on!erned Aa$istrate #' ma9in$ a !omplaint under )e!tion 1.: thereof. Ie further emphasi(ed that the fa!t that the le$islature has provided ade3uate remedies a$ainst refusal to re$ister %&R and to hold investi$ation in !o$ni(a#le offen!es- is indi!ative of le$islative intent that the poli!e offi!er is not #ound to re!ord %&R merel' #e!ause the in$redients of a !o$ni(a#le offen!e are dis!losed in the !omplaint- if he has dou#ts a#out the vera!it' of the !omplaint. Ie also pointed out that the

ord "shall4 used in the statute does not al a's mean a#sen!e of an' dis!retion in the matter. %or the said

proposition- he also hi$hli$hted that this ,ourt has preferred the rule of purposive interpretation to the rule of

24 Page 24

literal interpretation for

hi!h he relied on !hairman

Board of (inin& -5amination and !hief )ns/e*tor of (ines and +nother vs. Ramjee (1.//) 6 ),, 6*>- Lalit (ohan Pandey vs. Pooran Sin&h (6::+) > ),, >6>Prativa Bose vs. Kumar Ru/endra #e' Rai%at (1.>+) + ),R >.. Ie further pointed out that it is impossi#le to put the provisions of )e!tion 1*+ of the ,ode in a strai$htBa!9et formula. Ie also pra'ed for framin$ of

some $uidelines as re$ards re$istration or non<re$istration of %&R. %inall'- he pointed out that the re3uirement of

7rti!le 61 is that the pro!edure should #e fair and Bust. 7!!ordin$ to him- if the poli!e offi!er has dou#ts in the matter- it is imperative that he should have the dis!retion of holdin$ a preliminar' in3uir' in the matter. &f he is

de#arred from holdin$ su!h a preliminar' in3uir'- the pro!edure ould then suffer from the vi!e of ar#itrariness

and unreasona#leness. Thus- he !on!luded his ar$uments #' pleadin$ that )e!tion 1*+ of the ,ode must #e interpreted in the li$ht of 7rti!le 61. 61) M). <*2(& D&''& M&=(*>&- learned senior !ounsel appearin$ for the )tate of Aadh'a Pradesh su#mitted that

25 Page 25

a plain readin$ of )e!tion 1*+ and other provisions of the ,ode sho s that it ma' not #e mandator' #ut is a#solutel' o#li$ator' on the part of the poli!e offi!er to re$ister an %&R prior to ta9in$ an' steps or !ondu!tin$ investi$ation into a !o$ni(a#le offen!e. )he further

pointed out that after re!eivin$ the first information of an offen!e and prior to the re$istration of the said report ( hether oral or ritten) in the %irst &nformation 8oo9

maintained at the poli!e station under various )tate Government re$ulations- onl' some preliminar' in3uir' or investi$ative steps are permissi#le under the statutor' frame or9 of the ,ode to the eEtent as is Bustifia#le and is ithin the indo of statutor' dis!retion $ranted stri!tl' hether there has #een a Ien!e- an

for the purpose of as!ertainin$

!ommission or not of a !o$ni(a#le offen!e.

investi$ation- !ulminatin$ into a %inal Report under )e!tion 1/0 of the ,ode- !annot #e !alled into 3uestion and #e 3uashed due to the reason that a part of the in3uir'- investi$ation or steps ta9en durin$ investi$ation are !ondu!ted after re!eivin$ the first information #ut prior to re$isterin$ the same unless it is found that the

26 Page 26

said investi$ation is unfair- ille$al- mala fide and has resulted in $rave preBudi!e to the ri$ht of the a!!used to fair investi$ation. &n support of the a#ove !ontentions-

she tra!ed the earlier provisions of the ,ode and !urrent statutor' frame or9- vi(.- ,riminal La 6:10 (7mendment) 7!t-

ith referen!e to various de!isions of this ,ourt.

)he !on!luded that )e!tion 1*+ of the ,ode leaves no area of dou#t that here a !o$ni(a#le offen!e is dis!losed-

there is no dis!retion on the part of the poli!e to re!ord or not to re!ord the said information- ho ever- it ma' differ from !ase to !ase. 66) The issues #efore the ,onstitution 8en!h of this ,ourt arise out of t o main !onfli!tin$ areas of !on!ernvi(.(i) Ghether the immediate non<re$istration of %&R leads to s!ope for manipulation #' the poli!e hi!h affe!ts

the ri$ht of the vi!tim@!omplainant to have a !omplaint immediatel' investi$ated upon alle$ations #ein$ madeJ and (ii) Ghether in !ases here the !omplaint@information

27 Page 27

does not !learl' dis!lose the !ommission of a !o$ni(a#le offen!e #ut the %&R is !ompulsoril' re$istered then does it infrin$e the ri$hts of an a!!used. D*)/8))*o.9 60) The %&R is a pertinent do!ument in the !riminal la pro!edure of our !ountr' and its main o#Be!t from the point of vie of the informant is to set the !riminal la in

motion and from the point of vie

of the investi$atin$

authorities is to o#tain information a#out the alle$ed !riminal a!tivit' so as to #e a#le to ta9e suita#le steps to tra!e and to #rin$ to #oo9 the $uilt'. 6+) Iistori!al eEperien!e has thro n up !ases from #oth the sides here the $rievan!e of the vi!tim@informant of ell as that of the

non<re$istration of valid %&Rs as

a!!used of #ein$ unne!essaril' harassed and investi$ated upon false !har$es have #een found to #e !orre!t. 6*) 7n eEample of the first !ate$or' of !ases is found in State of (aharashtra vs. Saran&dharsin&h herein

Shivdassin&h !havan & +nr. (6:11) 1 ),, *//

28 Page 28

rit petition

as filed !hallen$in$ the order of the

,olle!tor in the ?istri!t of 8uldhana dire!tin$ not to re$ister an' !rime a$ainst Ar. Go9ul!hand )anandaithout o#tainin$ !learan!e from the ?istri!t 7nti<Aone' Lendin$ ,ommittee and the ?istri!t Government Pleader. %rom the re!ord- it as revealed that out of /+ !ases- onl' ere filed alle$in$ ille$al

in seven !ases- !har$e sheets mone'lendin$.

This ,ourt found that upon instru!tions

$iven #' the ,hief Ainister to the ?istri!t ,olle!tor- there as no re$istration of %&R of the poor farmers. &n these !ir!umstan!es- this ,ourt held the said instru!tions to #e ultra vires and 3uashed the same. &t is ar$ued that !ases li9e a#ove eEhi#it the mandator' !hara!ter of )e!tion 1*+and if it is held other ise- it shall lead to $rave inBusti!e. 6>) &n +le0ue Padamsee (su/ra$the issue a hether it is hile dealin$ ith

ithin the po ers of !ourts to issue

rit dire!tin$ the poli!e to re$ister a %irst &nformation here it as alle$ed that the a!!used

Report in a !ase

had made spee!hes li9el' to distur# !ommunal harmon'this ,ourt held that "the poli!e offi!ials ou$ht to re$ister the %&R henever fa!ts #rou$ht to their noti!e sho that a

29 Page 29

!o$ni(a#le offen!e has #een made out. &n !ase the poli!e offi!ials fail to do so- the modalities to #e adopted are as set out in )e!tion 1.: read ith )e!tion 6:: of the ,ode.4

7s su!h- the ,ode itself provides several !he!9s for refusal on the part of the poli!e authorities under )e!tion 1*+ of the ,ode. 6/) Io ever- on the other hand- there are a num#er of !ases hi!h eEhi#it that there are instan!es here the

po er of the poli!e to re$ister an %&R and initiate an investi$ation thereto are misused here a !o$ni(a#le

offen!e is not made out from the !ontents of the !omplaint. 7 si$nifi!ant !ase in this !onteEt is the !ase of Preeti Gu/ta vs. State of 2har%hand (6:1:) / ),, >>/ herein this ,ourt has eEpressed its anEiet' over misuse of )e!tion +.;<7 of the &ndian Penal ,ode- 1;>: (in short 1the &P,2) reports ith respe!t to hi!h a lar$e num#er of frivolous

ere lod$ed. This ,ourt eEpressed its desire that

the le$islature must ta9e into !onsideration the informed pu#li! opinion and the pra$mati! realities to ma9e ne!essar' !han$es in la . 6;) The a#ovesaid Bud$ment resulted in the 6+0 rd Report
30 Page 30

of the La

,ommission of &ndia su#mitted on 0: th 7u$ust,ommission- in its Report- !on!luded that

6:16. The La

thou$h the offen!e under )e!tion +.;<7 !ould #e made !ompounda#le- ho ever- the eEtent of misuse as not

esta#lished #' empiri!al data- and- thus- !ould not #e a $round to denude the provision of its effi!a!'. The La ,ommission also o#served that the la on the 3uestion

hether the re$istration of %&R !ould #e postponed for a reasona#le time is in a state of un!ertaint' and !an #e !r'stalli(ed onl' upon this ,ourt puttin$ at rest the present !ontrovers'. 6.) &n order to arrive at a !on!lusion in the li$ht of diver$ent vie s on the point and also to ans er the a#ove !ontentions- it is pertinent to have a loo9 at the histori!al #a!9$round of the )e!tion and !orrespondin$ provisions that eEisted in the previous ena!tments of the ,ode of ,riminal Pro!edure. Co73 o" Cr*,*.&l Pro/378r3- #86#
"10.. Dver' !omplaint or information preferred to an offi!er in !har$e of a poli!e station- shall #e redu!ed into ritin$ and the su#stan!e thereof shall #e entered in a diar' to #e 9ept #' su!h offi!er- in su!h form as shall #e pres!ri#ed #' the lo!al $overnment.4 31 Page 31

Co73 o" Cr*,*.&l Pro/378r3- #8%2

"116. Dver' !omplaint preferred to an offi!er in !har$e of a poli!e station- shall #e redu!ed into ritin$- and shall #e si$ned- sealed or mar9ed #' the person ma9in$ itJ and the su#stan!e thereof shall #e entered in a #oo9 to #e 9ept #' su!h offi!er in the form pres!ri#ed #' the lo!al $overnment.4

Co73 o" Cr*,*.&l Pro/378r3- #882

"1*+. Dver' information relatin$ to the !ommission of a !o$ni(a#le offen!e if $iven orall' to an offi!er in !har$e of a poli!e station- shall #e redu!ed to ritin$ #' him- or under his dire!tion- and #e read over to the informantJ and ever' su!h information- hether $iven in ritin$ or redu!ed to ritin$ as aforesaid- shall #e si$ned #' the person $ivin$ it- and the su#stan!e thereof shall #e entered in a #oo9 to #e 9ept #' su!h form as the $overnment ma' pres!ri#e in this #ehalf.4

Co73 o" Cr*,*.&l Pro/378r3- #8!8

"1*+. Dver' information relatin$ to the !ommission of a !o$ni(a#le offen!e if $iven orall' to an offi!er in !har$e of a poli!e station- shall #e redu!ed to ritin$ #' him or under his dire!tion- and #e read over to the informantJ and ever' su!h information- hether $iven in ritin$ or redu!ed to ritin$ as aforesaid- shall #e si$ned #' the person $ivin$ it- and the su#stan!e thereof shall #e entered in a #oo9 to #e 9ept #' su!h offi!er in su!h form as the Government ma' pres!ri#e in this #ehalf.4

Co73 o" Cr*,*.&l Pro/378r3- #!%?

"1*+. &nformation in !o$ni(a#le !asesF 1) Dver' information relatin$ to the !ommission of a !o$ni(a#le offen!e- it $iven orall' to an offi!er in !har$e of a poli!e station- shall #e redu!ed to ritin$ #' him or under his dire!tion- and #e read over to the informantJ and ever' su!h information- hether $iven in ritin$ or redu!ed to ritin$ as aforesaid- shall #e si$ned #' the person $ivin$ it- and the su#stan!e thereof shall #e entered in a

32 Page 32

#oo9 to #e 9ept #' su!h offi!er in su!h form as the )tate Government ma' pres!ri#e in this #ehalf. LProvided that if the information is $iven #' the oman a$ainst hom an offen!e under )e!tions 06>7- 06>80*+- 0*+7- 0*+8- 0*+,- 0*+?- 0/>- 0/>7- 0/>8- 0/>,0/>?- 0/>D or )e!tion *:. of the &ndian Penal ,ode is alle$ed to have #een !ommitted or attempted- then su!h information shall #e re!orded #' a oman poli!e offi!er or an' oman offi!erF< Provided further thatF< (a) in the event that the person a$ainst hom an offen!e under )e!tions 0*+- 0*+7- 0*+8- 0*+,- 0*+?0/>- 0/>7- 0/>8- 0/>,- 0/>?- 0/>D or )e!tion *:. of the &ndian Penal !ode is alle$ed to have #een !ommitted or attempted is temporaril' or permanentl' mentall' or ph'si!all' disa#led then su!h information shall #e re!orded #' a poli!e offi!er- at the residen!e of the person see9in$ to report su!h offen!e or at a !onvenient pla!e of su!h person2s !hoi!e- in the presen!e of an interpreter or a spe!ial edu!ator- as the !ase ma' #eJ (#) the re!ordin$ video$raphedJ of su!h information shall #e

(!) the poli!e offi!er shall $et the statement of the person re!orded #' a =udi!ial Aa$istrate under !lause (a) of su#<)e!tion (*7) of )e!tion 1>+ as soon as possi#le.M (I.)3r'37 2: S3/'*o. #? o" @T(3 Cr*,*.&l L&6 (A,3.7,3.') A/'- 20#? 6.3.". 0?.02.20#?) (6) 7 !op' of the information as re!orded under su#< se!tion (1) shall #e $iven forth ith- free of !ost- to the informant. (0) 7n' person a$$rieved #' a refusal on the part of an offi!er in !har$e of a poli!e station to re!ord the information referred to in su#se!tion (1) ma' send the su#stan!e of su!h information- in ritin$ and #' post- to the )uperintendent of Poli!e !on!erned ho- if satisfied that su!h information dis!loses the !ommission of a !o$ni(a#le offen!e- shall either investi$ate the !ase himself or dire!t an investi$ation to #e made #' an' poli!e offi!er su#ordinate to him- in the manner provided #' this ,ode- and su!h offi!er shall have all the po ers of an offi!er in !har$e of the poli!e station in

33 Page 33

relation to that offen!e.

7 perusal of the a#ove said provisions manifests the le$islative intent in #oth old !odes and the ne !ode for

!ompulsor' re$istration of %&R in a !ase of !o$ni(a#le offen!e ithout !ondu!tin$ an' Preliminar' &n3uir'.

0:) The pre!ursor to the present ,ode of 1./0 is the ,ode of 1;.; herein su#stantial !han$es ere made in

the po ers and pro!edure of the poli!e to investi$ate. The startin$ point of the po ers of poli!e as !han$ed

from the po er of the offi!er in<!har$e of a poli!e station to investi$ate into a !o$ni(a#le offen!e ithout the order

of a Aa$istrate- to the redu!tion of the first information re$ardin$ !ommission of a !o$ni(a#le offen!ere!eived orall' or in ritin$- into hether

ritin$ and into the #oo9

separatel' pres!ri#ed #' the Provin!ial $overnment for re!ordin$ su!h first information. 01) 7s su!h- a si$nifi!ant !han$e that too9 pla!e #' of the 1;.; ,ode as a'

ith respe!t to the pla!ement of

)e!tion 1*+- i.e.- the provision imposin$ re3uirement of re!ordin$ the first information re$ardin$ !ommission of a !o$ni(a#le offen!e in the spe!ial #oo9 prior to )e!tion

34 Page 34

1*>- i.e.- the provision empo erin$ the poli!e offi!er to investi$ate a !o$ni(a#le offen!e. 7s su!h- the o#Be!tive of su!h pla!ement of provisions as !lear hi!h as to

ensure that the re!ordin$ of the first information should #e the startin$ point of an' investi$ation #' the poli!e. &n the interest of eEpedien!' of investi$ation sin!e there as no

safe$uard of o#tainin$ permission from the Aa$istrate to !ommen!e an investi$ationthe said pro!edure of

re!ordin$ first information in their #oo9s alon$ si$nature@seal of the informantould a!t

ith the as an

"eEtremel' valua#le safe$uard4 a$ainst the eE!essivemala fide and ille$al eEer!ise of investi$ative po ers #' the poli!e. 06) Provisions !ontained in ,hapter K&& of the ,ode deal ith information to the poli!e and their po ers to investi$ate. The said ,hapter sets out the pro!edure to #e follo ed durin$ investi$ation. The o#Be!tive to #e

a!hieved #' the pro!edure pres!ri#ed in the said ,hapter is to set the !riminal la pro!edural safe$uards in motion and to provide for all so as to ensure that the

investi$ation is fair and is not mala fide and there is no

35 Page 35

s!ope of tamperin$ investi$ation.

ith the eviden!e !olle!ted durin$ the

00) &n addition- Ar. )he9har Caphade- learned senior !ounsel !ontended that insertion of )e!tion 1>>7 in &P, indi!ates that re$istration of %&R is not !ompulsor' for all offen!es other than 8' ,riminal La hat is spe!ified in the said )e!tion. as

(7mendment) 7!t 6:10- )e!tion 1>>7 hi!h reads as underF<

inserted in &ndian Penal ,ode

"S3/'*o. #66AAW(o3+3r- 23*.0 & 582l*/ )3r+&.'.H (a) 9no in$l' diso#e's an' dire!tion of the la hi!h prohi#its him from re3uirin$ the attendan!e at an' pla!e of an' person for the purpose of investi$ation into an offen!e or an' other matter- or (#) 9no in$l' diso#e's- to the preBudi!e of an' personan' other dire!tion of the la re$ulatin$ the manner in hi!h he shall !ondu!t su!h investi$ation- or (!) fails to re!ord an' information $iven to him under su#<se!tion (1) of )e!tion 1*+ of the ,ode of ,riminal Pro!edure- 1./0- in relation to !o$ni(a#le offen!e punisha#le under )e!tion 06>7- )e!tion 06>8- )e!tion 0*+- )e!tion 0*+8- )e!tion 0/:- )e!tion 0/:7- )e!tion 0/>- )e!tion 0/>7- )e!tion 0/>8- )e!tion 0/>,- )e!tion 0/>?- )e!tion 0/>D- )e!tion *:. shall #e punished ith ri$orous imprisonment for a term hi!h shall not #e less than siE months #ut hi!h ma' eEtend to t o 'ears and shall also #e lia#le to fine.4

)e!tion 1>>7(!) la's do n that if a pu#li! servant (Poli!e Offi!er) fails to re!ord an' information $iven to him under )e!tion 1*+(1) of the ,ode in relation to !o$ni(a#le
36 Page 36

offen!es punisha#le under )e!tions 06>7- 06>8- 0*+0*+8- 0/:- 0/:7- 0/>- 0/>7 0/>8- 0/>,- 0/>?- 0/>D or )e!tion *:.he shall #e punished ith ri$orous

imprisonment for a term

hi!h shall not #e less than siE

months #ut ma' eEtend to t o 'ears and shall also #e lia#le to fine. Thus- it is the stand of learned !ounsel that this provision !learl' indi!ates that re$istration of %&R is imperative and poli!e offi!er has no dis!retion in the matter in respe!t of offen!es spe!ified in the said se!tion. Therefore- a!!ordin$ to him- the le$islature a!!epts that as far as other !o$ni(a#le offen!es are !on!erned- poli!e has dis!retion to hold a preliminar' in3uir' if there is dou#t a#out the !orre!tness of the information. 0+) 7lthou$h- the ar$ument is as persuasive as it appears- 'ete dou#t hether su!h a presumption !an ords

#e dra n in !ontravention to the unam#i$uous

emplo'ed in the said provision. Ien!e- insertion of )e!tion 1>>7 in the &P, vide ,riminal La must #e read in !onsonan!e (7mendment) 7!t 6:10ith the provision and not as in the

!ontrar' to it. The insertion of )e!tion 1>>7

li$ht of re!ent unfortunate o!!urren!e of offen!es a$ainst

37 Page 37

omen.

The intention of the le$islature in puttin$ forth as to ti$hten the alread' eEistin$ omen.

this amendment

provisions to provide enhan!ed safe$uards to

Therefore- the le$islature- after noti!in$ the in!reasin$ !rimes a$ainst omen in our !ountr'thou$ht it

appropriate to eEpressl' punish the poli!e offi!ers for their failure to re$ister %&Rs in these !ases. Co other meanin$ than this !an #e assi$ned to for the insertion of the same. 0*) Gith this #a!9$round- let us dis!uss the su#missions in the li$ht of various de!isions #oth in favour and a$ainst the referred issue. I.'3r5r3'&'*o. o" S3/'*o. # $9 0>) &t ma' #e mentioned in this !onne!tion that the first and foremost prin!iple of interpretation of a statute in ever' s'stem of interpretation is the literal rule of interpretation. 7ll that e have to see at the ver' outset is 7s a result- the lan$ua$e

hat does the provision sa'5

emplo'ed in )e!tion 1*+ is the determinative fa!tor of the le$islative intent. 7 plain readin$ of )e!tion 1*+(1) of the ,ode provides that an' information relatin$ to the

38 Page 38

!ommission of a !o$ni(a#le offen!e if $iven orall' to an offi!er<in<!har$e of a poli!e station shall #e redu!ed into ritin$ #' him or under his dire!tion. There is no am#i$uit' in the lan$ua$e of )e!tion 1*+(1) of the ,ode. 0/) 7t this Bun!ture- it is apposite to refer to the follo in$ o#servations of this ,ourt in (,s Hiralal Rattanlal (su/ra$ hi!h are as underF

"66...&n !onstruin$ a statutor' provision- the first and the foremost rule of !onstru!tion is the literar' !onstru!tion. 7ll that e have to see at the ver' outset is hat does that provision sa'5 &f the provision is unam#i$uous and if from that provision- the le$islative intent is !lear- e need not !all into aid the other rules of !onstru!tion of statutes. The other rules of !onstru!tion of statutes are !alled into aid onl' hen the le$islative intention is not !learN4

The a#ove de!ision

as follo ed #' this ,ourt in B.

Premanand (su/ra$ and after referrin$ the a#ovesaid o#servations in the !ase of Hiralal Rattanlal (su/ra$this ,ourt o#served as underF
B!. &t ma' #e mentioned in this !onne!tion that the first and foremost prin!iple of interpretation of a statute in ever' s'stem of interpretation is the literal rule of interpretation. The other rules of interpretation e.$. the mis!hief rule- purposive interpretation- et!. !an onl' #e resorted to hen the plain ords of a statute are am#i$uous or lead to no intelli$i#le results or if read literall' ould nullif' the ver' o#Be!t of the statute. Ghere the ords of a statute are a#solutel' !lear and unam#i$uous- re!ourse !annot #e had to the prin!iples of interpretation other than the literal rule- vide Swedish

39 Page 39

Match AB v. SEBI ( !!"# $$ SCC %"$.

The lan$ua$e of )e!tion 1*+(1)- therefore- admits of no other !onstru!tion #ut the literal !onstru!tion. 0;) The le$islative intent of )e!tion 1*+ is vividl' ela#orated in Bhajan Lal (su/ra$ hi!h is as underF<

"?0. The le$al mandate enshrined in )e!tion 1*+(1) is that ever' information relatin$ to the !ommission of a O!o$ni(a#le offen!eO (as defined Under )e!tion 6(!) of the ,ode) if $iven orall' (in hi!h !ase it is to #e redu!ed into ritin$) or in ritin$ to Oan offi!er in!har$e of a poli!e stationO ( ithin the meanin$ of )e!tion 6(o) of the ,ode) and si$ned #' the informant should #e entered in a #oo9 to #e 9ept #' su!h offi!er in su!h form as the )tate Government ma' pres!ri#e hi!h form is !ommonl' !alled as O%irst &nformation ReportO and hi!h a!t of enterin$ the information in the said form is 9no n as re$istration of a !rime or a !ase. ?#. 7t the sta$e of re$istration of a !rime or a !ase on the #asis of the information dis!losin$ a !o$ni(a#le offen!e in !omplian!e ith the mandate of )e!tion 1*+(1) of the ,ode- the !on!erned poli!e offi!er !annot em#ar9 upon an in3uir' as to hether the informationlaid #' the informant is relia#le and $enuine or other ise and refuse to re$ister a !ase on the $round that the information is not relia#le or !redi#le. On the other hand- the offi!er in !har$e of a poli!e station is statutoril' o#li$ed to re$ister a !ase and then to pro!eed ith the investi$ation if he has reason to suspe!t the !ommission of an offen!e hi!h he is empo ered under )e!tion 1*> of the ,ode to investi$ate- su#Be!t to the proviso to )e!tion 1*/. (7s e have proposed to ma9e a detailed dis!ussion a#out the po er of a poli!e offi!er in the field of investi$ation of a !o$ni(a#le offen!e ithin the am#it of )e!tions 1*> and 1*/ of the ,ode in the ensuin$ part of this Bud$ment- e do not propose to deal ith those se!tions in eEtenso in the present !onteEt.) &n !ase- an offi!er in !har$e of a poli!e station refuses to eEer!ise the Burisdi!tion vested in him and to re$ister a !ase on the

40 Page 40

information of a !o$ni(a#le offen!e reported and there#' violates the statutor' dut' !ast upon him- the person a$$rieved #' su!h refusal !an send the su#stan!e of the information in ritin$ and #' post to the )uperintendent of Poli!e !on!erned ho if satisfied that the information for arded to him dis!loses a !o$ni(a#le offen!e- should either investi$ate the !ase himself or dire!t an investi$ation to #e made #' an' poli!e offi!er su#ordinate to him in the manner provided #' su#<se!tion (0) of )e!tion 1*+ of the ,ode. ?2. 8e it noted that in )e!tion 1*+(1) of the ,odethe le$islature in its !olle!tive isdom has !arefull' and !autiousl' used the eEpression " information4 ithout 3ualif'in$ the same as in )e!tion +1(1)(a) or (&) of the ,ode herein the eEpressions- "reasonable complaint4 and 'credible information4 are used. Dvidentl'- the non< 3ualifi!ation of the ord "information4 in )e!tion 1*+(1) unli9e in )e!tion +1(1)(a) and (&) of the ,ode ma' #e for the reason that the poli!e offi!er should not refuse to re!ord an information relatin$ to the !ommission of a !o$ni(a#le offen!e and to re$ister a !ase thereon on the $round that he is not satisfied ith the reasona#leness or !redi#ilit' of the information. &n other ords1reasona#leness2 or 1!redi#ilit'2 of the said information is not a !ondition pre!edent for re$istration of a !ase. 7 !omparison of the present )e!tion 1*+ ith those of the earlier ,odes ill indi!ate that the le$islature had purposel' thou$ht it fit to emplo' onl' the ord "information4 ithout 3ualif'in$ the said ord. )e!tion 10. of the ,ode of ,riminal Pro!edure of 1;>1 (7!t 6* of 1;>1) passed #' the Le$islative ,oun!il of &ndia read that 1ever( complaint or information2 preferred to an offi!er in !har$e of a poli!e station should #e redu!ed into ritin$ hi!h provision as su#se3uentl' modified #' )e!tion 116 of the ,ode of 1;/6 (7!t 1: of 1;/6) hi!h thereafter read that 1ever' !omplaint2 preferred to an offi!er in !har$e of a poli!e station shall #e redu!ed in ritin$. The ord 1!omplaint2 hi!h o!!urred in previous t o ,odes of 1;>1 and 1;/6 as deleted and in that pla!e the ord 1information2 as used in the ,odes of 1;;6 and 1;.; hi!h ord is no used in )e!tions 1*+- 1**- 1*/ and 1.:( c) of the present ,ode of 1./0 (7!t 6 of 1./+). 7n overall readin$ of all the ,odes ma9es it !lear that the !ondition hi!h is sine 3ua non for re!ordin$ a first information report is that there must #e information and that information must dis!lose a !o$ni(a#le offen!e. ??. &t is- therefore- manifestl' !lear that if an' 41 Page 41

information dis!losin$ a !o$ni(a#le offen!e is laid #efore an offi!er in !har$e of a poli!e station satisf'in$ the re3uirements of )e!tion 1*+(1) of the ,ode- the said poli!e offi!er has no other option eE!ept to enter the su#stan!e thereof in the pres!ri#ed form- that is to sa'to re$ister a !ase on the #asis of su!h information.

0.) ,onse3uentl'- the !ondition that is sine )ua non for re!ordin$ an %&R under )e!tion 1*+ of the ,ode is that there must #e information and that information must dis!lose a !o$ni(a#le offen!e. &f an' information

dis!losin$ a !o$ni(a#le offen!e is led #efore an offi!er in !har$e of the poli!e station satisf'in$ the re3uirement of )e!tion 1*+(1)- the said poli!e offi!er has no other option eE!ept to enter the su#stan!e thereof in the pres!ri#ed form- that is to sa'- to re$ister a !ase on the #asis of su!h information. The provision of )e!tion 1*+ of the ,ode is mandator' and the !on!erned offi!er is dut' #ound to re$ister the !ase on the #asis of information dis!losin$ a !o$ni(a#le offen!e. Thus- the plain ords of )e!tion

1*+(1) of the ,ode have to #e $iven their literal meanin$. @S(&llC +:) The use of the ord " )(&ll4 in )e!tion 1*+(1) of the

,ode !learl' sho s the le$islative intent that it is mandator' to re$ister an %&R if the information $iven to
42 Page 42

the poli!e dis!loses the !ommission of a !o$ni(a#le offen!e. +1) &n Khu' !hand (su/ra$- this ,ourt o#served as underF
"/NThe term "shall4 in its ordinar' si$nifi!an!e is mandator' and the !ourt shall ordinaril' $ive that interpretation to that term unless su!h an interpretation leads to some a#surd or in!onvenient !onse3uen!e or #e at varian!e ith the intent of the le$islature- to #e !olle!ted from other parts of the 7!t. The !onstru!tion of the said eEpression depends on the provisions of a parti!ular 7!t- the settin$ in hi!h the eEpression appears- the o#Be!t for hi!h the dire!tion is $iven- the !onse3uen!es that ould flo from the infrin$ement of the dire!tion and su!h other !onsiderations...4

+6) &t is relevant to mention that the o#Be!t of usin$ the ord "shall4 in the !onteEt of )e!tion 1*+(1) of the ,ode is to ensure that all information relatin$ to all !o$ni(a#le offen!es is promptl' re$istered #' the poli!e and

investi$ated in a!!ordan!e +0) &nvesti$ation of

ith the provisions of la . and prose!ution of

offen!es

offenders are the duties of the )tate.

%or "!o$ni(a#le

offen!es4- a dut' has #een !ast upon the poli!e to re$ister %&R and to !ondu!t investi$ation eE!ept as other ise permitted spe!ifi!all' under )e!tion 1*/ of the ,ode. &f a

43 Page 43

dis!retion- option or latitude is allo ed to the poli!e in the matter of re$istration of %&Rs- it !an have serious !onse3uen!es on the pu#li! order situation and !an also adversel' affe!t the ri$hts of the vi!tims in!ludin$ violatin$ their fundamental ri$ht to e3ualit'. ++) Therefore- the !onteEt in hi!h the ord "shall4

appears in )e!tion 1*+(1) of the ,ode- the o#Be!t for hi!h it has #een used and the !onse3uen!es that follo ill

from the infrin$ement of the dire!tion to re$ister that the ord "shall4

%&Rs- all these fa!tors !learl' sho

used in )e!tion 1*+(1) needs to #e $iven its ordinar' meanin$ of #ein$ of "mandator'4 !hara!ter * The

provisions of )e!tion 1*+(1) of the ,ode- read in the li$ht of the statutor' s!heme- do not admit of !onferrin$ an' dis!retion on the offi!er in<!har$e of the poli!e station for em#ar9in$ upon a preliminar' in3uir' prior to the

re$istration of an %&R. &t is settled position of la

that if the

provision is unam#i$uous and the le$islative intent is !lear- the !ourt need not !all into it an' other rules of !onstru!tion. +*) &n vie of the a#ove- the use of the ord 1shall2
44 Page 44

!oupled

ith the )!heme of the 7!t lead to the !on!lusion

that the le$islators intended that if an information relatin$ to !ommission of a !o$ni(a#le offen!e is $iven- then it ould mandatoril' #e re$istered #' the offi!er in<!har$e of the poli!e station. Readin$ 1shall2 as 1ma'2- as !ontended #' some !ounsel,ode. ould #e a$ainst the )!heme of the

)e!tion 1*+ of the ,ode should #e stri!tl' ord 1shall2 should #e $iven its natural

!onstrued and the

meanin$. The $olden rule of interpretation !an #e $iven a $o<#' onl' in !ases here the lan$ua$e of the se!tion is

am#i$uous and@or leads to an a#surdit'. +>) &n vie of the a#ovee are satisfied that )e!tion

1*+(1) of the ,ode does not have an' am#i$uit' in this re$ard and is in !lear terms. &t is relevant to mention that )e!tion 0. of the ,ode !asts a statutor' dut' on ever' person to inform a#out !ommission of !ertain offen!es hi!h in!ludes offen!es !overed #' )e!tions 161 to 16>0:6- >+<7- 0;6- 0.6 et!.- of the &P,. &t ould #e

in!on$ruous to su$$est that thou$h it is the dut' of ever' !iti(en to inform a#out !ommission of an offen!e- #ut it is not o#li$ator' on the offi!er<in!har$e of a Poli!e )tation to

45 Page 45

re$ister the report. The

ord 1shall2 o!!urrin$ in )e!tion

0. of the ,ode has to #e $iven the same meanin$ as the ord 1shall2 o!!urrin$ in )e!tion 1*+(1) of the ,ode. @Boo=CD@D*&r:C +/) &t is !ontented #' learned 7)G appearin$ for the )tate of ,hhattis$arh that the re!ordin$ of first

information under )e!tion 1*+ in the 1#oo92 is su#se3uent to the entr' in the General ?iar'@)tation ?iar'@?ail' ?iar'hi!h is maintained in poli!e station. Therefore- a!!ordin$ to learned 7)G- first information is a do!ument at the

earliest in the $eneral diar'- then if an' preliminar' in3uir' is needed the poli!e offi!er ma' !ondu!t the same and thereafter the information +;) This interpretation is ill #e re$istered as %&R. holl' unfounded. The %irst

&nformation Report is in fa!t the "information4 that is re!eived first in point of timeritin$ or is redu!ed to of ithi!h is either $iven in

ritin$. &t is not the "su#stan!e4

hi!h is to #e entered in the diar' pres!ri#ed #' the

)tate Government. The term 1General ?iar'2 (also !alled as 1)tation ?iar'2 or 1?ail' ?iar'2 in some )tates) is

46 Page 46

maintained not under )e!tion 1*+ of the ,ode #ut under the provisions of )e!tion ++ of the Poli!e 7!t- 1;>1 in the )tates to hi!h it applies- or under the respe!tive

provisions of the Poli!e 7!t(s) appli!a#le to a )tate or under the Poli!e Aanual of a )tate- as the !ase ma' #e. )e!tion ++ of the Poli!e 7!t- 1;>1 is reprodu!ed #elo F<
"$$. Pol*/3Eo""*/3r) 'o =335 7*&r:.A&t shall #e the dut' of ever' offi!er in !har$e of a poli!e< station to 9eep a $eneral diar' in su!h form as shall- from time to time- #e pres!ri#ed #' the )tate Government and to re!ord therein all !omplaints and !har$ed preferred- the names of all persons arrested- the names of the !omplainants- the offen!es !har$ed a$ainst themthe eapons or propert' that shall have #een ta9en from their possession or other ise- and the names of the itnesses ho shall have #een eEamined. The Aa$istrate of the distri!t shall #e at li#ert' to !all for an' inspe!t su!h diar'.4

+.) &t is pertinent to note that durin$ the 'ear 1;>1hen the aforesaid Poli!e 7!t- 1;>1 of ,riminal Pro!edure- 1;>1 of that ,ode dealt as passed- the ,ode

as also passed. )e!tion 10.

ith re$istration of %&R and this )e!tion ord "diar'4- as !an #e seen from

is also referred to the

the lan$ua$e of this )e!tion- as reprodu!ed #elo F<

"10.. Dver' !omplaint or information preferred to an offi!er in !har$e of a Poli!e )tation- shall #e redu!ed into ritin$- and the su#stan!e thereof shall #e entered in a 7*&r: to #e 9ept #' su!h offi!er- in su!h form as shall #e pres!ri#ed #' the lo!al $overnment.4

47 Page 47

Thus- Poli!e 7!t- 1;>1 and the ,ode of ,riminal Pro!edure1;>1- #oth of the same hi!h ere passed in the same 'ear- used

ord "diar'4. ,ode !ame to #e

*:) Io ever- in the 'ear 1;/6- a ne passed 1;/6. hi!h

as !alled the ,ode of ,riminal Pro!edureith the issue of

)e!tion 116 of the ,ode dealt

re$istration of %&R and is reprodu!ed #elo F<

"116. Dver' !omplaint preferred to an offi!er in !har$e of a Poli!e station shall #e redu!ed into ritin$- and shall #e si$ned- sealed- or mar9ed #' the person ma9in$ itJ and the su#stan!e thereof shall #e entered in a 2oo= to #e 9ept #' su!h offi!er in the form pres!ri#ed #' the Lo!al Government.4

*1) &t is- thus- !lear that in the ,ode of ,riminal Pro!edure- 1;/6- a departure 1#oo92 as made and the The ord

as used in pla!e of 1diar'2.

ord 1#oo92

!learl' referred to %&R #oo9 to #e maintained under the ,ode for re$istration of %&Rs. *6) The 3uestion that hether the %&R is to #e re!orded

in the %&R 8oo9 or in General ?iar'- is no more res inte&ra. This issue has alread' #een de!ided authoritativel' #' this ,ourt.

48 Page 48

*0) &n (adhu Bala vs. Suresh Kumar (1../) ; ),, +/>- this ,ourt has held that %&R must #e re$istered in the %&R Re$ister hi!h shall #e a #oo9 !onsistin$ of 6::

pa$es. &t is true that the su#stan!e of the information is also to #e mentioned in the ?ail' diar' (or the $eneral diar'). 8ut- the #asi! re3uirement is to re$ister the %&R in the %&R 8oo9 or Re$ister. Dven in Bhajan Lal (su/ra$-

this ,ourt held that %&R has to #e entered in a #oo9 in a form Report. *+) &t is thus !lear that re$istration of %&R is to #e done in a #oo9 !alled %&R #oo9 or %&R Re$ister. Of !ourse- in hi!h is !ommonl' !alled the %irst &nformation

addition- the $ist of the %&R or the su#stan!e of the %&R ma' also #e mentioned simultaneousl' in the General ?iar' as mandated in the respe!tive Poli!e 7!t or Rules- as the !ase ma' #e- under the relevant )tate provisions. **) The General ?iar' is a re!ord of all important transa!tions@events ta9in$ pla!e in a poli!e stationin!ludin$ departure and arrival of poli!e staff- handin$ over or ta9in$ over of !har$e- arrest of a person- details of la and order duties- visit of senior offi!ers et!. &t is in this
49 Page 49

!onteEt that $ist or su#stan!e of ea!h %&R #ein$ re$istered in the poli!e station is also mentioned in the General ?iar' sin!e re$istration of %&R also happens to #e a ver' important event in the poli!e station. )in!e General ?iar' is a re!ord that is maintained !hronolo$i!all' on da'<to< da' #asis (on ea!h da'- startin$ General ?iar' entr' ith ne is num#er 1)- the also mentioned

referen!e

simultaneousl' in the %&R 8oo9-

hile %&R num#er is

mentioned in the General ?iar' entr' sin!e #oth of these are prepared simultaneousl'. *>) &t is relevant to point out that %&R 8oo9 is maintained ith its num#er $iven on an annual #asis. This means

that ea!h %&R has a uni3ue annual num#er $iven to it. This is on similar lines as the ,ase Cum#ers $iven in !ourts. ?ue to this reason- it is possi#le to 9eep a stri!t !ontrol and tra!9 over the re$istration of %&Rs #' the supervisor' poli!e offi!ers and #' the !ourtsne!essar'. herever

,op' of ea!h %&R is sent to the superior

offi!ers and to the !on!erned =udi!ial Aa$istrate. */) On the other hand- General ?iar' !ontains a hu$e num#er of other details of the pro!eedin$s of ea!h da'.
50 Page 50

,op' of General ?iar' is not sent to the =udi!ial Aa$istrate havin$ Burisdi!tion over the poli!e station- thou$h its !op' is sent to a superior poli!e offi!er. Thus- it is not possi#le to 9eep stri!t !ontrol of ea!h and ever' %&R re!orded in the General ?iar' #' superior poli!e offi!ers and@or the !ourt in vie of enormous amount of other details

mentioned therein and the num#ers !han$in$ ever' da'. *;) The si$nature of the !omplainant is o#tained in the %&R 8oo9 as and hen the !omplaint is $iven to the poli!e

station. On the other hand- there is no su!h re3uirement of o#tainin$ si$nature of the !omplainant in the $eneral diar'. Aoreover- at times- the !omplaint $iven ma' hi!h !ase it is onl'

!onsist of lar$e num#er of pa$es- in the $ist of the !omplaint

hi!h is to #e re!orded in the

General ?iar' and not the full !omplaint. This does not fit in ith the su$$estion that should #e hat is re!orded in General to #e the

?iar'

!onsidered

fulfillment@!omplian!e of the re3uirement of )e!tion 1*+ of re$istration of %&R. &n fa!t- the usual pra!ti!e is to

re!ord the !omplete !omplaint in the %&R #oo9 (or anneE it ith the %&R form) #ut re!ord onl' a#out one or t o

51 Page 51

para$raphs ($ist of the information) in the General ?iar'. *.) &n vie ,ode of the a#ove- it is useful to point out that the

as ena!ted under Dntr' 6 of the ,on!urrent List of hi!h is

the )eventh )!hedule to the ,onstitution reprodu!ed #elo F<

"6. ,riminal pro!edure- in!ludin$ all matters in!luded in the ,ode of ,riminal Pro!edure at the !ommen!ement of this ,onstitution.4

On the other hand- Poli!e 7!t- 1;>1 (or other similar 7!ts in respe!tive )tates) ere ena!ted under Dntr' 6 of the

)tate List of the )eventh )!hedule to the ,onstitutionhi!h is reprodu!ed #elo F<
"6. Poli!e (in!ludin$ rail a' and villa$e poli!e) su#Be!t to the provisions of Dntr' 67 of List &.4

>:) Co - at this Bun!ture- it is pertinent to refer 7rti!le 6*+(1) of the ,onstitutionhi!h la's do n the provisions

relatin$ to in!onsisten!ies #et een the la s made #' the Parliament and the )tate Le$islatures. reprodu!ed as underF<
B2 $. I./o.)*)'3./: 23'633. l&6) ,&73 2: P&rl*&,3.' &.7 l&6) ,&73 2: '(3 L30*)l&'8r3) o" S'&'3) (1) &f an' provision of a la made #' the Le$islature of a )tate is repu$nant to an' provision of a la made #' Parliament hi!h Parliament is !ompetent to ena!t- or 52 Page 52

7rti!le 6*+(1) is

to an' provision of an eEistin$ la ith respe!t to one of the matters enumerated in the ,on!urrent List- thensu#Be!t to the provisions of !lause (6)- the la made #' Parliamenthether passed #efore or after the la made #' the Le$islature of su!h )tate- or- as the !ase ma' #e- the eEistin$ la - shall prevail and the la made #' the Le$islature of the )tate shall- to the eEtent of the repu$nan!'- #e void.4

Thus it is !lear from the mandate of 7rti!le 6*+(1) of the ,onstitution that if there is an' in!onsisten!' #et een the provisions of the ,ode and the Poli!e 7!t- 1;>1- the provisions of the ,ode the Poli!e 7!t repu$nan!'. >1) &f at all- there is an' in!onsisten!' in the provisions of )e!tion 1*+ of the ,ode and )e!tion ++ of the Poli!e 7!t1;>1ith re$ard to the fa!t as to hether the %&R is to #e ill prevail and the provisions of

ould #e void to the eEtent of the

re$istered in the %&R #oo9 or in the General ?iar'- the provisions of )e!tion 1*+ of the ,ode ill prevail and the

provisions of )e!tion ++ of the Poli!e 7!t- 1;>1 (or similar provisions of the respe!tive !orrespondin$ Poli!e 7!t or Rules in other respe!tive )tates) shall #e void to the eEtent of the repu$nan!'. Thus- %&R is to #e re!orded in the %&R 8oo9- as mandated under )e!tion 1*+ of the ,ode-

53 Page 53

and it is not !orre!t to state that information

ill #e first

re!orded in the General ?iar' and onl' after preliminar' in3uir'- if re3uired- the information %&R. >6) Io everthis ,ourt in "a/an Kumar Sin&h ill #e re$istered as

(su/ra$- held that a G? entr' ma' #e treated as %irst information in an appropriate !ase!ommission of a !o$ni(a#le offen!e. &t here it dis!loses the as held as underF

B# . &t is the !orre!tness of this findin$ hi!h is assailed #efore us #' the appellants. The' !ontend that the information re!orded in the G? entr' does dis!lose the !ommission of a !o$ni(a#le offen!e. The' su#mitted that even if their !ontention- that after re!ordin$ the G? entr' onl' a preliminar' in3uir' as made- is not a!!epted- the' are still entitled to sustain the le$alit' of the investi$ation on the #asis that the G? entr' ma' #e treated as a first information report- sin!e it dis!losed the !ommission of a !o$ni(a#le offen!e. #6. The parties #efore us did not dispute the le$al position that a G? entr' ma' #e treated as a first information report in an appropriate !asehere it dis!loses the !ommission of a !o$ni(a#le offen!e. &f the !ontention of the appellants is upheld- the order of the Ii$h ,ourt must #e set aside #e!ause if there as in la a first information report dis!losin$ the !ommission of a !o$ni(a#le offen!e- the poli!e had the po er and Burisdi!tion to investi$ate- and in the pro!ess of investi$ation to !ondu!t sear!h and sei(ure. &t istherefore- not ne!essar' for us to !onsider the authorities !ited at the 8ar on the 3uestion of validit' of the preliminar' in3uir' and the validit' of the sear!h and sei(ure. KEE EEEE #!. The Ii$h ,ourt fell into an error in thin9in$ that the

54 Page 54

information re!eived #' the poli!e !ould not #e treated as a first information report sin!e the alle$ation as va$ue inasmu!h as it as not stated from hom the sum of rupees one la9h as demanded and a!!epted. Cor as it stated that su!h demand or a!!eptan!e as made as motive or re ard for doin$ or for#earin$ to do an' offi!ial a!t- or for sho in$ or for#earin$ to sho in eEer!ise of his offi!ial fun!tion- favour or disfavour to an' person or for renderin$- attemptin$ to render an' servi!e or disservi!e to an' person. Thus there as no #asis for a poli!e offi!er to suspe!t the !ommission of an offen!e hi!h he as empo ered under )e!tion 1*> of the ,ode to investi$ate.4

>0) &t is thus une3uivo!all' !lear that re$istration of %&R is mandator' and also that it is to #e re!orded in the %&R 8oo9 #' $ivin$ a uni3ue annual num#er to ea!h %&R to ena#le stri!t tra!9in$ of ea!h and ever' re$istered %&R #' the superior poli!e offi!ers as !ourt to ell as #' the !ompetent

hi!h !opies of ea!h %&R are re3uired to #e sent.

@I."or,&'*o.C >+) The le$islature has !ons!iousl' used the eEpression "information4 in )e!tion 1*+(1) of the ,ode as a$ainst the eEpression used in )e!tion +1(1)(a) and ($) eEpression used for arrestin$ a person ithout here the arrant is

"reasona#le !omplaint4 or "!redi#le information4. The eEpression under )e!tion 1*+(1) of the ,ode is not 3ualified #' the prefiE "reasona#le4 or "!redi#le4. The non

55 Page 55

3ualifi!ation of the

ord "information4 in )e!tion 1*+(1)

unli9e in )e!tion +1(1)(a) and ($) of the ,ode is for the reason that the poli!e offi!er should not refuse to re!ord an' information relatin$ to the !ommission of a !o$ni(a#le offen!e on the $round that he is not satisfied ith the

reasona#leness or !redi#ilit' of the information. &n other ordsreasona#leness is not a or !redi#ilit' of the for said the

information

!ondition

pre!edent

re$istration of a !ase. >*) The a#ove vie Bhajan Lal (su/ra$ has #een eEpressed #' this ,ourt in hi!h is as underF<

B?2. ... in )e!tion 1*+(1) of the ,ode- the le$islature in its !olle!tive isdom has !arefull' and !autiousl' used the eEpression "information4 ithout 3ualif'in$ the same as in )e!tion +1(1)(a) or (&) of the ,ode herein the eEpressions- "reasonable complaint4 and 'credible information4 are used. Dvidentl'- the non<3ualifi!ation of the ord "information4 in )e!tion 1*+(1) unli9e in )e!tion +1(1)(a) and (&) of the ,ode ma' #e for the reason that the poli!e offi!er should not refuse to re!ord an information relatin$ to the !ommission of a !o$ni(a#le offen!e and to re$ister a !ase thereon on the $round that he is not satisfied ith the reasona#leness or !redi#ilit' of the information. &n other ords1reasona#leness2 or 1!redi#ilit'2 of the said information is not a !ondition pre!edent for re$istration of a !ase. 7 !omparison of the present )e!tion 1*+ ith those of the earlier ,odes ill indi!ate that the le$islature had purposel' thou$ht it fit to emplo' onl' the ord "information4 ithout 3ualif'in$ the said ord.4

>>) &n Par%ash Sin&h Badal (su/ra$- this ,ourt held as

56 Page 56

underF<
B6 . The le$al mandate enshrined in )e!tion 1*+(1) is that ever' information relatin$ to the !ommission of a "!o$ni(a#le offen!e4 Las defined under )e!tion 6( c) of the ,odeM if $iven orall' (in hi!h !ase it is to #e redu!ed into ritin$) or in ritin$ to "an offi!er in !har$e of a poli!e station4 L ithin the meanin$ of )e!tion 6(o) of the ,odeM and si$ned #' the informant should #e entered in a #oo9 to #e 9ept #' su!h offi!er in su!h form as the )tate Government ma' pres!ri#e hi!h form is !ommonl' !alled as "first information report4 and hi!h a!t of enterin$ the information in the said form is 9no n as re$istration of a !rime or a !ase. 66. 7t the sta$e of re$istration of a !rime or a !ase on the #asis of the information dis!losin$ a !o$ni(a#le offen!e in !omplian!e ith the mandate of )e!tion 1*+(1) of the ,ode- the poli!e offi!er !on!erned !annot em#ar9 upon an in3uir' as to hether the information laid #' the informant is relia#le and $enuine or other ise and refuse to re$ister a !ase on the $round that the information is not relia#le or !redi#le. On the other hand- the offi!er in !har$e of a poli!e station is statutoril' o#li$ed to re$ister a !ase and then to pro!eed ith the investi$ation if he has reason to suspe!t the !ommission of an offen!e hi!h he is empo ered under )e!tion 1*> of the ,ode to investi$atesu#Be!t to the proviso to )e!tion 1*/ thereof. &n !ase an offi!er in !har$e of a poli!e station refuses to eEer!ise the Burisdi!tion vested in him and to re$ister a !ase on the information of a !o$ni(a#le offen!e reported and there#' violates the statutor' dut' !ast upon him- the person a$$rieved #' su!h refusal !an send the su#stan!e of the information in ritin$ and #' post to the )uperintendent of Poli!e !on!erned ho if satisfied that the information for arded to him dis!loses a !o$ni(a#le offen!e- should either investi$ate the !ase himself or dire!t an investi$ation to #e made #' an' poli!e offi!er su#ordinate to him in the manner provided #' su#<se!tion (0) of )e!tion 1*+ of the ,ode. 6%. &t has to #e noted that in )e!tion 1*+(1) of the ,ode- the le$islature in its !olle!tive isdom has !arefull' and !autiousl' used the eEpression "information4 ithout 3ualif'in$ the same as in )e!tions +1(1)( a) or (&) of the ,ode herein the eEpressions "reasona#le !omplaint4 and "!redi#le information4 are used. Dvidentl'- the non< 3ualifi!ation of the ord "information4 in )e!tion 1*+(1)

57 Page 57

unli9e in )e!tions +1(1)(a) and (&) of the ,ode ma' #e for the reason that the poli!e offi!er should not refuse to re!ord an information relatin$ to the !ommission of a !o$ni(a#le offen!e and to re$ister a !ase thereon on the $round that he is not satisfied ith the reasona#leness or !redi#ilit' of the information. &n other ords"reasona#leness4 or "!redi#ilit'4 of the said information is not a !ondition pre!edent for re$istration of a !ase. 7 !omparison of the present )e!tion 1*+ ith those of the earlier ,odes ill indi!ate that the le$islature had purposel' thou$ht it fit to emplo' onl' the ord "information4 ithout 3ualif'in$ the said ord. )e!tion 10. of the ,ode of ,riminal Pro!edure of 1;>1 (7!t 6* of 1;>1) passed #' the Le$islative ,oun!il of &ndia read that "ever' !omplaint or information4 preferred to an offi!er in !har$e of a poli!e station should #e redu!ed into ritin$ hi!h provision as su#se3uentl' modified #' )e!tion 116 of the ,ode of 1;/6 (7!t 1: of 1;/6) hi!h thereafter read that "ever' !omplaint4 preferred to an offi!er in !har$e of a poli!e station shall #e redu!ed in ritin$. The ord "!omplaint4 hi!h o!!urred in previous t o ,odes of 1;>1 and 1;/6 as deleted and in that pla!e the ord "information4 as used in the ,odes of 1;;6 and 1;.; hi!h ord is no used in )e!tions 1*+- 1**- 1*/ and 1.:(c) of the ,ode. 7n overall readin$ of all the ,odes ma9es it !lear that the !ondition hi!h is sine 3ua non for re!ordin$ a first information report is that there must #e an information and that information must dis!lose a !o$ni(a#le offen!e. 68. &t is- therefore- manifestl' !lear that if an' information dis!losin$ a !o$ni(a#le offen!e is laid #efore an offi!er in !har$e of a poli!e station satisf'in$ the re3uirements of )e!tion 1*+(1) of the ,ode- the said poli!e offi!er has no other option eE!ept to enter the su#stan!e thereof in the pres!ri#ed form- that is to sa'- to re$ister a !ase on the #asis of su!h information.4

>/) &n Ramesh Kumari (su/ra$- this ,ourt held as underF<

$. That a poli!e offi!er mandatoril' re$isters a !ase on a !omplaint of a !o$ni(a#le offen!e #' the !iti(en under )e!tion 1*+ of the ,ode is no more res inte$ra. The point of la has #een set at rest #' this ,ourt in State of Har(ana v. Bha+an ,al. This ,ourt after eEaminin$ the hole $amut and intri!a!ies of the mandator' nature of )e!tion 1*+ of

58 Page 58

the ,ode has arrived at the findin$ in paras 01 and 06 of the Bud$ment as underF "-$. 7t the sta$e of re$istration of a !rime or a !ase on the #asis of the information dis!losin$ a !o$ni(a#le offen!e in !omplian!e ith the mandate of )e!tion 1*+(1) of the ,ode- the poli!e offi!er !on!erned !annot em#ar9 upon an in3uir' as to hether the informationlaid #' the informant is relia#le and $enuine or other ise and refuse to re$ister a !ase on the $round that the information is not relia#le or !redi#le. On the other hand- the offi!er in !har$e of a poli!e station is statutoril' o#li$ed to re$ister a !ase and then to pro!eed ith the investi$ation if he has reason to suspe!t the !ommission of an offen!e hi!h he is empo ered under )e!tion 1*> of the ,ode to investi$ate- su#Be!t to the proviso to )e!tion 1*/. (7s e have proposed to ma9e a detailed dis!ussion a#out the po er of a poli!e offi!er in the field of investi$ation of a !o$ni(a#le offen!e ithin the am#it of )e!tions 1*> and 1*/ of the ,ode in the ensuin$ part of this Bud$ment- e do not propose to deal ith those se!tions in eEtenso in the present !onteEt.) &n !ase- an offi!er in !har$e of a poli!e station refuses to eEer!ise the Burisdi!tion vested in him and to re$ister a !ase on the information of a !o$ni(a#le offen!e reported and there#' violates the statutor' dut' !ast upon him- the person a$$rieved #' su!h refusal !an send the su#stan!e of the information in ritin$ and #' post to the )uperintendent of Poli!e !on!erned ho if satisfied that the information for arded to him dis!loses a !o$ni(a#le offen!e- should either investi$ate the !ase himself or dire!t an investi$ation to #e made #' an' poli!e offi!er su#ordinate to him in the manner provided #' su#<se!tion (0) of )e!tion 1*+ of the ,ode. - . 8e it noted that in )e!tion 1*+(1) of the ,ode- the le$islature in its !olle!tive isdom has !arefull' and !autiousl' used the eEpression 1information2 ithout 3ualif'in$ the same as in )e!tion +1(1)(a) or (&) of the ,ode herein the eEpressions- 1reasonable complaint2 and 1credible information2 are used. Dvidentl'- the non< 3ualifi!ation of the ord 1information2 in )e!tion 1*+(1) unli9e in )e!tion +1(1)(a) and (&) of the ,ode ma' #e for the reason that the poli!e offi!er should not refuse to re!ord an information relatin$ to the !ommission of a !o$ni(a#le offen!e and to re$ister a !ase thereon on the $round that he is not satisfied ith the reasona#leness or !redi#ilit' of the information. &n other ords1reasona#leness2 or 1!redi#ilit'2 of the said information is 59 Page 59

not a !ondition pre!edent for re$istration of a !ase. 7 !omparison of the present )e!tion 1*+ ith those of the earlier ,odes ill indi!ate that the le$islature had purposel' thou$ht it fit to emplo' onl' the ord 1information2 ithout 3ualif'in$ the said ord. )e!tion 10. of the ,ode of ,riminal Pro!edure of 1;>1 (7!t 6* of 1;>1) passed #' the Le$islative ,oun!il of &ndia read that 1ever( complaint or information2 preferred to an offi!er in !har$e of a poli!e station should #e redu!ed into ritin$ hi!h provision as su#se3uentl' modified #' )e!tion 116 of the ,ode of 1;/6 (7!t 1: of 1;/6) hi!h thereafter read that 1ever' !omplaint2 preferred to an offi!er in !har$e of a poli!e station shall #e redu!ed in ritin$. The ord 1!omplaint2 hi!h o!!urred in previous t o ,odes of 1;>1 and 1;/6 as deleted and in that pla!e the ord 1information2 as used in the ,odes of 1;;6 and 1;.; hi!h ord is no used in )e!tions 1*+- 1**- 1*/ and 1.:( c) of the present ,ode of 1./0 (7!t 6 of 1./+). 7n overall readin$ of all the ,odes ma9es it !lear that the !ondition hi!h is sine 3ua non for re!ordin$ a first information report is that there must #e information and that information must dis!lose a !o$ni(a#le offen!e.4 (emphasis ori$inal) %inall'- this ,ourt in para 00 saidF "--. &t is- therefore- manifestl' !lear that if an' information dis!losin$ a !o$ni(a#le offen!e is laid #efore an offi!er in !har$e of a poli!e station satisf'in$ the re3uirements of )e!tion 1*+(1) of the ,ode- the said poli!e offi!er has no other option eE!ept to enter the su#stan!e thereof in the pres!ri#ed form- that is to sa'to re$ister a !ase on the #asis of su!h information.4 . The vie s eEpressed #' this ,ourt in paras 01- 06 and 00 as 3uoted a#ove leave no manner of dou#t that the provision of )e!tion 1*+ of the ,ode is mandator' and the offi!er !on!erned is dut'<#ound to re$ister the !ase on the #asis of su!h information dis!losin$ !o$ni(a#le offen!e.4 in

>;) &n Ram Lal underF<

aran& (su/ra$. this ,ourt held as

B#$. Under the ,rP,- 1;.;henever an offi!er in !har$e of the poli!e station re!eived information relatin$ to 60 Page 60

the !ommission of a !o$ni(a#le offen!e- he as re3uired to enter the su#stan!e thereof in a #oo9 9ept #' him- for that purpose- in the pres!ri#ed form ()e!tion 1*+ ,rP,). )e!tion 1*> of the ,rP, invested the Poli!e ith the po er to investi$ate into !o$ni(a#le offen!es ithout the order of a ,ourt. &f- from the information re!eived or other ise- the offi!er in !har$e of a poli!e station suspe!ted the !ommission of a !o$ni(a#le offen!e- he as re3uired to send forth ith a report of the same to a Aa$istrate empo ered to ta9e !o$ni(an!e of su!h offen!e upon a poli!e report and then to pro!eed in person or depute one of his su#ordinate offi!ers to pro!eed to the spot- to investi$ate the fa!ts and !ir!umstan!es of the !ase and to ta9e measures for the dis!over' and arrest of the offender ()e!tion 1*/ ,rP,). Ie as re3uired to !omplete the investi$ation ithout unne!essar' dela'- and- as soon as it as !ompleted- to for ard to a Aa$istrate empo ered to ta9e !o$ni(an!e of the offen!e upon a poli!e report- a report in the pres!ri#ed form- settin$ forth the names of the parties- the nature of the information and the names of the persons ho appeared to #e a!3uainted ith the !ir!umstan!es of the !ase L)e!tion 1/0(1) ,rP,M. Ie as also re3uired to state hether the a!!used had #een for arded in !ustod' or had #een released on #ail. Upon re!eipt of the report su#mitted under )e!tion 1/0(1) ,rP, #' the offi!er in !har$e of the poli!e station- the Aa$istrate empo ered to ta9e !o$ni(an!e of an offen!e upon a poli!e report mi$ht ta9e !o$ni(an!e of the offen!e L)e!tion 1.:(1)(b) ,rP,M. Thereafter- if- in the opinion of the Aa$istrate ta9in$ !o$ni(an!e of the offen!e- there as suffi!ient $round for pro!eedin$- the Aa$istrate as re3uired to issue the ne!essar' pro!ess to se!ure the attendan!e of the a!!used ()e!tion 6:+ ,rP,). The s!heme of the ,ode thus as that the %&R as follo ed #' investi$ation- the investi$ation led to the su#mission of a report to the Aa$istrate- the Aa$istrate too9 !o$ni(an!e of the offen!e on re!eipt of the poli!e report and- finall'- the Aa$istrate ta9in$ !o$ni(an!e issued pro!ess to the a!!used. # . The poli!e thus had the statutor' ri$ht and dut' to "re$ister4 ever' information relatin$ to the !ommission of a !o$ni(a#le offen!e. The poli!e also had the statutor' ri$ht and dut' to investi$ate the fa!ts and !ir!umstan!es of the !ase here the !ommission of a !o$ni(a#le offen!e as suspe!ted and to su#mit the report of su!h investi$ation to the Aa$istrate havin$ Burisdi!tion to ta9e !o$ni(an!e of the offen!e upon a poli!e report. These statutor' ri$hts and duties of the poli!e ere not !ir!ums!ri#ed #' an' po er of

61 Page 61

superintenden!e or interferen!e in the Aa$istrateJ nor as an' san!tion re3uired from a Aa$istrate to empo er the Poli!e to investi$ate into a !o$ni(a#le offen!e. This position in la as ell<esta#lished. &n Kin& Emperor v. Khwa+a .a/ir Ahmad the Priv' ,oun!il o#served as follo sF "=ust as it is essential that ever'one a!!used of a !rime should have free a!!ess to a ,ourt of Busti!e- so that he ma' #e dul' a!3uitted if found not $uilt' of the offen!e ith hi!h he is !har$ed- so it is of the utmost importan!e that the Budi!iar' should not interfere ith the poli!e in matters hi!h are ithin their provin!e and into hi!h the la imposes on them the dut' of in3uir'. &n &ndia- as has #een sho n- there is a statutor' ri$ht on the part of the poli!e to investi$ate the !ir!umstan!es of an alle$ed !o$ni(a#le !rime ithout re3uirin$ an' authorit' from the Budi!ial authorities- and it ould- as Their Lordships thin9- #e an unfortunate result if it should #e held possi#le to interfere ith those statutor' rules #' an eEer!ise of the inherent Burisdi!tion of the ,ourt. The fun!tions of the Budi!iar' and the poli!e are !omplementar'- not overlappin$- and the !om#ination of individual li#ert' ith a due o#servan!e of la and order is onl' to #e o#tained #' leavin$ ea!h to eEer!ise its o n fun!tion- al a's of !ourse- su#Be!t to the ri$ht of the ,ourts to intervene in an appropriate !ase hen moved under )e!tion +.1 of the ,riminal Pro!edure ,ode to $ive dire!tions in the nature of Ia#eas ,orpus. &n su!h a !ase as the present- ho ever- the ,ourt2s fun!tions #e$in hen a !har$e is preferred #efore it and not until then ... &n the present !ase- the poli!e have under )e!tions 1*+ and 1*> of the ,riminal Pro!edure ,ode- a statutor' ri$ht to investi$ate a !o$ni(a#le offen!e ithout re3uirin$ the san!tion of the ,ourt ....4 Ordinaril'- the ri$ht and dut' of the poli!e ould end ith the su#mission of a report under )e!tion 1/0(1) ,rP, upon re!eipt of hi!h it as up to the Aa$istrate to ta9e or not to ta9e !o$ni(an!e of the offen!e. There as no provision in the 1;.; ,ode pres!ri#in$ the pro!edure to #e follo ed #' the poli!e- here- after the su#mission of a report under )e!tion 1/0(1) ,rP, and after the Aa$istrate had ta9en !o$ni(an!e of the offen!e- fresh fa!ts !ame to li$ht hi!h re3uired further investi$ation. There as- of !ourse- no eEpress provision prohi#itin$ the poli!e from laun!hin$ upon an investi$ation into the fresh fa!ts !omin$ to li$ht after the su#mission of the report under )e!tion 1/0(1) or after the Aa$istrate had ta9en !o$ni(an!e of the offen!e. 7s e shall presentl' point out- it as $enerall' thou$ht #' man' Ii$h ,ourts- thou$h dou#ted #' a fe - that the 62 Page 62

poli!e ere not #arred from further investi$ation #' the !ir!umstan!e that a report under )e!tion 1/0(1) had alread' #een su#mitted and a Aa$istrate had alread' ta9en !o$ni(an!e of the offen!e. The La ,ommission in its +1st report re!o$ni(ed the position and re!ommended that the ri$ht of the poli!e to ma9e further investi$ation should #e statutoril' affirmed. The La ,ommission saidF "1+.60. 7 report under )e!tion 1/0 is normall' the end of the investi$ation. )ometimes- ho ever- the poli!e offi!er after su#mittin$ the report under )e!tion 1/0 !omes upon eviden!e #earin$ on the $uilt or inno!en!e of the a!!used. Ge should have thou$ht that the poli!e offi!er !an !olle!t that eviden!e and send it to the Aa$istrate !on!erned. &t appears- ho ever- that ,ourts have sometimes ta9en the narro vie that on!e a final report under )e!tion 1/0 has #een sent- the poli!e !annot tou!h the !ase a$ain and !annot re<open the investi$ation. This vie pla!es a hindran!e in the a' of the investi$atin$ a$en!'- hi!h !an #e ver' unfair to the prose!ution and- for that matter- even to the a!!used. &t should #e made !lear in )e!tion 1/0 that the !ompetent poli!e offi!er !an eEamine su!h eviden!e and send a report to the Aa$istrate. ,opies !on!ernin$ the fresh material must of !ourse #e furnished to the a!!used.4 7!!ordin$l'- in the ,rP,- 1./0- a ne 1/0(;)- as introdu!ed and it sa'sF provision- )e!tion

"Cothin$ in this se!tion shall #e deemed to pre!lude further investi$ation in respe!t of an offen!e after a report under su#<se!tion (6) has #een for arded to the Aa$istrate andhere upon su!h investi$ation- the offi!er in !har$e of the poli!e station o#tains further eviden!e- oral or do!umentar'- he shall for ard to the Aa$istrate a further report or reports re$ardin$ su!h eviden!e in the form pres!ri#edJ and the provisions of su#<se!tions (6) to (>) shall- as far as ma' #e- appl' in relation to su!h report or reports as the' appl' in relation to a report for arded under su#<se!tion (6).4

>.) &n Lallan !haudhary (su/ra$. this ,ourt held as underF

B8. )e!tion 1*+ of the ,ode thus !asts a statutor' dut' upon the poli!e offi!er to re$ister the !ase- as dis!losed in

63 Page 63

the !omplaint- and then to pro!eed ith the investi$ation. The mandate of )e!tion 1*+ is manifestl' !lear that if an' information dis!losin$ a !o$ni(a#le offen!e is laid #efore an offi!er in !har$e of a poli!e station- su!h poli!e offi!er has no other option eE!ept to re$ister the !ase on the #asis of su!h information. !. &n 0amesh Kumari v. State (.C1 of 2elhi# this ,ourt has held that the provision of )e!tion 1*+ is mandator'. Ien!e- the poli!e offi!er !on!erned is dut'<#ound to re$ister the !ase on re!eivin$ information dis!losin$ !o$ni(a#le offen!e. Genuineness or !redi#ilit' of the information is not a !ondition pre!edent for re$istration of a !ase. That !an onl' #e !onsidered after re$istration of the !ase. #0. The mandate of )e!tion 1*+ of the ,ode is that at the sta$e of re$istration of a !rime or a !ase on the #asis of the information dis!losin$ a !o$ni(a#le offen!e- the poli!e offi!er !on!erned !annot em#ar9 upon an in3uir' as to hether the information- laid #' the informant is relia#le and $enuine or other ise and refuse to re$ister a !ase on the $round that the information is not relevant or !redi#le. &n other ords- relia#ilit'- $enuineness and !redi#ilit' of the information are not the !onditions pre!edent for re$isterin$ a !ase under )e!tion 1*+ of the ,ode.4

7 perusal of the a#ove<referred Bud$ments !larif' that the reasona#leness or !redita#ilit' of the information is not a !ondition pre!edent for the re$istration of a !ase. Pr3l*,*.&r: I.F8*r: /:) Ar. Caphade relied on the follo in$ de!isions in support of his ar$uments that if the poli!e offi!er has a dou#t a#out the vera!it' of the a!!usation- he has to !ondu!t preliminar' in3uir'- vi(.- -.P. Roya//a vs. State of "amil adu (1./+) + ),, 0- (ane%a Gandhi

64 Page 64

(su/ra$- S.(.#. Kiran Pasha vs. Government of +ndhra Pradesh (1..:) 1 ),, 06;- #.K. Basu vs. State of 3.B. (1../) 1 ),, +1>- Uma Shan%ar Sitani vs. !ommissioner of Poli*e. #elhi & Ors. (1..>) 11 ),, /1+- Preeti Gu/ta (su/ra$- 6ran*is !oralie (ullin vs. +dministrator. Union "erritory of #elhi (1.;1) 1 ),, >:;- !ommon !ause. + Re&istered So*iety vs. Union of )ndia (1...) > ),, >>/- #istri*t Re&istrar and !olle*tor. Hydera'ad vs. !anara Ban% (6::*) 1 ),, +.> and Ranjitsin& Brahmajeetsin& Sharma vs. State of (aharashtra (6::*) * ),, 6.+. /1) Learned senior !ounsel for the )tate further ould

vehementl' !ontended that in appropriate !ases- it

#e proper for a poli!e offi!er- on re!eipt of a !omplaint of a !o$ni(a#le offen!e- to satisf' himself that prima facie the alle$ations levelled a$ainst the a!!used in the !omplaint are !redi#le. &n this re$ard- Ar. Caphade !ited the follo in$ de!isionsvi(. "a/an 2oshi Kumar Sin&h P.

(su/ra$-

Bha&1ant

Kishore

(su/ra$-

Sirajuddin (su/ra$- Sevi (su/ra$- Shashi%ant (su/ra$. Rajinder Sin&h Kato*h (su/ra$. 7ineet arain vs.

65 Page 65

Union of )ndia (1..;) 1 ),, 66>- -lumalai vs. State of "amil adu 1.;0 LG (,RL) 161- +. La%shmanarao vs.

2udi*ial (a&istrate. Parvati/uram 7&R 1./1 ), 1;>State of Uttar Pradesh vs. Ram Sa&ar 8adav & Ors. (1.;*) 1 ),, **6- (ona Pan1ar vs. Hi&h !ourt of 2udi*ature of +llaha'ad (6:11) 0 ),, +.>- +/ren 2ose/h vs. State of Kerala (1./0) 0 ),, 11+- Kin& -m/eror vs. Kh1aja a9ir +hmad 7&R 1.+* P, 1; and

Saran&dharsin&h Shivdassin&h !havan (su/ra$ . /6) Ie further pointed out that the provisions have to #e read in the li$ht of the prin!iple of malicious prosecution and the fundamental ri$hts $uaranteed under 7rti!les 1+1. and 61. &t is the stand of learned senior !ounsel that ever' !iti(en has a ri$ht not to #e su#Be!ted to mali!ious prose!ution and ever' poli!e offi!er has an in<#uilt dut' under )e!tion 1*+ to ensure that an inno!ent person is not falsel' impli!ated in a !riminal !ase. &f despite the fa!t

that the poli!e offi!er is not prima facie satisfied- as re$ards !ommission of a !o$ni(a#le offen!e and pro!eeds to re$ister an %&R and !arries out an investi$ation- it ould

result in puttin$ the li#ert' of a !iti(en in Beopard'.

66 Page 66

Therefore- learned senior !ounsel vehementl' pleaded for a preliminar' in3uir' #efore re$istration of %&R. /0) &n terms of the lan$ua$e used in )e!tion 1*+ of the ,ode- the poli!e is dut' #ound to pro!eed to !ondu!t investi$ation into a !o$ni(a#le offen!e even ithout

re!eivin$ information (i.e. %&R) a#out !ommission of su!h an offen!e- if the offi!er in !har$e of the poli!e station other ise suspe!ts the !ommission of su!h an offen!e. The le$islative intent is therefore 3uite !lear- i.e.- to ensure that ever' !o$ni(a#le offen!e is promptl'

investi$ated in a!!ordan!e

ith la . This #ein$ the le$al

position- there is no reason that there should #e an' dis!retion or option left re$ister an %&R ith the poli!e to re$ister or not to

hen information is $iven a#out the Dver' !o$ni(a#le ith

!ommission of a !o$ni(a#le offen!e.

offen!e must #e investi$ated promptl' in a!!ordan!e la

and all information provided under )e!tion 1*+ of the

,ode a#out the !ommission of a !o$ni(a#le offen!e must #e re$istered as an %&R so as to initiate an offen!e. The re3uirement of )e!tion 1*+ of the ,ode is onl' that the report must dis!lose the !ommission of a !o$ni(a#le

67 Page 67

offen!e and that is suffi!ient to set the investi$atin$ ma!hiner' into a!tion. /+) The insertion of su#<se!tion (0) of )e!tion 1*+- #' a' of an amendment- reveals the intention of the le$islature to ensure that no information of !ommission of a !o$ni(a#le offen!e must #e i$nored or not a!ted upon hi!h ould result in unBustified prote!tion of the alle$ed

offender@a!!used. /*) The maEim e3pression unius est e3clusion alterius (eEpression of one thin$ is the eE!lusion of another) applies in the interpretation of )e!tion 1*+ of the ,odehere the mandate of re!ordin$ the information in ritin$

eE!ludes the possi#ilit' of not re!ordin$ an information of !ommission of a !o$ni(a#le !rime in the spe!ial re$ister. />) Therefore!ondu!tin$ an investi$ation into an

offen!e after re$istration of %&R under )e!tion 1*+ of the ,ode is the "pro!edure esta#lished #' la 4 and- thus- is in !onformit' ith 7rti!le 61 of the ,onstitution.

7!!ordin$l'- the ri$ht of the a!!used under 7rti!le 61 of the ,onstitution is prote!ted if the %&R is re$istered first and then the investi$ation is !ondu!ted in a!!ordan!e

68 Page 68

ith the provisions of la . //) The term in3uir' as per )e!tion 6($) of the ,ode reads as underF
12(0) G B*.F8*r:H means ever' in3uir'- other than a trial- !ondu!ted under this ,ode #' a Aa$istrate or ,ourt.4

Ien!e- it is !lear that in3uir' under the ,ode is relata#le to a Budi!ial a!t and not to the steps ta9en #' the Poli!e hi!h are either investi$ation after the sta$e of )e!tion 1*+ of the ,ode or termed as 1Preliminar' &n3uir'2 and hi!h are prior to the re$istration of %&R- even thou$h- no entr' in the General ?iar'@)tation ?iar'@?ail' ?iar' has #een made. /;) Thou$h there is referen!e to the term 1preliminar' in3uir'2 and 1in3uir'2 under )e!tions 1*. and )e!tions 6:6 and 0+: of the ,ode- that is a Budi!ial eEer!ise underta9en #' the ,ourt and not #' the Poli!e and is not relevant for the purpose of the present referen!e. /.) 8esides- learned senior !ounsel relied on the spe!ial pro!edures pres!ri#ed under the ,8& manual to #e read into )e!tion 1*+. &t is true that the !on!ept of "preliminar'

69 Page 69

in3uir'4 is !ontained in ,hapter &K of the ,rime Aanual of the ,8&. Io ever- this ,rime Aanual is not a statute and has not #een ena!ted #' the le$islature. &t is a set of administrative orders issued for internal $uidan!e of the ,8& offi!ers. &t !annot supersede the ,ode. Aoreover- in the a#sen!e of an' indi!ation to the !ontrar' in the ,ode itself- the provisions of the ,8& ,rime Aanual !annot #e relied upon to import the !on!ept of holdin$ of preliminar' in3uir' in the s!heme of the ,ode of ,riminal Pro!edure. 7t this Bun!ture- it is also pertinent to su#mit that the ,8& is !onstituted under a )pe!ial 7!t- namel'- the ?elhi )pe!ial Poli!e Dsta#lishment 7!t- 1.+> and it derive its po er to investi$ate from this 7!t. ;:) &t ma' #e su#mitted that )e!tions +(6) and * of the ,ode permit spe!ial pro!edures to #e follo ed for spe!ial 7!ts. )e!tion + of the ,ode la's do n as underF
"S3/'*o. $. Tr*&l o" o""3./3) 8.73r '(3 I.7*&. P3.&l Co73 &.7 o'(3r l&6). (1) 7ll offen!es under the &ndian Penal ,ode (+* of 1;>:) shall #e investi$ated- in3uired into- triedand other ise dealt ith a!!ordin$ to the provisions hereinafter !ontained. (6) 7ll offen!es under an' other la shall #e investi$atedin3uired into- tried- and other ise dealt ith a!!ordin$ to the same provisions- #ut su#Be!t to an' ena!tment for the time #ein$ in for!e re$ulatin$ the manner or pla!e of investi$atin$in3uirin$ into- tr'in$ or other ise dealin$ ith su!h offen!es.4 70 Page 70

&t is thus !lear that for offen!es under la s other than &P,different provisions !an #e laid do n under a spe!ial 7!t to re$ulate the investi$ation- in3uir'- trial et!.- of those offen!es. )e!tion +(6) of the ,ode prote!ts su!h spe!ial provisions. ;1) Aoreover- )e!tion * of the ,ode la's do n as underF
"S3/'*o. . S&+*.0 < Cothin$ !ontained in this ,ode shall- in the a#sen!e of a spe!ifi! provision to the !ontrar'- affe!t an' spe!ial or lo!al la for the time #ein$ in for!e- or an' spe!ial Burisdi!tion or po er !onferred- or an' spe!ial form of pro!edure pres!ri#ed- #' an' other la for the time #ein$ in for!e.4

Thus- spe!ial provisions !ontained in the ?)PD 7!t relatin$ to the po ers of the ,8& are prote!ted also #' )e!tion * of the ,ode. ;6) &n vie of the a#ove spe!ifi! provisions in the ,ode-

the po ers of the ,8& under the ?)PD 7!t- !annot #e e3uated the ,ode. S*0.*"*/&./3 &.7 Co,53ll*.0 r30*)'r&'*o. o" FIR &' '(3 3&rl*3)' r3&)o.) "or ith the po ers of the re$ular )tate Poli!e under

;0) The o#Be!t sou$ht to #e a!hieved #' re$isterin$ the earliest information as %&R is inter alia t o foldF one- that the !riminal pro!ess is set into motion and is
71 Page 71

ell

do!umented from the ver' startJ and se!ond- that the earliest information re!eived in relation to the !ommission of a !o$ni(a#le offen!e is re!orded so that there !annot #e an' em#ellishment et!.- later. ;+) Prin!iples of demo!ra!' and li#ert' demand a re$ular and effi!ient !he!9 on poli!e po ers. One !he!9 on authorities a' of 9eepin$

ith su!h po ers is #' do!umentin$ 7!!ordin$l'- under the ,oderitten and

ever' a!tion of theirs.

a!tions of the poli!e et!.- are provided to #e

do!umented. %or eEample- in !ase of arrest under )e!tion +1(1)(#) of the ,ode- arrest memo alon$ has to #e in ith the $rounds

ritin$ mandatoril'J under )e!tion ** of the

,ode- if an offi!er is deputed to ma9e an arrest- then the superior offi!er has to et!.- for rite do n and re!ord the offen!e

hi!h the person is to #e arrestedJ under )e!tion ritten order has to #e passed #' the

.1 of the ,ode- a

!on!erned offi!er to see9 do!umentsJ under )e!tion 1>: of the ,ode- a ritten noti!e has to #e issued to the

itness so that he !an #e !alled for re!ordin$ of his@her statement- sei(ure memo@pan!hnama has to #e dra n for ever' arti!le sei(ed et!.

72 Page 72

;*) The poli!e is re3uired to maintain several re!ords in!ludin$ ,ase ?iar' as provided under )e!tion 1/6 of the ,ode- General ?iar' as provided under )e!tion ++ of the Poli!e 7!t et!.hi!h helps in do!umentin$ ever'

information !olle!ted- spot visited and all the a!tions of the poli!e offi!ers so that their a!tivities !an #e

do!umented.

Aoreover-

ever'

information

re!eived

relatin$ to !ommission of a non<!o$ni(a#le offen!e also has to #e re$istered under )e!tion 1** of the ,ode. ;>) The underpinnin$s of !ompulsor' re$istration of %&R is not onl' to ensure transparen!' in the !riminal Busti!e deliver' s'stem #ut also to ensure 1Budi!ial oversi$ht2. )e!tion 1*/(1) deplo's the ord 1forth ith2. Thus- an'

information re!eived under )e!tion 1*+(1) or other ise has to #e dul' informed in the form of a report to the Aa$istrate. Thus- the !ommission of a !o$ni(a#le offen!e is not onl' #rou$ht to the 9no led$e of the investi$atin$ a$en!' #ut also to the su#ordinate Budi!iar'. ;/) The ,ode !ontemplates t o 9inds of %&Rs. The dul' si$ned %&R under )e!tion 1*+(1) is #' the informant to the !on!erned offi!er at the poli!e station. The se!ond 9ind of
73 Page 73

%&R !ould #e

hi!h is re$istered #' the poli!e itself on an' a' of an informant

information re!eived or other than #'

L)e!tion 1*/(1)M and even this information has to #e dul' re!orded and the !op' should #e sent to the Aa$istrate forth ith. ;;) The re$istration of %&R either on the #asis of the information furnished #' the informant under )e!tion 1*+(1) of the ,ode or other ise under )e!tion 1*/(1) of the ,ode is o#li$ator'. The o#li$ation to re$ister %&R has inherent advanta$esF a) #) &t is the first step to 1a!!ess to Busti!e2 for a vi!tim. &t upholds the 1Rule of La 2 inasmu!h as the ordinar' person #rin$s forth the !ommission of a !o$ni(a#le !rime in the 9no led$e of the )tate. !) &t also fa!ilitates s ift investi$ation and sometimes even prevention of the !rime. &n #oth !ases- it

onl' effe!tuates the re$ime of la . d) &t leads to less manipulation in !riminal !ases and lessens in!idents of 1ante<dates2 %&R or deli#eratel' dela'ed %&R.
74 Page 74

;.) &n "hulia Kali vs. State of "amil ),, 0.0- this ,ourt held as underF<

adu (1./6) 0

"16N%irst information report in a !riminal !ase is an eEtremel' vital and valua#le pie!e of eviden!e for the purpose of !orro#oratin$ the oral eviden!e addu!ed at the trial. The importan!e of the a#ove report !an hardl' #e overestimated from the standpoint of the a!!used. The o#Be!t of insistin$ upon prompt lod$in$ of the report to the poli!e in respe!t of !ommission of an offen!e is to o#tain earl' information re$ardin$ the !ir!umstan!es in hi!h the !rime as !ommitted- the names of the a!tual !ulprits and the part pla'ed #' them as ell as the names of e'e itnesses present at the s!ene of o!!urren!e. ?ela' in lod$in$ the first information report 3uite often results in em#ellishment hi!h is a !reature of afterthou$ht. On a!!ount of dela'- the report not onl' $ets #ereft of the advanta$e of spontaneit'- dan$er !reeps in of the introdu!tion of !oloured versioneEa$$erated a!!ount or !on!o!ted stor' as a result of deli#eration and !onsultation. &t is- therefore- essential that the dela' in the lod$in$ of the first information report should #e satisfa!toril' eEplained...4

.:) &n "a/an Kumar Sin&h (su/ra$- it underF<

as held as

B20. &t is ell settled that a first information report is not an en!'!lopaedia- hi!h must dis!lose all fa!ts and details relatin$ to the offen!e reported. 7n informant ma' lod$e a report a#out the !ommission of an offen!e thou$h he ma' not 9no the name of the vi!tim or his assailant. Ie ma' not even 9no ho the o!!urren!e too9 pla!e. 7 first informant need not ne!essaril' #e an e'e itness so as to #e a#le to dis!lose in $reat detail all aspe!ts of the offen!e !ommitted. Ghat is of si$nifi!an!e is that the information $iven must dis!lose the !ommission of a !o$ni(a#le offen!e and the information so lod$ed must provide a #asis for the poli!e offi!er to suspe!t the !ommission of a !o$ni(a#le offen!e. 7t this sta$e it is enou$h if the poli!e offi!er on the #asis of the information $iven suspe!ts the !ommission of a !o$ni(a#le offen!e- and not that he must #e !onvin!ed or satisfied that a !o$ni(a#le offen!e

75 Page 75

has #een !ommitted. &f he has reasons to suspe!t- on the #asis of information re!eived- that a !o$ni(a#le offen!e ma' have #een !ommitted- he is #ound to re!ord the information and !ondu!t an investi$ation. 7t this sta$e it is also not ne!essar' for him to satisf' himself a#out the truthfulness of the information. &t is onl' after a !omplete investi$ation that he ma' #e a#le to report on the truthfulness or other ise of the information. )imilarl'- even if the information does not furnish all the details he must find out those details in the !ourse of investi$ation and !olle!t all the ne!essar' eviden!e. The information $iven dis!losin$ the !ommission of a !o$ni(a#le offen!e onl' sets in motion the investi$ative ma!hiner'- ith a vie to !olle!t all ne!essar' eviden!e- and thereafter to ta9e a!tion in a!!ordan!e ith la . The true test is hether the information furnished provides a reason to suspe!t the !ommission of an offen!ehi!h the poli!e offi!er !on!erned is empo ered under )e!tion 1*> of the ,ode to investi$ate. &f it does- he has no option #ut to re!ord the information and pro!eed to investi$ate the !ase either himself or depute an' other !ompetent offi!er to !ondu!t the investi$ation. The 3uestion as to hether the report is truehether it dis!loses full details re$ardin$ the manner of o!!urren!ehether the a!!used is named- and hether there is suffi!ient eviden!e to support the alle$ations are all matters hi!h are alien to the !onsideration of the 3uestion hether the report dis!loses the !ommission of a !o$ni(a#le offen!e. Dven if the information does not $ive full details re$ardin$ these matters- the investi$atin$ offi!er is not a#solved of his dut' to investi$ate the !ase and dis!over the true fa!ts- if he !an.4

.1) &n (adhu Bala (su/ra$- this ,ourt heldF

B6. ,omin$ first to the relevant provisions of the ,ode)e!tion 6(d) defines "!omplaint4 to mean an' alle$ation made orall' or in ritin$ to a Aa$istrate- ith a vie to his ta9in$ a!tion under the ,ode- that some person- hether 9no n or un9no n has !ommitted an offen!e- #ut does not in!lude a poli!e report. Under )e!tion 6(c) "!o$ni(a#le offen!e4 means an offen!e for hi!h- and "!o$ni(a#le !ase4 means a !ase in hi!h a poli!e offi!er ma' in a!!ordan!e ith the %irst )!hedule (of the ,ode) or under an' other la for the time #ein$ in for!e- arrest ithout a arrant. Under )e!tion 6(r) "poli!e report4 means a report

76 Page 76

for arded #' a poli!e offi!er to a Aa$istrate under su#< se!tion (6) of )e!tion 1/0 of the ,ode. ,hapter K&& of the ,ode !omprisin$ )e!tions 1*+ to 1/> relates to information to the poli!e and their po ers to investi$ate. )e!tion 1*+ provides- inter alia- that the offi!er in !har$e of a poli!e station shall redu!e into ritin$ ever' information relatin$ to the !ommission of a !o$ni(a#le offen!e $iven to him orall' and ever' su!h information if $iven in ritin$ shall #e si$ned #' the person $ivin$ it and the su#stan!e thereof shall #e entered in a #oo9 to #e 9ept #' su!h offi!er in su!h form as the )tate Government ma' pres!ri#e in this #ehalf. )e!tion 1*> of the ,ode ith hi!h e are primaril' !on!erned in these appeals reads as underFN. !. The mode and manner of re$istration of su!h !ases are laid do n in the Rules framed #' the different )tate Governments under the &ndian Poli!e 7!t- 1;>1. 7s in the instant !ase e are !on!erned ith PunBa# Poli!e Rules1.0+ ( hi!h are appli!a#le to PunBa#- Iar'ana- Iima!hal Pradesh and ?elhi) framed under the said 7!t e ma' no refer to the relevant provisions of those Rules. ,hapter KK&V of the said Rules la's do n the pro!edure an offi!er in !har$e of a poli!e station has to follo on re!eipt of information of !ommission of !rime. Under Rule 6+.1 appearin$ in the ,hapter ever' information !overed #' )e!tion 1*+ of the ,ode must #e entered in the %irst &nformation Report Re$ister and the su#stan!e thereof in the dail' diar'. Rule 6+.* sa's that the %irst &nformation Report Re$ister shall #e a printed #oo9 in %orm 6+.*(1) !onsistin$ of 6:: pa$es and shall #e !ompletel' filled #efore a ne one is !ommen!ed. &t further re3uires that the !ases shall #ear an annual serial num#er in ea!h poli!e station for ea!h !alendar 'ear. The other re3uirements of the said Rules need not #e detailed as the' have no relevan!e to the point at issue. #0. %rom the fore$oin$ dis!ussion it is evident that henever a Aa$istrate dire!ts an investi$ation on a "!omplaint4 the poli!e has to re$ister a !o$ni(a#le !ase on that !omplaint treatin$ the same as the %&R and !ompl' ith the re3uirements of the a#ove Rules. &t- thereforepasses our !omprehension as to ho the dire!tion of a Aa$istrate as9in$ the poli!e to "re$ister a !ase4 ma9es an order of investi$ation under )e!tion 1*>(0) le$all' unsustaina#le. &ndeed- even if a Aa$istrate does not pass a dire!tion to re$ister a !ase- still in vie of the provisions of )e!tion 1*>(1) of the ,ode hi!h empo ers the poli!e to investi$ate into a !o$ni(a#le "!ase4 and the Rules framed under the &ndian Poli!e 7!t- 1;>1 it (the poli!e) is dut'< #ound to formall' re$ister a !ase and then investi$ate into 77 Page 77

the same. The provisions of the ,ode- therefore- do not in an' a' stand in the a' of a Aa$istrate to dire!t the poli!e to re$ister a !ase at the poli!e station and then investi$ate into the same. &n our opinion hen an order for investi$ation under )e!tion 1*>(0) of the ,ode is to #e made the proper dire!tion to the poli!e ould #e "to re$ister a !ase at the poli!e station treatin$ the !omplaint as the first information report and investi$ate into the same4.

.6) 7!!ordin$ to the )tatement of O#Be!ts and Reasonsprote!tion of the interests of the poor is !learl' one of the main o#Be!ts of the ,ode. Aa9in$ re$istration of

information relatin$ to !ommission of a !o$ni(a#le offen!e mandator' ould help the so!iet'- espe!iall'- the poor in

rural and remote areas of the !ountr'. .0) The ,ommittee on Reforms of ,riminal =usti!e )'stem headed #' ?r. =usti!e V.). Aalimath also noti!ed the pli$ht fa!ed #' several people due to non<re$istration of %&Rs and re!ommended that a!tion should #e ta9en a$ainst poli!e offi!ers ho refuse to re$ister su!h

information. The ,ommittee o#servedF<

"/.1..1 7!!ordin$ to the )e!tion 1*+ of the ,ode of ,riminal Pro!edure- the offi!e in!har$e of a poli!e station is mandated to re$ister ever' information oral or ritten relatin$ to the !ommission of a !o$ni(a#le offen!e. Con<re$istration of !ases is a serious !omplaint a$ainst the poli!e. The Cational Poli!e ,ommission in its +th report lamented that the poli!e "evade re$isterin$ !ases for ta9in$ up investi$ation here spe!ifi! !omplaints are lod$ed at the poli!e stations4. &t referred to a stud' !ondu!ted #' the &ndian &nstitute of Pu#li! 78 Page 78

Opinion- Ce ?elhi re$ardin$ "&ma$e of the Poli!e in &ndia4 hi!h o#served that over *:P of the respondents mention non<re$istration of !omplaints as a !ommon pra!ti!e in poli!e stations. /.1..6 The ,ommittee re!ommends that all !omplaints should #e re$istered promptl'- failin$ hi!h appropriate a!tion should #e ta9en. This ould ne!essitate !han$e in the mind Q set of the politi!al eEe!utive and that of senior offi!ers. /.1..+ There are t o more aspe!ts relatin$ to re$istration. The first is minimi(ation of offen!es #' the poli!e #' a' of not invo9in$ appropriate se!tions of la . Ge disapprove of this tenden!'. 7ppropriate se!tions of la should #e invo9ed in ea!h !ase unmindfull of the $ravit' of offen!es involved. The se!ond issue is relatin$ to the re$istration of ritten !omplaints. There is an in!reasin$ tenden!' amon$st the poli!e station offi!ers to advise the informants- ho !ome to $ive oral !omplaints- to #rin$ ritten !omplaints. This is ron$. Re$istration is dela'ed resultin$ in valua#le loss of time in laun!hin$ the investi$ation and apprehension of !riminals. 8esidesthe !omplainant $ets an opportunit' to !onsult his friends- relatives and sometimes even la 'ers and often tends to eEa$$erate the !rime and impli!ate inno!ent persons. This eventuall' has adverse effe!t at the trial. The information should #e redu!ed in ritin$ #' the )Iif $iven orall'- ithout an' loss of time so that the first version of the alle$ed !rime !omes on re!ord. /.6:.11 &t has !ome to the noti!e of the ,ommittee that even in !o$ni(a#le !ases 3uite often the Poli!e offi!ers do not entertain the !omplaint and send the !omplainant a a' sa'in$ that the offen!e is not !o$ni(a#le. )ometimes the poli!e t ist fa!ts to #rin$ the !ase ithin the !o$ni(a#le !ate$or' even thou$h it is non<!o$ni(a#le- due to politi!al or other pressures or !orruption. This mena!e !an #e stopped #' ma9in$ it o#li$ator' on the poli!e offi!er to re$ister ever' !omplaint re!eived #' him. 8rea!h of this dut' should #e!ome an offen!e punisha#le in la to prevent misuse of the po er #' the poli!e offi!er.4

.+) &t means that the num#er of %&Rs not re$istered is approEimatel' e3uivalent to the num#er of %&Rs a!tuall'

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re$istered. Keepin$ in vie

the C,R8 fi$ures that sho ere re$istered in

that a#out >: la9h !o$ni(a#le offen!es

&ndia durin$ the 'ear 6:16- the #ur9in$ of !rime ma' itself #e in the ran$e of a#out >: la9h ever' 'ear. Thus- it is seen that su!h a lar$e num#er of %&Rs are not re$istered ever' 'earhi!h is a !lear violation of the ri$hts of the

vi!tims of su!h a lar$e num#er of !rimes. .*) 8ur9in$ of !rime leads to dilution of the rule of la in

the short runJ and also has a ver' ne$ative impa!t on the rule of la in the lon$ run sin!e people stop havin$

respe!t for rule of la . Thus- non<re$istration of su!h a lar$e num#er of %&Rs leads to a definite la lessness in the so!iet'. .>) Therefore- readin$ )e!tion 1*+ in an' other form ould not onl' #e detrimental to the )!heme of the ,ode #ut also to the so!iet' as a hole. &t is thus seen that this

,ourt has repeatedl' held in various de!ided !ases that re$istration of %&R is mandator' if the information $iven to the poli!e under )e!tion 1*+ of the ,ode dis!loses the !ommission of a !o$ni(a#le offen!e.

80 Page 80

I) '(3r3 & l*=3l*(oo7 o" ,*)8)3 o" '(3 5ro+*)*o.I ./) 7nother- stimulatin$ ar$ument raised in support of preliminar' in3uir' is that mandator' re$istration of %&Rs ill lead to ar#itrar' arresthi!h ill dire!tl' #e in

!ontravention of 7rti!le 61 of the ,onstitution. .;) Ghile re$istration of %&R is mandator'- arrest of the a!!used immediatel' on re$istration of %&R is not at all mandator'. &n fa!t- re$istration of %&R and arrest of an

a!!used person are t o entirel' different !on!epts under the la - and there are several safe$uards availa#le a$ainst arrest. Aoreover- it is also pertinent to mention that an a!!used person also has a ri$ht to appl' for "anti!ipator' #ail4 under the provisions of )e!tion +0; of the ,ode if the !onditions mentioned therein are satisfied. Thus- in appropriate !ases- he !an avoid the arrest under that provision #' o#tainin$ an order from the ,ourt. ..) &t is also relevant to note that in 2o&inder Kumar vs. State of U.P. & Ors. (1..+) + ),, 6>:- this ,ourt has held that arrest !annot #e made #' poli!e in a routine manner. )ome important o#servations are reprodu!ed as

81 Page 81

underF<
"6:NCo arrest !an #e made in a routine manner on a mere alle$ation of !ommission of an offen!e made a$ainst a person. &t ould #e prudent for a poli!e offi!er in the interest of prote!tion of the !onstitutional ri$hts of a !iti(en and perhaps in his o n interest that no arrest should #e made ithout a reasona#le satisfa!tion rea!hed after some investi$ation as to the $enuineness and #ona fides of a !omplaint and a reasona#le #elief #oth as to the person2s !ompli!it' and even so as to the need to effe!t arrest. ?en'in$ a person of his li#ert' is a serious matter. The re!ommendations of the Poli!e ,ommission merel' refle!t the !onstitutional !on!omitants of the fundamental ri$ht to personal li#ert' and freedom. 7 person is not lia#le to arrest merel' on the suspi!ion of !ompli!it' in an offen!e. There must #e some reasona#le Bustifi!ation in the opinion of the offi!er effe!tin$ the arrest that su!h arrest is ne!essar' and Bustified. DE!ept in heinous offen!es- an arrest must #e avoided if a poli!e offi!er issues noti!e to person to attend the )tation Iouse and not to leave the )tation ithout permission ould do.4

1::) The re$istration of %&R under )e!tion 1*+ of the ,ode and arrest of an a!!used person under )e!tion +1 are t o entirel' different thin$s. &t is not !orre!t to sa' that Bust #e!ause %&R is re$istered- the a!!used person !an #e arrested immediatel'. &t is the ima$inar' fear that ould re3uire

"merel' #e!ause %&R has #een re$istered- it

arrest of the a!!used and there#' leadin$ to loss of his reputation4 and it should not #e allo ed #' this ,ourt to hold that re$istration of %&R is not mandator' to avoid su!h in!onvenien!e to some persons. The remed' lies in stri!tl' enfor!in$ the safe$uards availa#le a$ainst
82 Page 82

ar#itrar' arrests made #' the poli!e and not in allo in$ the poli!e to avoid mandator' re$istration of %&R hen the

information dis!loses !ommission of a !o$ni(a#le offen!e. 1:1) This !an also #e seen from the fa!t that )e!tion 1*1 of the ,ode allo s a poli!e offi!er to arrest a person- even #efore the !ommission of a !o$ni(a#le offen!e- in order to prevent the !ommission of that offen!e- if it !annot #e prevented other ise. )u!h preventive arrests !an #e valid for 6+ hours. Io ever- a Aaharashtra )tate amendment to )e!tion 1*1 allo s the !ustod' of a person in that )tate even for up to a period of 0: da's ( ith the order of the =udi!ial Aa$istrate) even #efore a !o$ni(a#le offen!e is !ommitted in order to prevent !ommission of su!h offen!e. Thus- the arrest of a person and re$istration of %&R are not dire!tl' and@or irreversi#l' lin9ed and the' are entirel' different !on!epts operatin$ under entirel'

different parameters. On the other hand- if a poli!e offi!er misuses his po er of arrest- he !an #e tried and punished under )e!tion 1>>. 1:6) 8esides- the ,ode $ives po er to the poli!e to !lose a matter #oth #efore and after investi$ation. 7 poli!e
83 Page 83

offi!er !an fore!lose an %&R #efore an investi$ation under )e!tion 1*/ of the ,ode- if it appears to him that there is no suffi!ient $round to investi$ate the same. The )e!tion itself states that a poli!e offi!er !an start investi$ation hen he has a 1reason to suspect the commission of an offence2. Therefore- the re3uirements of laun!hin$ an

investi$ation under )e!tion 1*/ of the ,ode are hi$her than the re3uirement under )e!tion 1*+ of the ,ode. The poli!e offi!er !an also- in a $iven !ase- investi$ate the matter and then file a final report under )e!tion 1/0 of the ,ode see9in$ !losure of the matter. Therefore- the poli!e is not lia#le to laun!h an investi$ation in ever' %&R hi!h

is mandatoril' re$istered on re!eivin$ information relatin$ to !ommission of a !o$ni(a#le offen!e. 1:0) Li9e ise- $ivin$ po er to the poli!e to !lose an investi$ation- )e!tion 1*/ of the ,ode also a!ts li9e a !he!9 on the poli!e to ma9e sure that it is dispensin$ its fun!tion of investi$atin$ !o$ni(a#le offen!es. #een re!orded in the +1st Report of the La This has

,ommission of

&ndia on the ,ode of ,riminal Pro!edure- 1;.; as follo s F

"1+.1NN.&f the offen!e does not appear to #e serious

84 Page 84

and if the station<house offi!er thin9s there is no suffi!ient $round for startin$ an investi$ation- he need not investi$ate #ut- here a$ain- he has to send a report to the Aa$istrate ho !an dire!t the poli!e to investi$ate- or if the Aa$istrate thin9s fit- hold an in3uir' himself.4 "1+.6. 7 noti!ea#le feature of the s!heme as outlined a#ove is that a Aa$istrate is 9ept in the pi!ture at all sta$es of the poli!e investi$ation- #ut he is not authori(ed to interfere ith the a!tual investi$ation or to dire!t the poli!e ho that investi$ation is to #e !ondu!ted.4

Therefore- the )!heme of the ,ode not onl' ensures that the time of the poli!e should not #e asted on false and

frivolous information #ut also that the poli!e should not intentionall' refrain from doin$ their dut' of investi$atin$ !o$ni(a#le offen!es. 7s a result- the apprehension of misuse of the provision of mandator' re$istration of %&R is unfounded and spe!ulative in nature. 1:+) &t is the stand of Ar. Caphade- learned senior !ounsel for the )tate of Aaharashtra that hen an inno!ent person

is falsel' impli!ated- he not onl' suffers from loss of reputation #ut also from mental tension and his personal li#ert' is seriousl' impaired. Ie relied on the (ane%a Gandhi (su/ra$hi!h held the proposition that the la

hi!h deprives a person of his personal li#ert' must #e

85 Page 85

reasona#le #oth from the stand point of su#stantive as ell as pro!edural aspe!t is no firml' esta#lished in our

,onstitutional la . Therefore- he pleaded for a fresh loo9 at )e!tion 1*+ of the ,odeof the ,ode in !onformit' 1:*) hi!h interprets )e!tion 1*+

ith the mandate of 7rti!le 61.

&t is true that a deli!ate #alan!e has to #e

maintained #et een the interest of the so!iet' and prote!tin$ the li#ert' of an individual. 7s alread'

dis!ussed a#ove- there are alread' suffi!ient safe$uards provided in the ,ode hi!h dul' prote!t the li#ert' of an

individual in !ase of re$istration of false %&R. 7t the same time- )e!tion 1*+ as drafted 9eepin$ in mind the interest e are of the

of the vi!tim and the so!iet'. Therefore!o$ent vie

that mandator' re$istration of %&Rs under ill not #e in !ontravention of

)e!tion 1*+ of the ,ode

7rti!le 61 of the ,onstitution as purported #' various !ounsel. EJ/35'*o.)9 1:>) 7lthou$he- in une3uivo!al terms- hold that )e!tion

1*+ of the ,ode postulates the mandator' re$istration of

86 Page 86

%&Rs on re!eipt of all !o$ni(a#le offen!e- 'et- there ma' #e instan!es here preliminar' in3uir' ma' #e re3uired ith

o in$ to the !han$e in $enesis and novelt' of !rimes

the passa$e of time. One su!h instan!e is in the !ase of alle$ations relatin$ to medi!al ne$li$en!e on the part of do!tors. &t ill #e unfair and ine3uita#le to prose!ute a

medi!al professional onl' on the #asis of the alle$ations in the !omplaint. 1:/) &n the !onteEt of medi!al ne$li$en!e !ases- in 2a*o' (athe1 (su/ra$- it as held #' this ,ourt as underF

B #. Ge ma' not #e understood as holdin$ that do!tors !an never #e prose!uted for an offen!e of hi!h rashness or ne$li$en!e is an essential in$redient. 7ll that e are doin$ is to emphasise the need for !are and !aution in the interest of so!iet'J for- the servi!e hi!h the medi!al profession renders to human #ein$s is pro#a#l' the no#lest of all- and hen!e there is a need for prote!tin$ do!tors from frivolous or unBust prose!utions. Aan' a !omplainant prefer re!ourse to !riminal pro!ess as a tool for pressurisin$ the medi!al professional for eEtra!tin$ un!alled for or unBust !ompensation. )u!h mali!ious pro!eedin$s have to #e $uarded a$ainst. 2. )tatutor' rules or eEe!utive instru!tions in!orporatin$ !ertain $uidelines need to #e framed and issued #' the Government of &ndia and@or the )tate Governments in !onsultation ith the Aedi!al ,oun!il of &ndia. )o lon$ as it is not done- e propose to la' do n !ertain $uidelines for the future hi!h should $overn the prose!ution of do!tors for offen!es of hi!h !riminal rashness or !riminal ne$li$en!e is an in$redient. 7 private !omplaint ma' not #e entertained unless the !omplainant has produ!ed prima facie eviden!e #efore the !ourt in the form of a !redi#le opinion $iven #'

87 Page 87

another !ompetent do!tor to support the !har$e of rashness or ne$li$en!e on the part of the a!!used do!tor. The investi$atin$ offi!er should- #efore pro!eedin$ a$ainst the do!tor a!!used of rash or ne$li$ent a!t or omission- o#tain an independent and !ompetent medi!al opinion prefera#l' from a do!tor in $overnment servi!e- 3ualified in that #ran!h of medi!al pra!ti!e ho !an normall' #e eEpe!ted to $ive an impartial and un#iased opinion appl'in$ the Bolam. test to the fa!ts !olle!ted in the investi$ation. 7 do!tor a!!used of rashness or ne$li$en!e- ma' not #e arrested in a routine manner (simpl' #e!ause a !har$e has #een levelled a$ainst him). Unless his arrest is ne!essar' for furtherin$ the investi$ation or for !olle!tin$ eviden!e or unless the investi$atin$ offi!er feels satisfied that the do!tor pro!eeded a$ainst ould not ma9e himself availa#le to fa!e the prose!ution unless arrested- the arrest ma' #e ithheld.4

1:;) &n the !onteEt of offen!es relatin$ to !orruption- this ,ourt in P. Sirajuddin (su/ra$ eEpressed the need for a preliminar' in3uir' #efore pro!eedin$ a$ainst pu#li! servants. 1:.) )imilarl'- in "a/an Kumar Sin&h (su/ra$- this ,ourt has validated a preliminar' in3uir' prior to

re$isterin$ an %&R onl' on the $round that at the time the first information is re!eived- the same does not dis!lose a !o$ni(a#le offen!e. 11:) Thereforere$ardin$ in vie or of various !ounter !laims hat is

re$istration

non<re$istration-

ne!essar' is onl' that the information $iven to the poli!e

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must dis!lose the !ommission of a !o$ni(a#le offen!e. &n su!h a situation- re$istration of an %&R is mandator'. Io ever- if no !o$ni(a#le offen!e is made out in the information $iven- then the %&R need not #e re$istered immediatel' and perhaps the poli!e !an !ondu!t a sort of preliminar' verifi!ation or in3uir' for the limited purpose of as!ertainin$ as to #een !ommitted. hether a !o$ni(a#le offen!e has

8ut- if the information $iven !learl'

mentions the !ommission of a !o$ni(a#le offen!e- there is no other option #ut to re$ister an %&R forth ith. Other !onsiderations are not relevant at the sta$e of re$istration of %&R- su!h ashether the hether the information is falsel' $iveninformation is $enuinehether the

information is !redi#le et!. These are the issues that have to #e verified durin$ the investi$ation of the %&R. 7t the sta$e of re$istration of %&Rhat is to #e seen is merel'

hether the information $iven e3 facie dis!loses the !ommission of a !o$ni(a#le offen!e. &f- after investi$ationthe information $iven is found to #e false- there is al a's an option to prose!ute the !omplainant for filin$ a false %&R.

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Co./l8)*o.DD*r3/'*o.)9 111) &n vie (i) of the aforesaid dis!ussione holdF

Re$istration of %&R is mandator' under )e!tion 1*+ of the ,odeof if a the information offen!e in dis!loses and su!h no a

!ommission preliminar' situation. (ii)

!o$ni(a#le is

in3uir'

permissi#le

&f the information re!eived does not dis!lose a !o$ni(a#le offen!e #ut indi!ates the ne!essit' for an in3uir'- a preliminar' in3uir' ma' #e !ondu!ted onl' to as!ertain dis!losed or not. hether !o$ni(a#le offen!e is

(iii)

&f the in3uir' dis!loses the !ommission of a !o$ni(a#le offen!e- the %&R must #e re$istered. &n !ases here preliminar' in3uir' ends in !losin$ the

!omplaint- a !op' of the entr' of su!h !losure must #e supplied to the first informant forth ith and not later than one ee9. &t must dis!lose

reasons in #rief for !losin$ the !omplaint and not pro!eedin$ further.
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(iv) The poli!e offi!er re$isterin$ offen!e

!annot avoid his dut' if !o$ni(a#le offen!e

of is

dis!losed. 7!tion must #e ta9en a$ainst errin$ offi!ers ho do not re$ister the %&R if information

re!eived #' him dis!loses a !o$ni(a#le offen!e. (v) The s!ope of preliminar' in3uir' is not to verif' the vera!it' or other ise of the information re!eived #ut onl' to as!ertain hether the information

reveals an' !o$ni(a#le offen!e. (vi) 7s to hat t'pe and in hi!h !ases preliminar' ill depend on the fa!ts

in3uir' is to #e !ondu!ted

and !ir!umstan!es of ea!h !ase. The !ate$or' of !ases in hi!h preliminar' in3uir' ma' #e made

are as underF (a) Aatrimonial disputes@ famil' disputes (#) ,ommer!ial offen!es (!) Aedi!al ne$li$en!e !ases (d) ,orruption !ases (e) ,ases here there is a#normal dela'@la!hes in

initiatin$ !riminal prose!ution- for eEample- over 0 months dela' in reportin$ the matter ithout

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satisfa!toril' eEplainin$ the reasons for dela'. The aforesaid are onl' illustrations hi!h ma' and not

eEhaustive of all !onditions preliminar' in3uir'.

arrant

(vii) Ghile ensurin$ and prote!tin$ the ri$hts of the a!!used and the !omplainanta preliminar'

in3uir' should #e made time #ound and in an' !ase it should not eE!eed / da's. The fa!t of su!h dela' and the !auses of it must #e refle!ted in the General ?iar' entr'. (viii) )in!e the General ?iar'@)tation ?iar'@?ail' ?iar' is the re!ord of all information re!eived in a poli!e statione dire!t that all information relatin$ to offen!eshether resultin$ in

!o$ni(a#le

re$istration of %&R or leadin$ to an in3uir'- must #e mandatoril' and meti!ulousl' refle!ted in the said ?iar' and the de!ision to !ondu!t a preliminar' in3uir' must also #e refle!ted- as mentioned a#ove.

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116) Gith

the a#ove dire!tions-

e dispose of the

referen!e made to us.

List all the matters #efore the

appropriate 8en!h for disposal on merits.

NNNNNNNNNNNN,=&. (P. SATHASI<AM) NNNN.NNNNNNNN=. (DR. B.S. CHAUHAN) NNNN.NNNNNNNNN=. (RANJANA PRA;ASH DESAI) NNN.NNNNNNNNN=. (RANJAN GOGOI) NNNN.NNNNNNNN=. (S.A. BOBDE) CDG ?DLI&J COVDA8DR 16- 6:10.

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