SUPREME COURT OF INDIA
Y.V. CHANDRACHUD, CJI., P.N. BHAGWATI, N.L. UNTWALIA, S. MURTAZA FAZAL ALI AND R.S. PATHAK, JJ.
M. Karunanidhi, Appellant
Versus
Union of India, Respondent.
Criminal Appeals Nos. 270-271 of 1977, D/- 20-2-1979.
Advocates appeared
Mr. K. K. Venugopal, Sr. Advocate (M/s. N. A. Subramaniam, C. S. Vaidyanathan, Mrs. Shanta Venugopal, Mr. K. R. Choudhary and Mrs. Veena Devi Khanna, Advocates with him), for Appellant; Mr. S. N. Kackkar, Sol. Genl. (in Cr. A. No. 270 of 1977) (M/s. R. B. Datar and R. N. Sachthey, Advocates with him), for Respondent; Mr. V. P. Raman, Advocate General (Mr. A. V. Rangam, Advocate with him), for the State of Tamil Nadu.
Constitution of India, 1950 – Article 254 – Tamil Nadu Public Men (Criminal Misconduct) Act, 1973 – Code of Criminal Procedure, 1973 – Sections 239, 197, 199 – Prevention of Corruption Act – Section 5 – Penal Code, 1860 – Sections 21, 161, 468, 471 – Refusal of Discharge – Appeals by certificate are directed against an common order of the Madras High Court dismissing the applications filed before the High Court by the appellant for quashing the order of the Special Judge, refusing to discharge the appellant under Section 239 of the Code of Criminal Procedure – Held, Solicitor General placed reliance on the decision of this Court in the case of Dattatraya Narayan v. State of Maharashtra, 1975 Supp SCR 145 where this Court had held in a slightly different context that a Minister was a public servant, Mr. Venu Gopal has, however, distinguished this decision on the ground that this Court proceeded on the assumption that it was not disputed before the Court that the Minister was a Public Servant and the case having been decided on the concession of the parties cannot be relied upon by the Solicitor General. – Holder of a public office such as the Chief Minister is a public servant in respect of whom the Constitution provides that he will get his salary from the Government Treasury so long he holds his office on account of the public service that he discharges – Salary given to the Chief Minister is conterminous with his office and is not paid like other constitutional functionaries such as the President and the Speaker – These facts, therefore, point to one and only one conclusion and that is that the Chief Minister is in the pay of the Government and is, therefore, a public servant within the meaning of S. 21 (12) of the Penal Code. – Court is satisfied that a Chief Minister or a Minister is undoubtedly a public servant as defined in Section 21 (12) (a) of the Penal Code and the view taken by the High Court on this point was absolutely correct in law – Appeals Dismissed
M Karunanidhi's contentions in the case primarily revolved around the classification and status of the Chief Minister and other Ministers as public servants under the relevant laws. He argued that:
The office of the Chief Minister is a constitutional position that is independent of the legislative and executive branches, and therefore, should not be considered a public servant within the meaning of the applicable statutes (!) .
The remuneration and duties of the Chief Minister are determined by constitutional provisions and are not solely governed by statutory definitions, which might exclude such constitutional office-holders from being classified as public servants (!) .
The legislative provisions at the state level, which seek to classify public officials, do not automatically extend to include constitutional office-holders like the Chief Minister, as their status is fundamentally different from that of ordinary public servants (!) .
The laws enacted at the state level, particularly those relating to investigation and prosecution of public misconduct, should not be interpreted as infringing upon the constitutional independence and privileges of the office of the Chief Minister and Ministers (!) .
There is a need to interpret the statutes in a manner that respects the constitutional hierarchy, ensuring that the classification of the Chief Minister as a public servant does not undermine the constitutional scheme of governance and the functional independence of constitutional offices (!) .
The State legislation creating additional offences and procedures should operate in harmony with central laws, and should not be construed as creating conflicts that would diminish the constitutional immunity or independence of the office of the Chief Minister (!) .
In essence, M Karunanidhi contended that the constitutional office of the Chief Minister should not be equated with ordinary public servants for legal and procedural purposes, emphasizing the constitutional distinctions and the importance of maintaining the constitutional balance of powers.
Judgment
FAZAL ALI, J. :- These two appeals by certificate are directed against an common order of the Madras High Court dated 10th May, 1977 dismissing the applications filed before the High Court by the appellant for quashing the order of the Special Judge, Madras dated 4th January, 1977 refusing to discharge the appellant under Section 239 of the Code of Criminal Procedure (hereinafter referred to as the Code).
2. The facts of the case have been detailed in the judgment of the High Court and it is not necessary for us to repeat the same all over again. However, in order to understand the points in issue, it may be necessary to give a resume of the important stages through which the case has passed and the constitutional points argued before us.
3. The appellant, M. Karunanidhi, was a former Chief Minister of Tamil Nadu and was the petitioner before the High Court in the applications filed by him before the High Court. On 15-6-1976 a D. O. letter was written by the Chief Secretary to the Government of Tamil Nadu to the Deputy Inspector General of Police, CBI requesting him to make a detailed investigation into certain allegations against the appellant and others who were alleged to have abused their official position in the matter of purchase of wheat from Punjab. A first information report was accordingly recorded on 16-6-1976 and four months later sanction under Section 197 of the Code was granted by the Governor of Tamil Nadu for the prosecution of the appellant under Sections 161, 468 and 471 of the Indian Penal Code and Section 5 (2) read with Section 5 (1) (d) of the Prevention of Corruption Act (hereinafter referred to as the Corruption Act). Thereafter, the police submitted a charge-sheet against the appellant for the offences mentioned above a alleged that the appellant had derived for himself pecuniary advantage to the extent of Rs. 4 to Rs. 5 lakhs firm Madanlal Gupta for passing favourable order in respect of some firms. The case was registered before the Special Judge and the necessary copies of the records were furnished to the appellant. The appellant on appearing before the Special Judge filed an application for discharging him under Section 239 of the Code on the ground that the prosecution against him suffered from various legal and constitutional infirmities. The Special Judge, however, after hearing counsel for the parties rejected the application of the appellant as a result of which the appellant filed two applications in the High Court for quashing the proceedings and for setting aside the order of the special Judge refusing to discharge the appellant. As indicated above, the High Court rejected the applications of the appellant but granted a certificate for leave to appeal to this Court and hence these appeals before us.
4. As far back as 30th December, 1973 the Madras Legislature had passed an Act known as the Tamil Nadu Public Men (Criminal Misconduct) Act, 1973 hereinafter referred to as the State Act. The State Act was passed after obtaining the assent of the President of India. This State Act was, however, amended by Act 16 of 1974 and the Presidents assent was received on 10th April, 1974. According to the provisions of the State Act the statute was brought into force by virtue of a notification with effect from 8-5-1974. According to the allegations made against the appellant, the acts said to have been committed by him fall within the period November 1974 to March 1975. On 31-1-1976 by virtue of the provisions of Article 356 Presidents rule was imposed in the State of Tamil Nadu and the Ministry headed by the appellant was dismissed and a Proclamation to this effect was issued on the same date. The High Court decided the petitions of the appellant on 10-5-1977 and granted a certificate for leave to appeal to this Court on 27-7-1977. Subsequently, however, the State Act was repealed and the Presidents assent to the repealing of the State Act was given on 6-9-1977. Thus, it is manifest that by the t
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