Move of the Central Bureau of Investigation (CBI) to close criminal
proceedings against Ottavio Quattrocchi, has drawn flak from the Chief
Metropolitan Magistrate, New Delhi. He criticized CBI's role in the
investigation of the case against Quattrocchi and questioned its
decision to approach Interpol for removal of the red corner notice
against Quattrocchi before obtaining court's permission for withdrawal
of the case against him. Increasingly, CBI is losing credibility before the
public as an independent investigating agency. This is a singularly
unfortunate development that will seriously impede any meaningful
efforts to combat corruption.
The CBI was set up under the Delhi Police Establishment Act (DPEA) in
1946.During its early years, the organisation, under able and upright
Directors, like D.P. Kohli, F. Arul enjoyed enviable reputation for
transparency and professional competence. It selected its officers
carefully and brooked no interference in its work. For IPS officers,
deputation to the CBI was a prestigious assignment and they could
function free from the pulls and pressures of the state politicians.
Decline of CBI and erosion of its credibility started during Emergency.
The organisation became politicized. The Shah Commission of enquiry
which looked into the excesses perpetrated during the emergency
severely indicted the role of the CBI in a number of cases. In some cases,
it came to light that it was acting malafide and had become an
instrument of harassment of innocent people. The then Director CBI D.
Sen was an officer of great professional competence and inspired fear
and awe from the sub-ordinate staff. But he capitulated before the
baleful pressures exerted by all powerful Sanjay Gandhi and his cronies
and besmirched irretrievably the reputation of the organisation. Shah
Commission deplored the politicization of the organisation and said that
the fairness and objectivity which an organisation functions would in the
ultimate analysis depend upon the extent to which the higher executives
of the organisation are allowed to function freely and objectively and at
the same time ensuring their accountability to statutorily constituted
bodies.
One of the main reasons for erosion of credibility of the CBI is political
interference in its investigative functioning Section 4 of the Delhi Police
Establishment Act provides that CBI must function under the
"superintendence" of the central government. Superintendence does not
control or interference in the investigation conducted by CBI. In the case
of Vineet Narain (1998) the apex court held that Section 4 cannot be
construed so as to prevent actual supervision of the investigation of an
offence by the CBI and the central government is precluded from issuing
any direction in the CBI to curtail or inhibit its jurisdiction to investigate into offences.
Unfortunately, CBI has been functioning under successive central
government, as eminent jurist Fali Nariman has put it, "not by notes on
files but on nods or winks' of the minister or the senior bureaucrats in
charge of the administrative ministry. In cases of alleged corruption in
the conduct of Commonwealth Games and handling up 2G spectrum by
A. Raja, former Minister of Telecommunication, and the CBI moved with
disturbing slowness in taking necessary steps such as raids of houses of
the officers and suspects, freezing their bank accounts, and their
interrogation etc. The public cannot be blamed if it draws adverse
inferences .Now it has been directed to investigate the 2G Spectrums
case under the supervision of the apex court. Unfortunately in Vineet
Narain's case (better known as Hawala case) even under Court's scrutiny
investigation was so inadequate that charges could not be framed by the
trial courts against the accused persons.
Indeed, much depends upon the mettle of the Director of the
organization. He should be able to stand firmly against the nods and
winks of the political masters. Now secure tenure of two years after
selection as the Director, as enjoined by the court, gives him some elbow
room. It is also the responsibility of the government to ensure, as the
Shah Commission recommended, that organizations like the CBI are led
by competent self-respecting individuals, who are known for their
appreciation of values and concern for the interests of the country and
its citizens. Lesser men as heads of such organisation would only be a
disaster.
Even now without extraneous interference the CBI has done laudable
investigation in cases relating to the assassination of Rajiv Gandhi in
May 1991, and Mumbai's blasts of 1993 and in many other cases. Its
performance has been acclaimed by all. To restore the credibility of CBI
and make it an effective instrument for combating corruption. There
should be a comprehensive enquiry into the functioning of the CBI by an
eminent professional of untarnished reputation or by a Joint
Parliamentary Committee. The recommendations of such a committee
have to be implemented in letter and spirit. At present the annual reports
of the working of the CBI’s hardly figure in debates either in public or in
Parliament. The CBI has to be insulated from extraneous pressures and
made really independent. This has to be done by law expressively
enacted by the Parliament. For this there are models in other countries which can be suitably adapted.
There are suggestions that Director, CBI, like CAG, could be given an
independent constitutional status. Another alternative is to keep CBI
under the Parliamentary control. The Parliament would oversee the
functioning of the CBI either directly or through a committee. The CBI on
the pattern of the Australian model could be made accountable and
answerable to this committee, as adapted to Indian conditions.
Nearer home, Independent Commission against Corruption (ICAC) set up
in Hong Kong has done a remarkable job in reducing corruption and
enabling Hong Kong to break out of its corruption trap. The government
indicated its commitment by appointing a person of unimpeachable
integrity as the Chairman and prosecuting some big fish. There is need
for strong political will to make CBI independent, apolitical and effective.
Another factor sapping the efficiency of the CBI is that its charter has
been widened to deal with various other forms of crime not connected
with corruption. It is saddled with all kinds of cases that have nothing to
do with corruption. The strength of the CBI in order to make it an
effective instrument has to be substantially augmented. In 1996, the
Federal Bureau of Investigation had 11,400 investigating officers while
the CBI had only 1031.The Independent Commission against Corruption
(ISAAC) whose activities are confined only to Hong Kong had as many as
684 investigators in its rolls. At present, CBI refuses to take over many
cases but later on has to accept some of them either under court's orders
or under the pressure of public opinion.
CBI’s effective functioning suffers also because of constraints beyond its
control. Monthly crime reports of CBI for the month of September, 2010,
indicate that on 30.09.2010 as many as 9895 cases are pending for trial.
Age wise profile of the cases is the following.
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