LOUREMBAM DEBEN SINGH Vs UNION OF INDIA
Bench: HON'BLE MR. JUSTICE MADAN B. LOKUR, HON'BLE MR. JUSTICE UDAY UMESH LALIT
Judgment by: HON'BLE MR. JUSTICE MADAN B. LOKUR
Case number: W.P.(Crl.) No.-000205 / 2018
Diary number: 30415 / 2018
Advocates: sachin sharma Vs
REPORTABLE
IN THE SUPREME COURT OF INDIA
CRIMINAL ORIGINAL JURISDICTION
CRL.M.P. NO. 125554 OF 2018
IN
WRIT PETITION (CRIMINAL) NO. 205 OF 2018
Lourembam Deben Singh & Ors. .… Petitioners
versus
Union of India & Ors. etc. …. Respondents
AND
CRL.M.P. NO. 125550 OF 2018
IN
WRIT PETITION (CRIMINAL) NO. 206 OF 2018
Raj Kumar Brojen & Ors. ….Petitioners
versus
Union of India & Ors. …Respondents
WITH
WRIT PETITION (CRIMINAL) NOS. 205 & 206 OF 2018
J U D G M E N T
Madan B. Lokur, J.
1. These writ petitions have been filed by some police personnel of
Manipur Police under Article 32 of the Constitution of India. We have
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been given to understand that these petitions have the support of a few
hundred officers from the Indian Army, the paramilitary forces and
Manipur Police. These petitions are a fall-out of the decision rendered by
us in Extra-Judicial Execution Victim Families Association v. Union of
India1 and subsequent orders passed therein by way of a continuing
mandamus. The prayer in the writ petitions is for an appropriate writ,
order or direction for quashing certain oral observations said to have been
made by us which, according to the petitioners, violate their rights
guaranteed by Article 21 of the Constitution. Pending a decision in the
writ petitions, it is prayed that we should not proceed with the continuing
mandamus in the case.
2. Interlocutory applications have also been moved in these writ
petitions specifically for a direction that we should recuse from hearing
these writ petitions which should be placed for consideration before
another Bench of this Court.
3. Submissions were made before us in the interlocutory applications
for recusal but we find no merit in these applications and therefore
dismiss them.
The background
4. On 8th July, 2016 we delivered judgement in Extra-Judicial
1 (2016) 14 SCC 536
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Execution Victim Families Association. v. Union of India. We noted the
allegations made in the writ petition in the following words:
“The allegations made in the writ petition concern what are described as fake encounters or extra-judicial executions said to have been carried out by Manipur Police and the Armed Forces of the Union, including the Army. According to the police and security forces, the encounters are genuine and the victims were militants or terrorists or insurgents killed in counter-insurgency or anti-terrorist operations. Whether the allegations are completely or partially true or are entirely rubbish and whether the encounter is genuine or not is yet to be determined, but in any case there is a need to know the truth.
The right to know the truth has gained increasing importance over the years. This right was articulated by the United Nations High Commissioner for Human Rights in the Sixty-second Session of the Human Rights Commission. In a study on the right to the truth, it was stated in Para 8 that though the right had its origins in enforced disappearances, it has gradually extended to include extra-judicial executions. This paragraph reads as follows:
“With the emergence of the practice of enforced disappearances in the 1970s, the concept of the right to the truth became the object of increasing attention from international and regional human rights bodies and special procedures mandate-holders. In particular, the ad hoc working group on human rights in Chile, the Working Group on Enforced or Involuntary Disappearances (WGEID) and the Inter-American Commission on Human Rights (IACHR) developed an important doctrine on this right with regard to the crime of enforced disappearances. These mechanisms initially based the legal source for this right upon Articles 32 and 33 of the Additional Protocol to the Geneva Conventions of 12-8-1949. Commentators have taken the same approach. However, although this right was initially referred to solely within the context of enforced disappearances, it has been gradually extended to other serious human rights violations, such as extra- judicial executions and torture. The Human Rights Committee has urged a State party to the International Covenant on Civil and Political Rights to guarantee that the victims of human rights violations know the truth with
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respect to the acts committed and know who the perpetrators of such acts were.” [ Promotion and Protection of Human Rights: Study on the right to the truth. Report of the Office of the United Nations High Commissioner for Human Rights; 8-2-2006. Commission on Human Rights, Sixty-second Session, Item 17 of the provisional agenda.]
It is necessary to know the truth so that the law is tempered with justice. The exercise for knowing the truth mandates ascertaining whether fake encounters or extra-judicial executions have taken place and if so, who are the perpetrators of the human rights violations and how can the next of kin be commiserated with and what further steps ought to be taken, if any.”
5. While concluding the decision, we observed that accurate and
complete information had not been made available in respect of each of
the cases that the Extra-Judicial Execution Victim Families Association or
EEVFAM had complained about. Accordingly, we observed and directed
as follows:
“Unfortunately, we have not been given accurate and complete information about each of the 1528 cases that the petitioners have complained about. Therefore, there is a need to obtain and collate this information before any final directions can be given. The learned amicus has told us that there are 15 cases out of 62 in which it has been held by the Justice Hegde Commission or by the judicial inquiries conducted at the instance of the Gauhati High Court that the encounters were faked. On the other hand, NHRC has informed us that there are 31 cases out of 62 in which it has been concluded that the encounters were not genuine and compensation awarded to the next of kin of the victims or the award of compensation is pending.
Therefore, as a first step, we direct:
Of the 62 cases that the petitioners have documented, their representative and the learned amicus will prepare a simple tabular statement indicating whether in each case a judicial
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enquiry or an inquiry by NHRC or an inquiry under the Commissions of Inquiry Act, 1952 has been held and the result of the inquiry and whether any first information report or complaint or petition has been filed by the next of kin of the deceased. We request NHRC to render assistance to the learned amicus in this regard. We make it clear that since a magisterial enquiry is not a judicial inquiry and, as mentioned above, it is not possible to attach any importance to the magisterial enquiries, the tabular statement will not include magisterial enquiries.
The representative of the petitioners and the learned amicus will revisit the remaining cases (1528 minus 62) and carry out an identical exercise as above. This exercise is required to be conducted for eliminating those cases in which there is no information about the identity of the victim or the place of occurrence or any other relevant detail and then present an accurate and faithful chart of cases in a simple tabular form.”
6. Subsequently, on 14th July, 20172 we took up the matter again, inter
alia, for ascertaining whether the first step that we had directed in our
judgement and order of 8th July, 2016 had been acted upon. While
considering this, we recorded what could be described as the background
of the case in the following words:
“In the present petitions, the allegation was that 1528 persons had been killed in fake encounters by police personnel and personnel in uniform of the armed forces of the Union. By our judgment and order dated 8-7-2016 [Extra Judicial Execution Victim Families Assn. v. Union of India, (2016) 14 SCC 536: (2016) 14 SCC 578 (2)] we respectfully followed the view laid down by a Constitution Bench of this Court in Naga People's Movement of Human Rights v. Union of India [Naga People's Movement of Human Rights v. Union of India, (1998) 2 SCC 109]. The Constitution Bench held that an allegation of use of excessive force or retaliatory force by uniformed personnel resulting in the death of any person necessitates a thorough enquiry into the incident. We were of the opinion that even the “Dos and Don'ts” and the “Ten Commandments” of the Chief of Army
2 Extra Judicial Execution Victim Families Assn. v. Union of India, (2017) 8 SCC 417
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Staff believe in this ethos and accept this principle. However, after considering the submissions at law, we found that the documentation was inadequate to immediately order any inquiry into the allegations made by the petitioners and therefore directed them to complete the documentation indicating whether the allegations were based on any judicial enquiry or an enquiry conducted by the National Human Rights Commission or an enquiry conducted under the Commissions of Inquiry Act, 1952.
A tabular statement has since been filed by the learned counsel for the petitioners and this statement has been accepted by the learned Amicus Curiae and no objection was raised by the Union of India or by the State of Manipur. We therefore proceed on the basis of the tabular statement before us.
The petitioners have been able to gather information with regard to 655 deaths out of 1528 alleged in the writ petitions. The break- up is as follows:
Sl. No. Particulars No. of cases 1. Commissions of Inquiry cases 35 2. Judicial inquiry and High Court cases 37 3. NHRC cases 23 4. Cases with written complaint 170 5. Cases with oral complaint 78 6. Cases with eyewitnesses 134 7. Family claimed cases 178
Total number 655
We have perused the tabular statement given with regard to cases with written complaints, oral complaints and eyewitness accounts as well as family claimed cases but find that apart from a simple allegation being made, no substantive steps appear to have been taken by either lodging a first information report (FIR) or by filing a writ petition in the High Court concerned or making a complaint to the National Human Rights Commission (NHRC). The allegations being very general in nature, we do not think it appropriate to pass any direction for the time being in regard to the cases concerning these written complaints, oral complaints, cases with eyewitness accounts and family claimed cases. It is not that every single allegation must necessarily be inquired into. It must be remembered that we are not dealing with individual cases but a systemic or institutional response relating to constitutional criminal law.” (Emphasis supplied by us)
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7. Thereafter, having considered the case law and submissions made
by the learned Amicus and learned counsel for the parties including the
learned Attorney General, we held as follows:
“Having considered the issues in their entirety, we are of the opinion that it would be appropriate if the Central Bureau of Investigation (or CBI) is required to look into these fake encounters or use of excessive or retaliatory force. Accordingly, the Director of CBI is directed to nominate a group of five officers to go through the records of the cases mentioned in the three tables given above, lodge necessary FIRs and to complete the investigations into the same by 31-12-2017 and prepare charge-sheets, wherever necessary. The entire groundwork has already been done either by the Commissions of Inquiry or by a Judicial Inquiry or by the Gauhati or Manipur High Court or by NHRC. We leave it to the Special Investigation Team to utilise the material already gathered, in accordance with law. We expect the State of Manipur to extend full cooperation and assistance to the Special Investigation Team. We also expect the Union of India to render full assistance to the Special Investigation Team to complete the investigation at the earliest without any unnecessary hindrances or obstacles. The Director of CBI will nominate the team and inform us of its composition within two weeks.”
8. Notwithstanding the law laid down by a Constitution Bench of this
Court in Naga People’s Movement of Human Rights v. Union of India
and the explicit directions given by this Court in Extra-Judicial
Execution Victim Families Association v. Union of India [EEVFAM]
the CBI was seemingly following up rather casually and taking its own
time to complete investigations, which were required to be completed by
31st December, 2017 and prepare charge-sheets/final reports, wherever
necessary.
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9. In our order of 8th January, 2018, we noted that on 23rd November,
2017 the CBI had asked for increasing the strength of the Special
Investigation Team (SIT) and we acceded to that request. We noted that it
appeared to us that the matter was not being taken up by the CBI and the
SIT with the seriousness that it deserves.
10. Thereafter the EEVFAM case was adjourned a couple of times and
on 27th July 2018 we observed that no final report had been filed but
approval was granted in respect of one of them on 24th July, 2018 and in
respect of another, approval was granted on 26th July, 2018. Two other
cases were pending for approval. We also observed that the investigations
were taking an unduly long time and that we were not satisfied with the
progress made by the CBI so far. Consequently, we required the Director
of the CBI to let us know the steps that must be taken to ensure that the
investigations are completed early and final reports are filed as
expeditiously as possible. For this purpose, we required the personal
appearance of the Director of the CBI on 30th July, 2018.
11. On 30th July, 2018 the Director of the CBI appeared in Court. He
informed us that two charge-sheets had been filed in which there were 14
accused persons and all of them had been charged with an offence
punishable under Section 302 of the Indian Penal Code read with Section
120-B of the Indian Penal Code (murder and criminal conspiracy). It was
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also pointed out that these accused have also been charged with an
offence punishable under Section 201 of the Indian Penal Code (causing
disappearance of evidence of offence, or giving false information to
screen offender). He also informed us that some more final
reports/charge-sheets would be filed making a total of seven final
reports/charge-sheets. On 30th July, 2018 we also recorded the submission
of learned counsel for EEVFAM that since the accused persons have been
charged with offences punishable as above, they would normally be
arrested and that where investigations are going on in respect of similar
offences, custodial interrogation would be necessary. We recorded the
submission but left it entirely to the discretion of the Director of the CBI
and the SIT to take a call on whether arrests should be made and whether
custodial interrogation should be carried out. We may mention that we
have not been informed whether and if, as of now, any arrests have been
made and whether and if any custodial interrogation has been carried out.
The present applications
12. It is in the above background that during the continuing mandamus
hearing of the petition filed by EEVFAM on 30th July, 2018 certain oral
observations were made and attributed to us. We need not go into the
correctness of the text or otherwise of the observations made or into the
context in which they were made. The fact of the matter is that the
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observations said to have been made were widely reported in the press
with varying degrees of accuracy and completeness. The observations led
to the filing of the present two writ petitions. The prayer made in both the
writ petitions is identical. We are not, for the present, concerned with the
maintainability or otherwise of the writ petitions or the grant of final
relief to the petitioners herein. What we are concerned with are the
applications for directions moved in both the writ petitions. The prayer
made in these applications reads as follows:
“direct that the Hon’ble Bench comprising Hon’ble Mr. Justice Madan B. Lokur and Hon’ble Mr Justice Uday Umesh Lalit hearing of the present writ petition recuse itself and that the writ petition be placed for hearing by another Bench of this Hon’ble Court in accordance with law.”
13. In the applications, the petitioners make a reference to various
newspaper reports and it is submitted that the reported observations
coming from the highest court of the country have created a real
apprehension in the mind of the petitioners about the impartial manner in
which EEVFAM is being heard by this Court. It is further submitted that
hearing that case by another Bench of this Court is essential to subserve
the cause of justice but the prayer should not be construed as casting
aspersions on the Bench. It is further submitted and reiterated that there is
a real apprehension in the mind of the applicants about the manner in
which the Bench is proceeding with the case and it is submitted that the
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apprehension is not based on any ipse dixit but is based on reports of the
proceedings held on 30th July, 2018 widely reported in the print and
electronic media, which clearly shows that the ‘guilt’ of each and every
one of the applicants/petitioners has been prejudged, though only a police
report under Section 173(2) of the Criminal Procedure Code, 1973 has
been filed. The applicants/petitioners have referred to a few
decisions/case laws in the application and their learned counsel, during
the course of hearing of the application, referred to a few other decisions.
All this was supplemented by written submissions. The principal
decisions relied on were: (i) Manoj Narula v. Union of India3, (ii)
Usmangani Adambhai Vahora v. State of Gujarat4, (iii) Captain
Amarinder Singh v. Prakash Singh Badal5 and (iv) Supreme Court
Advocates-on-Record Association v. Union of India (Recusal Matter).6
Some decisions of foreign jurisdictions have also been referred to and
relied on.
Submissions
14. The learned Attorney General appearing on behalf of the Union of
India supported the prayer made in the applications but did not file any
written submissions. It was orally submitted by the learned Attorney
General that the observations made by this Court had a demoralising 3 (2014) 9 SCC 1 4 (2016) 3 SCC 370 5 (2009) 6 SCC 260 6 (2016) 5 SCC 808
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effect on the Indian Army, the paramilitary forces and the Manipur Police
or in any event, it had affected the morale of these forces in their fight
against insurgency.
15. In response to these submissions, it was contended by learned
counsel appearing on behalf of EEVFAM that the allegations made by the
petitioners were reckless and without reading the articles in the
newspapers. It was also submitted that the allegations hurled at the Court
were of a serious nature and ought to have been made after a careful
study and cross-checking the facts from those who were present in court,
but nothing of that sort seems to have been done in the present case. The
learned counsel then placed reliance upon a few decisions of this Court
on the subject of recusal of judges from a case. Apart from giving his
interpretation to the decisions cited by learned counsel for the
applicants/petitioners, it was submitted by learned counsel for EEVFAM
that the attempt of the applicants/petitioners was to put pressure on this
Court to keep its hands off the case.
16. Learned Amicus submitted that the applications filed by the
applicants/petitioners were mala fide and amounted to gross forum
shopping. It was submitted that the applications as well as the writ
petitions be dismissed with exemplary costs. It was submitted that even
though the learned Attorney General supported the prayer for recusal, he
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clarified that none of the parties were questioning the integrity or fairness
in the investigations carried out by the SIT appointed by the Director of
the CBI on the directions of this Court. She further submitted that the
contentions urged on behalf of the petitioners were based on a selective
reading of the news reports and even assuming what was attributed to this
Court was correct, the observations could not hamper or influence the
trial of the officers who are charge-sheeted. She pointed out that on the
issue of arrest of the accused persons, this Court had explicitly left the
matter to the discretion of the Director of the CBI and the SIT. She
submitted that learned counsel for the petitioners had a duty as an officer
of the court to refrain from making allegations of bias on flimsy grounds
particularly in view of the order passed on 30th July, 2018. Learned
Amicus referred to certain decisions on the subject of recusal and
submitted that given the peculiar circumstances of the case, monitoring
the investigation by the CBI or the SIT was necessary. Finally, it was
submitted that if the present applications are allowed, then in all cases
where judges of this Court make enquiries which are probing or even
inconvenient to one of the parties in the matter, they could be compelled
to recuse themselves. Learned Amicus drew attention to R.K. Anand v.
Registrar, Delhi High Court.7
7 (2009) 8 SCC 106
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17. The effective prayer of the applicants/petitioners is that in view of
the observations said to have been made by this Court on 30 th July, 2018
the investigations should be monitored by another set of judges of this
Court. Our recusal is sought on the ground that as a result of the
observations said to have been made, the applicants/petitioners have a
real apprehension that either the investigations or the trial (if any) would
be tainted to their prejudice.
18. Having heard the learned Attorney General, learned counsel and
learned Amicus and having gone through the written submissions filed,
we are of the view that the apprehension of the applicants/petitioners that
justice will not be done to them is misplaced if not unfounded.
Decision
19. The decisions referred to and relied upon have been fully
considered by us. The discussion on recusal has been exhaustively dealt
with in the cited decisions and there is nothing to add to it. But we find a
crucial distinguishing feature in the case of EEVFAM and the cited cases.
20. It is undeniable that the EEVFAM case pertains to allegations of
serious violations of the human rights of persons described as insurgents.
A large number of such persons were killed in operations carried out by
the Army, the paramilitary forces and the Manipur Police. Whether the
death/killing of such persons was justified or not is a matter of
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investigation by the SIT. It is nobody’s case that the CBI or the SIT was
not conducting fair investigations into the allegations. On the contrary,
the learned Attorney General submitted that the integrity or fairness of the
investigations were not in question. As mentioned above, no one disputed
this.
21. The distinguishing feature is this: The substantive legal and factual
issues raised in EEVFAM have already been decided by us and what
remains is the continuing mandamus requiring implementation of the
orders of the Court. During the hearing of EEVFAM and even after the
decision was rendered on substantive legal and factual issues, no
allegation of any bias of any sort or any apprehension that justice will not
be done or that anybody would be treated unfairly was made. It is only at
the continuing mandamus stage that the controversy is raised and that too
on the basis of certain observations said to have been made by this Court.
22. What is pending at the continuing mandamus stage is the
implementation of the orders of the court which necessitate a fair
investigation by the CBI and the SIT constituted by the Director of the
CBI. There is no allegation of any nature with respect to the impartiality
and integrity of the SIT. Indeed, the learned Attorney General made it
clear that no one was disputing the capability, expertise and fairness of
the CBI and the investigations carried out by the SIT.
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23. Even during the hearing of the applications and in the written
submissions, no doubt has been cast on the integrity and fairness of the
investigations. In any event, we make it clear that the law of the land is
quite explicit that no one, and that means no one, can interfere in the
investigations being carried out by the Investigating Officer or an
Investigating Team. This law is well settled and does not need any re-
consideration. The purpose of a continuing mandamus is only to ensure
that there is no interference during the course of investigations from
anybody, whether due to political pressure or executive pressure or any
other pressure (including, as it seems, ‘judicial pressure’) that could
compromise the investigations. It is only when the Investigating Officer
or the Investigating Team is given a free hand that the investigations will
be meaningful, fair and with integrity.
24. Yet another purpose of a continuing mandamus is to ensure that the
Investigating Officer or the Investigating Team (as the case may be) does
not deviate from the natural course of investigations for whatever reason,
either due to pressure or due to a misdirection or some other extraneous
reason. This is the limited role of a Constitutional Court in monitoring
investigations in a continuing mandamus.
25. Consequently, the apprehension that the observations said to have
been made by this Court on 30th July, 2018 would influence the SIT is
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erroneous.
26. It is equally clear that once the judicial process has begun with the
filing of the final report or charge sheet as the case may be, the concerned
court is in complete charge and full control of the proceedings. No one,
and that again means no one, can interfere in the course of judicial
proceedings otherwise it would amount to interference in the due course
of justice or the administration of justice. It is for this reason that when
investigations are complete and a final report or charge sheet is filed, the
Constitutional Court keeps its hands off any further progress in the
matter. We are fortunate to have an independent judiciary and as far as the
EEVFAM case is concerned there has been no allegation of any kind that
any Trial Judge dealing with the case has shown a lack of independence.
Interference in the due course of justice or the administration of justice
would lead to adverse consequences. Therefore, it is inappropriate for the
applicants/petitioners to harbour any apprehension that the Trial Judge(s)
would be influenced by the observations said to have been made by this
Court on 30th July, 2018. The applicants/petitioners are indirectly, perhaps
unwittingly, questioning the fairness and independence of the judiciary.
27. The upshot of this discussion is that there can be no interference in
investigations and the courts cannot brook any interference in the judicial
process. An exception may occur as we have noticed above, when there
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is an unjustified deviation from the natural course of investigations or
illegal interference in the judicial process. Such a situation would be rare
and would have to be dealt with on a case by case basis and it is to pre-
empt this that the Constitutional Courts monitor investigations on
extraordinary occasions. Consequently, the apprehension expressed by
the applicants/petitioners that due to the observations said to have been
made by this Court there would be interference in the investigations by
the SIT all interference in the due judicial process by the courses not real
or justified.
28. The decisions cited before us by learned counsel and learned
Amicus do not deal with or concern the situation confronting us.
29. A few other contentions have been urged before us by learned
counsel for the applicants/petitioners. It is submitted that the observations
said to have been made by this Court can impact on the decisions to be
taken by the SIT. We do not find any basis for any such apprehension.
The SIT is independent and so far, no allegation of unfairness has been
made against the functioning of the SIT. Observations made by this Court
or any court for that matter cannot impact on the investigations as long as
they are conducted by professionals and we have no doubt that the SIT
does consist of professionals who will not be swayed by any observations
made by this Court during the continuing mandamus process.
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30. It was also submitted and this submission was supported by the
learned Attorney General that the Indian Army, the paramilitary forces
and the Manipur Police have been demoralised by the observations made
by this Court. This is a rather overbroad submission. In any event, in our
opinion, it should be clear to everyone that officers and personnel of the
Indian Army, paramilitary forces and the State Police are made of much
sterner stuff than is sought to be projected and they can hardly be
demoralised by observations said to have been made by anybody. It is
unfortunate that a bogey of demoralization of the Indian Army,
paramilitary forces and the State Police is being raised. We are unable to
comprehend the reason for this. As mentioned earlier, the Indian Army,
paramilitary forces and the Manipur Police are made of sterner stuff and
are disciplined forces strong enough to take everything in their stride. To
contend that some observations said to have been made by this Court
have demoralized the Indian Army, the paramilitary forces and the
Manipur Police is suggestive of a weakness in them. Be that as it may,
this is really stretching the argument to the vanishing point.
31. That apart, there is no material to support the theory of the Indian
Army, paramilitary forces and the Manipur Police being demoralised. It is
only a submission made for some unfathomable reason.
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32. The continuing mandamus must go on and the independence and
integrity of the SIT and the judges dealing with the final reports/charge-
sheets must be maintained. Therefore, even though there is no reason for
the applicants/petitioners to entertain any doubt that the SIT or the
judiciary would be influenced by the observations said to have been made
by this Court, to remove any vestige of doubt, we make it absolutely clear
that any observations made or said to have been made on 30 th July, 2018
during the implementation of the orders of this Court through a
continuing mandamus are not intended to and should not in any manner
be construed as compromising the independence, integrity and fairness of
the SIT and the concerned judges. Institutional integrity of the CBI and
the judiciary is positively required to be maintained.
33. We see no merit in these applications and they are accordingly
dismissed. The writ petitions be listed for preliminary hearing on
26th November, 2018 at 2 PM.
...……………………J (Madan B. Lokur)
...…………………....J New Delhi; (Uday Umesh Lalit) November 12, 2018
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