Committee on Reforms of

Criminal Justice System

Government of India, Ministry of Home Affairs

Report
VOLUME I

INDIA
March 2003
Committee on Reforms of Criminal Justice System
Government of India, Ministry of Home Affairs

CHAIRMAN

Dr. Justice V.S. Malimath

Formerly, Chief Justice of Karnataka and Kerala High Courts
Chairman, Central Administrative Tribunal
Member, National Human Rights Commission
Bangalore 560 052

MEMBERS

S. Varadachary, IAS, (Retd.)

Bangalore 560 076

Amitabh Gupta, IPS, (Retd.)

Formerly, Director General of Police, RAjasthan
Jaipur 302 015

Prof. (Dr.) N.R. Madhava Menon

Vice-Chancellor
West Bengal National University Of Juridical Sciences
Kolkatta 700 098

D.V. Subba Rao

Advocate
Chairman, Bar Council of India
Vishakhapatnam

MEMBER –SECRETARY

Durgadas Gupta
Joint Secretary
Ministry of Home Affairs, Government of India
New Delhi 110 011
 STAFF OF THE COMMITTEE

Sri C.M. Basavarya

Formerly, District & Sessions Judge,
Registrar & Director of Training,
High Court of Karnataka.
Bangalore 560 094. Executive Director

Sri K. Girither
Inspector
Central Reserve Police Force Personal Assistant

Smt Binnu Menon

Sub Inspector
Central Reserve Police Force Stenographer

Sri S.M. Reddy

Asst. Sub-Inspector
Central Reserve Police Force Clerk

Sri V. Raja
Constable
Central Reserve Police Force
Office Attender

Sri M.K. Uthaiah

Constable
Central Reserve Police Force Office Attender

Committee on Reforms of Criminal Justice System

(Government of India, Ministry of Home Affairs)
12/A Diagonal Road
Vasanthanagar

Bangalore 560 052

“Everything has been said already, but as no one listens,
we must always begin again.”
Andre Gide
French thinker and writer
 CONTENTS

PART – I
FUNDAMENTAL PRINCIPLES

1. Need for Reform of the Criminal Justice System 3

2. Adversarial System 23
3. Right to Silence 39
4. Rights of the Accused 59
5. Presumption of Innocence and Burden of Proof 65
6. Justice to Victims 75

PART – II
INVESTIGATION

7. Investigation 87

PROSECUTION
8. Prosecution 125

PART – III
JUDICIARY
9. Courts and Judges 133
10. Trial Procedure 145
11. Witness and Perjury 151
12. Vacation for Court 157
13. Arrears Eradication Scheme 163

PART – IV
CRIME & PUNISHMENT

14. Offences, Sentences, Sentencing & Compounding 169

15. Reclassification of Offences 181
16. Offences against Women 189
17. Organised Crime 195
18. Federal Law and Crimes 207
19. Terrorism 213
20. Economic Crimes 233
 PART –V
LOOKING AHEAD

21. Emerging Role of the Legal Profession 249

22. Training – A Strategy for Reform 253
23. Vision for Better Criminal Justice System 259

PART –VI
RECOMMENDATIONS

24. Recommendations 265

 ACKNOWLEDGEMENT

The nation is grateful to Sri. L.K. Advani, Deputy Prime Minister and Home
Minister, for his vision for comprehensive reforms of the entire Criminal Justice
System including the fundamental principles and the relevant laws. Hitherto,
efforts were made to reform only certain set of laws, or one particular
functionary of the system in piecemeal. This type of compartmental
examination missed the vital focus on justice to victims and national concern
for peace and security. The commitment made by him and his distinguished
colleague Sri. Arun Jaitley, Minister for Law and Justice, to implement the
reforms, once the Committee makes its recommendations, is a fitting answer to
the cynics that the Report on Reforms of Criminal Justice System will be one
more addition to the several earlier reports that are gathering dust in the
Archives of the Government.

The Committee is beholden to the then Chief Justice of India, Dr. A.S. Anand,
for calling upon all the High Courts to provide all information and assistance
the Committee needs. Our grateful thanks to former Chief Justice Sri. B.N.
Kirpal for ensuring that all the High Courts send the reports sought by the
Committee on the State of Health of Criminal Justice in their respective States.
The Committee is grateful to Sri Justice V.N. Khare, the Chief Justice of India
for avincing keen interest in the Committee’s work.

Justice P.V. Reddy, Judge Supreme Court, the then Chief Justice of Karnataka
High Court, placed at the disposal of the Committee, the building for housing
the Committee’s office in Bangalore. The Committee is grateful to him.

The Committee is grateful to all the State Governments, High Courts, Officers
of the Police Departments, Prosecution Department, Law Departments and
Home Department.

Our sincere thanks to the Bar Association of India, New Delhi, the Indira
Gandhi Institute of Development Research at Mumbai and Asian College of
Journalism, The Hindu in Chennai for collaborating with our Committee in
organising seminars on different topics and to the National Law Universities at
Bangalore and Kolkatta for rendering whatever assistance the Committee
needed from time to time. Our thanks to Sri. Shivcharan Mathur, former Chief
Minister Rajasthan, Sri. Justice N.L. Tibrewal, former Chief Justice of
Rajasthan, Justice Dave, Sri. Rajendrashekhar, former Director CBI and DGP
Rajasthan, Sri. K.P.S. Gill, former DGP Punjab and Assam, Sri. Rajath Sharma,
Media personality and Prof. P.D. Sharma for assisting the Committee in
organising the seminar at Jaipur.
 Our sincere thanks to Chief Ministers, Ministers, Judges--- present and
former, distinguished lawyers, Police Officers, media personalities, politicians,
social scientists, institutions and organisations and NGOs who have assisted the
Committee in organising or participating in seminars, group discussions or
meetings.

A word of special gratitude to the respected Dr. R. Venkataraman, former

President of India, Sri. Bhairon Singh Shekhawat, Vice-President of India,
Former Chief Justices Ranganath Misra, Ahmadi and Kania, Justice Jagannatha
Rao, Chairman, Law Commission of India, Justice Jayachandra Reddy,
Chairman Press Council of India, Justice K.T.Thomas, Sri. Soli Sorabjee,
Attorney General for India, Sri. Fali Nariman, President, Bar Association of
India, Senior Counsel Dr. L.M. Singhvi, Sri. Venugopal, Sri. Shanti Bhushan,
Sri. Dipankumar Gupta, Sri. V.R. Reddi, Sri. K.N. Bhat, Sri. C. S.
Vaidyanathan, Sri Lalit Bhasin, Lord Goldsmith, Attorney General of England,
Sri Badri Bahadur Karki, Attorney General of Nepal and experts from USA,
Judge Kevin Burke, Mr. Robert Litt, Mr. Ranganath Manthripragada, Ms.
Dianne Post from the USA and Mme Maryvonne Callebotte, Mr.Jean Luis
Nadal, Mr.Roussin, Mme. Claude Nocquet and Mr. Lothion from France.

The Committee appreciates the helpful gesture of the Governments of USA,

France and UK in inviting the Committee to visit their States to acquaint the
Committee with the functioning of their respective Criminal Justice Systems
and the reforms they are undertaking. The Committee could not go to USA ad
UK for want of time. The Chairman and Sri. D.V. Subba Rao could visit
France. Our grateful thanks to USAID for bringing in four experts to Delhi to
brief the Committee about the American System.

The Committee would like to record its deep sense of appreciation for the
excellent dedicated service of Sri. C.M. Basavarya rendered as Executive
Director of the Committee.

The Committee is thankful to the Director General of CRPF for lending the
staff consisting of Inspector K. Girither, Sub-Inspectors Binnu Menon and G.
Yamini Rekha, Asst. Sub Inspector S.M. Reddy, Constables V. Raja and M.K.
Uthaiah to work for the Committee. The Committee records its appreciation and
conveys its thanks to each one of them for excellent service and help to the
Committee to complete its task on schedule.
 PART – I
FUNDAMENTAL PRINCIPLES
2
3

NEED FOR REFORM OF CRIMINAL JUSTICE SYSTEM _

“Law should not sit limply, while those who defy it go free and those
who seek its protection lose hope”. (Jennison v. Baker (1972) 1 All ER 997).

COMMITTEE AND ITS WORK

1.1. The Committee on Reforms of the Criminal Justice System was
constituted by the Government of India, Ministry of Home Affairs by its order
dated 24 November 2000, to consider measures for revamping the Criminal
Justice System. (Annexure-1). The terms of reference for the Committee are:

i. To examine the fundamental principles of criminal jurisprudence,

including the constitutional provisions relating to criminal jurisprudence
and see if any modifications or amendments are required thereto;
ii. To examine in the light of findings on fundamental principles and aspects
of criminal jurisprudence as to whether there is a need to re-write the Code
of Criminal Procedure, the Indian Penal Code and the Indian Evidence Act
to bring them in tune with the demand of the times and in harmony with
the aspirations of the people of India;
iii. To make specific recommendations on simplifying judicial procedures and
practices and making the delivery of justice to the common man closer,
faster, uncomplicated and inexpensive;
iv. To suggest ways and means of developing such synergy among the
judiciary, the Prosecution and the Police as restores the confidence of the
common man in the Criminal Justice System by protecting the innocent
and the victim and by punishing unsparingly the guilty and the criminal;
v. To suggest sound system of managing, on professional lines, the pendency
of cases at investigation and trial stages and making the Police, the
Prosecution and the Judiciary accountable for delays in their respective
domains;
4

vi. To examine the feasibility of introducing the concept of “Federal Crime”

which can be put on List I in the Seventh Schedule to the Constitution.

1.2. The Committee was constituted under the Chairmanship of Justice

V.S.Malimath, former Chief Justice of Karnataka and Kerala High Courts,
Chairman, Central Administrative Tribunal and Member of the Human Rights
Commission. The other members of the Committee are Sri S. Varadachary,
IAS (Retd), former Advisor, Planning Commission of India and Sri Amitabh
Gupta, former Director General of Police, Rajasthan. Sri Durgadas Gupta, Joint
Secretary (Judicial), Ministry of Home Affairs was made the Secretary. On the
recommendation of the Committee Justice Sri T.S. Arunachalam, former Judge
of Madras High Court and Prof. N.R.Madhava Menon, Vice-Chancellor, West
Bengal National University of Juridical Sciences were co-opted. Later, Justice
Sri. T.S.Arunachalam tendered his resignation on personal grounds where-upon
Sri D.V.Subba Rao, Advocate who also happens to be Chairman of the Bar
Council of India was co-opted in his place. Sri Durgadas Gupta, Secretary of
the Committee was made the Member Secretary of the Committee. Sri
C.M.Basavarya, former District Judge and Registrar of the Karnataka High
Court was appointed as Executive Director so that the Committee has the
benefit of trial court experience in criminal matters. The term of the Committee,
which was six months from the date of its first sitting, has been extended till 31
March 2003. Thus it may be noted that there is a wholesome combination of
expertise of all the relevant fields --- the Judiciary, the Bar, the Police, the legal
academic and administrator.

1.3. The notification constituting the Committee does not expressly state the
reasons for constituting the Committee, obviously for the reason that they are
too well-known. The statement in the notification that the Committee has been
constituted “to consider measures for revamping the Criminal Justice System”
implies that the Criminal Justice System is in such a very bad state as to call for
revamping. A former Chief Justice of India warned about a decade ago that the
Criminal Justice System in India was about to collapse. It is common
knowledge that the two major problems It is common knowledge that the
besieging the Criminal Justice System two major problems besieging the
are huge pendency of criminal cases Criminal Justice System are huge
and the inordinate delay in disposal of pendency of criminal cases and the
criminal cases on the one hand and the inordinate delay in disposal of
very low rate of conviction in cases criminal cases on the one hand and
involving serious crimes on the other. the very low rate of conviction in
This has encouraged crime. Violent and cases involving serious crimes on
organised crimes have become the the other.
order of the day. As chances of
convictions are remote, crime has
5

become a profitable business. Life has become unsafe and people live in
constant fear. Law and order situation has deteriorated and the citizens have
lost confidence in the Criminal Justice System.

1.4. The ultimate aim of criminal law is protection of right to personal

liberty against invasion by others – protection of the weak against the strong
law abiding against lawless, peaceful against the violent. To protect the rights
of the citizens, the State prescribes the rules of conduct, sanctions for their
violation, machinery to enforce sanctions and procedure to protect that
machinery. It is utter selfishness, greed and intolerance that lead to deprivation
of life, liberty and property of other citizens requiring the State to step in for
protection of the citizens’ rights. James Madison writes in his book The
Federalist that “if men were angels no government would be necessary”. It is
the primary function of the government to protect the basic rights to life and
property. The State has to give protection to persons against lawlessness,
disorderly behaviour, violent acts and fraudulent deeds of others. Liberty
cannot exist without protection of the basic rights of the citizens by the
Government.

1.5. This is the first time that the State has constituted such a Committee for
a thorough and comprehensive review of the entire Criminal Justice System so
that necessary and effective systematic reforms can be made to improve the
health of the system. Prison administration is one of the functionaries of the
Criminal Justice System. However, it does not fall within the mandate of the
Committee. All the earlier initiatives were of a limited character to bring about
reforms in the relevant laws, substantive and procedural laws, judicial reforms
or police reforms. The Committee is required to take into account the
recommendations made by the Law Commission of India, the Conference of
Chief Ministers on Internal Security, the Report of Task Force on Internal
security and Padmanabhaiah Committee Report on Police Reforms.

1.6. The terms of reference are very wide and comprehensive. They require
the Committee to examine the fundamental principles of criminal jurisprudence
and relevant constitutional provisions and to suggest if any modifications or
amendments are needed. If, on such review the Committee finds that any
amendments to the Code of Criminal Procedure, the Indian Penal Code or the
Indian Evidence Act are necessary to bring them in tune with the demands of
time and the aspirations of the people, it can make necessary recommendations.
The Committee is not called upon to take up a general review of all these three
statutes. The mandate of the Committee is limited to recommending only such
amendments to these statutes as may be necessary in the light of its findings on
review of the fundamental principles of criminal jurisprudence. Therefore, the
Committee has not undertaken any general review of these Statutes.
6

1.7. The well recognised fundamental principles of criminal jurisprudence

are ‘presumption of innocence and right to silence of the accused’, ‘burden of
proof on the Prosecution’ and the ‘right to fair trial’. Examination of
‘Adversarial System’ followed in India being an aspect of the concept of ‘fair
trial’ falls within the purview of the Committee. Simplifying judicial
procedures and practices, bringing
about synergy among the judiciary, Simplifying judicial procedures
the Prosecution and Police, making and practices, bringing about
the system simpler, faster, cheaper synergy among the judiciary, the
and people-friendly, and restoring the Prosecution and Police, making the
confidence of the common man are system simpler, faster, cheaper and
the other responsibilities of the people-friendly, and restoring the
Committee. This includes improving confidence of the common man are
the investigation and trial procedures the other responsibilities of the
on professional lines for expeditious Committee.
dispensation of justice and making the
functionaries accountable. The Committee is also required to examine if the
concept of ‘Federal Crimes’, can be put in List 1 of the Seventh Schedule of the
Constitution so that it becomes the exclusive responsibility of the Central
Government.

STRATEGIES ADOPTED BY THE COMMITTEE

1.8. Realizing the importance and magnitude of the task, the Committee
decided to reach out to every section of the society, which has a stake in the
system, directly or indirectly. Accordingly the Committee decided to: -

(1) Prepare a questionnaire and obtain responses from all walks of society.
(2) Organize seminars on important issues in different parts of the country.
(3) Participate in seminars or meetings organised by others.
(4) Meet citizens from different States hailing from different walks of life.
(5) Obtain the views of the State Governments.
(6) Obtain the views of the High Courts and the Judges.
(7) Obtain the views of Central and State Bar Councils and members of the
Bar.
(8) Seek the views of Attorney General and Advocate Generals of the
States.
(9) Obtain the views of the Heads of Police Departments.
(10) Obtain the views of the Heads of Prosecution Departments.
(11) Obtain the views of the Forensic Scientists.
(12) Obtain the views of the academics in law.
(13) Obtain the views of the media persons.
(14) Get research done by scholars on important topics.
7

(15) Study the relevant reports of the Law Commission of India, Report of
Dharmavira Committee, Report of Padmanabhaiah Committee, Report
of Vohra Committee, Report of Task Force on internal security, Report
of Chief Ministers conference on Internal Security and other
Commissions on topics relevant to the Criminal Justice System.
(16) Study the Criminal Justice Systems in U.K, Australia, France, USA and
other countries and the reforms undertaken by them.
(17) Make a comparative study of Criminal Justice Systems in 20 selected
countries from different continents.
(18) Interact with experts from different countries in the world.
(19) Examine Reports of the National Crime Bureau upto 2000.

1.9. After an in-depth study of the problem facing the Criminal Justice
System the questionnaire was prepared and sent to 3,164 persons enclosing a
pre-paid envelope to enable them to respond without incurring any expenditure.
The list includes the Prime Minister, Home Minister, Law Minister, Attorney
General, Home Secretary, Law Secretary, Govt. of India, Law Commission of
India and functionaries of the State Governments such as the Chief Ministers,
Home Ministers, Law Ministers, Chief Secretaries, Law Secretaries, Home
Secretaries, Advocate Generals, D.GsP, Director of Prosecution, the Chief
Justices of the High Courts, Senior District Judges, different Bar Associations
and State and Central Bar Councils, Bar Association Lawyers. However the
number of responses received is only 284.

1.10. Views of all the High Courts and information relating to institutions,
pendency, disposal and other relevant information were sought from all the
High Courts. As the response was not encouraging, the Chief Justice of India,
on being requested by the Chairman, called upon all the High Courts to send
their responses. As a result of the initiative of the Chief Justice, all the High
Courts have sent their reports. (Refer Appendix 5, Volume II). However some
of them have not furnished all the information sought, in the pro forma in
regard to filing, disposal, pendency of criminal cases etc.

1.11. Similarly all the State Governments were requested to send their views.
But only the States of Arunachal Pradesh, Haryana, Himachal Pradesh,
Karnataka, Kerala, Madhya Pradesh and Jammu & Kashmir have submitted
their replies. Other States have not responded inspite of repeated requests.
(Refer Appendix 6, Volume II).

1.12. Reports on the functioning of the prosecution system in all the States
were sought from the respective heads of Police
Departments. Reports have been received from the States of Arunachal
Pradesh, Bihar, Goa, Himachal Pradesh, Karnataka, Madhya Pradesh,
8

Orissa, Tamil Nadu, and Uttaranchal. Others have not responded. (Refer
Appendix 7, Volume III).

1.13. The Committee organised seminars as follows: -

Date Place Topic

9 February 2002 Chennai Media and Criminal Justice System

23/24 February 2002 Jaipur Reforms of Criminal Justice System

(Investigation, Sentencing and Prosecution)
22/23 March 2002 Mumbai Economic Crimes and Financial Frauds

26/27/28 April 2002 Delhi Fundamental Principles of Criminal Justice

– A Fresh Look.

1.14. Several other seminars organised on the recommendations of the

Committee by different organizations and many more seminars organised by
different organisations on the topics concerning the Criminal Justice System in
which the Chairman or members of the Committee actively participated are the
following: -

Date Place Topic

16 February 2002 Haveri, Reforms of Criminal Justice System

Karnataka

10 July 2002 Delhi Use of Handcuffing – a rational approach.

27/28 July 2002 Hyderabad Forensic Science, its use and application in
investigation and prosecution.

12 September 2002 Lucknow Symposium on Criminal Justice Administration

and Dalits

13 September 2002 Allahabad Application of Information Technology in Legal

System and Reforms Of Criminal Justice
System.
4 October 2002 Delhi Insulating Police from External Pressures.

10/11 October 2002 Delhi Law of Arrest – Police Powers and

Accountability.

11 January 2003 Pune Reforms of Criminal Justice System ---

Speedier and Efficient Procedure for Trial Of
Criminal Cases.
9

1.15. It is heartening to know that many eminent personalities participated in

these seminars. Notable among them are Dr. R.Venkataraman, former
President of India, Sri Bhairon Singh Shekhawat (now Vice-President of India),
Sri Arun Jaitley, Honourable Minister for Law, former Chief Justices Sri
Ranganath Misra, Sri A.M. Ahmadi, Sri M.H. Kania, Dr. A.S. Anand, former
Supreme Court Judges Sri. K.Jayachandra Reddy, Sri. Jaganadha Rao, Sri.
K.T. Thomas and many Senior Advocates Sri. Fali Nariman, Sri Soli Sorabjee,
Attorney General, Sri K.K.Venugopal, Sri Shantibhushan, Sri. P.P. Rao, Sri
V.R. Reddy, Sri. Dipankar P.Gupta, Sri. K.N. Bhat.

1.16. The Chairman held discussions with Mr. Badri Bahadur Karki,
Attorney General of Nepal who is engaged in reforming the criminal
prosecution system in his country. The Chairman discussed with Lord
Goldsmith, Attorney General of U.K and held discussion with particular
reference to several reforms undertaken in that country. The Chairman and
members Professor Madhava Menon and Mr. Subba Rao participated in a video
conference on reforms with prominent criminal lawyers from U.K. The
Chairman and member Mr. Subba Rao visited Paris on the invitation of the
French Government to study the Inquisitorial System followed in that country.
Similar invitation from USA Agency USAID could not be accepted for want of
time. Therefore USAID was good enough to send four experts to New Delhi
who enlightened the Committee about the salient features of the Criminal
Justice System in USA.

1.17. The Committee made an in-depth study of the materials gathered in

respect of all the 19 items mentioned in the earlier paragraph.

CRIMINAL JUSTICE SYSTEM – AN OVERVIEW:-

Whatever views one holds about the penal law, no one will question its
importance to society. This is the law on which men place their ultimate
reliance for protection against all the deepest injuries that human conduct can
inflict on individuals and institutions. By the same token, penal law governs the
strongest force that we permit official agencies to bring to bear on individuals.
Its promise as an instrument of safety is matched only by its power to destroy.
Nowhere in the entire legal field is more at stake for the community or for the
individual.
Herbert Wechsler
10

1.18. There was no criminal law in uncivilized society. Every man was liable
to be attacked on his person or property at any time by any one. The person
attacked either succumbed or over-powered his opponent. “A tooth for a tooth,
an eye for an eye, a life for a life” was the forerunner of criminal justice. As
time advanced, the injured person agreed to accept compensation, instead of
killing his adversary. Subsequently, a sliding scale of satisfying ordinary
offences came into existence. Such a system gave birth to the archaic criminal
law. For a long time, the application of these principles remained with the
parties themselves, but gradually this function came to be performed by the
State.

1.19. Since Independence and the promulgation of our Constitution rapid

strides have been made in almost all fields. The communication revolution has
opened the eyes, ears and minds of millions of people, resulting in increasing
expectations of an ever growing population. The desire for quick, fair and
affordable justice is universal. Protection of life and liberty have been given a
pre-eminent position in our Constitution by enacting Article 21 as a
fundamental right and imposing a duty on the State to protect life and personal
liberty of every citizen. Any deprivation or breach of this valuable right is not
permissible unless the procedure prescribed by law for that purpose is just, fair
and reasonable. Has the State been able to keep up to this promise in a
substantial measure? The ground reality, however, is that this precious
fundamental right is turning out to be a mere pipe dream to many millions to
whom justice is delayed, distorted or denied more than its delivery in
accordance with the ideals enshrined in the Constitution. The entire existence
of the orderly society depends upon sound and efficient functioning of the
Criminal Justice System.

1.20. Latest report of the National Crime Record Bureau, 2000 (NCRB)
published by the Ministry of Home Affairs, shows that in the year 1951 there
were 6,49,728 cognizable crimes under the IPC. This has risen to 17,71,084 in
the year 2000. In the year 1953 (figures for 1951 are not available) there were
49,578 violent crimes whereas in the year 2000 the number of violent crimes
has increased to 2,38,381 (for the sake of illustration only figures of cognizable
IPC crimes have been taken). These figures indicate an abnormal increase in
the number of serious crimes. At the same time the population of the country
which was 361.1 million in 1951 has increased to 1002.1 million in 2000.
 11

Consolidated Statement of Police Strength and of Cases Investigated by the Police in India
1996 to 2000

S. 1996 1997 1998 1999 2000

No
1. Total strength of State Police 9,56,620 9,87,378 10,20,171 10,32,956 10,26,917
Forces

2.
Total number of IPC
16,78,453 16,63,666 17,53,121 17,94,390 17,92,896
cases in which Cases
investigation was
completed by the SLL
41,95,778 46,00,513 44,09,133 35,47,072 33,66,127
police – Cases

Total 58,74,231 62,64,179 61,62,254 53,42,462 51,59,023

Workload of Civil
3. Police : IPC 18.7 17.8 17.8 17.2 16.5
Total cases Cases
investigated by SLL
police divided by 41.7 42.9 39.3 28.3 26.1
Cases
total number of
investigating officer
(ASIs to Inspectors) Total 60.4 60.7 57.1 45.5 42.6

Consolidated Statement of Cases Dealt with by the Courts in India from

1996 to 2000

Sl 1996 1997 1998 1999 2000

No
1 No. of IPC cases which came up
for trial during the year including
cases pending at the beginning of
the year 52,97,662 54,81,004 56,60,484 58,90,744 60,23,134
 12

Sl 1996 1997 1998 1999 2000

No
2
No. of SLL cases which came up
for trial during the year including 7120383 7751906 7910411 7219222 6717380
cases pending at the beginning of
the year
3 No. of cases in which trial was
completed during the year
IPC cases 843588 879928 895414 930729 933181
SLL cases 3487815 3732474 3679707 3221158 2518475
4 No. of cases pending trial at the 4252918 4395644 4585559 4775216 4921710
end of the year
3259637 3625072 3784163 3506947 3649230
IPC cases
SLL cases
Total 7512555 8020716 8369722 8282163 8570940
5 Conviction rate of those cases in
which trial was completed 37.8% 38.2% 37.4% 39.6% 41.8%
IPC Cases
SLL cases 87.3% 87.9% 86.7% 87.9% 81.4%

Table 2

1.21. Out of every 100 cases (both IPC and SLL crimes) reported to and
taken up by the Police for investigation, between 25 and 30 cases are IPC
crimes and the balance is accounted for by SLL crimes. Of the IPC crimes
taken up by police for
investigation every year, The above statistics suggest that as of
investigation is completed by January 2003, assuming that we have a
the police in 76% to 80% of crime free society with Police not having to
these cases. The corresponding take cognizance of and investigate any
percentage in respect of SLL crime (either IPC or SLL) from now on and
cases is between 85 and 95. the strength of the trial courts remain at the
present level numerically and efficiency
1.22. The above statistics wise, (an unrealistic assumption indeed!) it
suggest that as of January 2003, will take a minimum of another four years
assuming that we have for the courts to dispose of all these cases.
13

a crime free society with Police not having to take cognizance of and
investigate any crime (either IPC or SLL) from now on and the strength of the
trial courts remain at the present level numerically and efficiency wise, (an
unrealistic assumption indeed!) it will take a minimum of another four years for
the courts to dispose of all these cases.

1.23. These figures show that the courts have not been able to cope up with
the number of cases that come before them for trial every year. According to
Table 1 the total number of complaints received by the police and cases
registered during the year 2000 in India is 56,62,773. It is a matter of common
knowledge that several persons who are victims of crimes do not complain to
the police. During the year 2000 the total number of cases charge-sheeted after
investigation is 50,98,304. The total number of cases disposed of by the courts
in the year 2000 is 9,32,774. So far as the cases under IPC are concerned, the
analysis in the report on page 1 of the NCRB report shows that 79% of IPC
cases were investigated in the year 2000, 78.4% of them were charge-sheeted,
18.3% of them were tried and 41.8% of them resulted in conviction. In many
Countries like U.K., U.S.A, France, Japan and Singapore the rate of conviction
is more than 90%.

1.24. Quality of justice suffers not only when an innocent person is punished
or a guilty person is exonerated but when there
is enormous delay in deciding the criminal Quality of justice suffers
cases. It is a trite saying that justice delayed is not only when an innocent
justice denied. Table 25(b) of the NCRB report, person is punished or a
2000 furnishes the duration of trial of cases guilty person is exonerated
during 2000. It is seen that 10,382 cases of the but when there is enormous
duration of 3 to 5 years, 6,503 cases of the delay in deciding the
duration of 5-10 years and 2,187 cases of the criminal cases.
duration of over 10 years were disposed of by
all the courts in India during 2000. Taking more than 3 years (sometimes even
10 years) amounts to denying fair trial. Speedy trial is a right of the accused
that flows from Article 21 as held by the Supreme Court. If the accused is
acquitted after such long delay one can imagine the
Taking more than 3 unnecessary suffering he was subjected to. Many
years (sometimes even times such inordinate delay contributes to acquittal
10 years) amounts to of guilty persons either because the evidence is lost
denying fair trial. or because of lapse of time, or the witnesses do not
remember all the details or the witnesses do not
come forward to give true evidence due to threats,
inducement or sympathy. Whatever may be the reason it is justice that becomes
a casualty.
14

1.25. Vulnerable sections of the society like women, children and other
members of weaker sections of society like the Schedule Caste and Schedule
Tribes suffer more when the Criminal Justice System fails to live up to
expectations.

Crime Against Women

Sl Crime Head Year Percentage

No variation in
2000 over
1998 1999 2000 1999
1. Rape 15151 15468 16496 6.6
2. Kidnapping and Abduction 16351 15962 15023 -5.9
3. Dowry Death 6975 6699 6995 4.4
4. Torture 41376 43823 45778 4.5
5. Molestation 30959 32311 32940 1.9
6. Sexual Harassment 8054 8858 11024 24.5
7. Importation of Girls 146 1 64 63.0
8. Sati Prevention Act 0 0 0 -
9. Immoral Traffic (P) Act 8695 9363 9515 1.6
10. Indecent Rep. of Women (P) 190 222 662 198.2
Act
11. Dowry Prohibition Act 3578 3064 2876 -6.1
Total 131475 135771 141373 4.1

Table 3
Several disturbing features are seen from the figures given in this table. There is
a 6.6% increase in the offence of rape from 1999 to 2000. So far as the
percentage of sexual harassment during the same period is concerned, there is
an increase of 24.5%. What is worst is the figures relating to importation of
girls obviously for sex which has increased to 63% during 2000. This is quite
shocking.
15

1.26. So far as offences against children are concerned, Table 4 furnishes

information about the incidents of different types of offences against them
between 1996 and 2000.
Offences Against Children
Sl Crime Head Years Percentage
No variation
1996 1997 1998 1999 2000 2000 2000
over over
1996 1999
1. Child Rape 4083 4414 4153 3153 3132 -23.3 -0.7
2. Kidnapping and 571 620 699 791 711 24.5 -10.1
abduction
3. Procuration of minor girls 94 87 171 172 147 56.4 -14.5
4. Selling of girls for 6 9 11 13 15 150.0 15.3
prostitution
5. Buying of girls for 22 13 13 5 53 140.9 960
prostitution
6. Abetment of Suicide 11 13 28 24 18 63.6 -25
7. Exposure and 554 582 575 593 660 19.1 11.2
abandonment
8. Infanticide 113 107 114 87 104 -8.8 19.5
9. Foeticide 39 57 62 61 91 133.3 49.2
10. Child marriage restraint 89 78 56 58 92 3.4 58.6
act
Total 5582 5980 5882 4957 5023 -10.0 1.3

Table 4
The figures show a mixed trend during the last five years. There is an increase
of 1.3% from 1999 to 2000.
16

1.27. So far as incidence of child rape is concerned, there were 744 victims
below 10 years and 2,880 victims between of 10 and 16 years. This shows the
extent of child abuse that is prevalent in India and the failure of the system to
contain it. This is very disturbing.

1.28. So far as crime against other weaker sections of the society namely the
SC and ST are concerned, the figures for the years 1998, 1999 and 2000 are
furnished in the Tables 5 and 6.

Sl Crime Head Years Percentage variation in

No

1998 1999 2000 1999 2000 over 1999

over
1998
1. Murder 516 506 526 -1.9 4.0
2. Rape 923 1000 1083 8.3 8.3
3. Kidnapping & Abduction 253 228 268 -9.8 17.5
4. Dacoity 49 36 38 -26.5 5.6
5. Robbery 150 109 108 -27.3 -0.9
6. Arson 346 337 290 -2.6 -13.9
7. Hurt 3809 3241 3497 -14.9 7.9
8. PCR Act 724 678 672 -6.3 -0.9
9. SC/ST (Prev. of 7443 7301 7386 -1.9 1.2
Atrocities) Act
10. Others 11425 11657 11587 2.0 -0.6
Total 25638 25093 25455 -2.1 1.4

Table 5
17

Sl Crime Head Years Percentage variation in

No

1998 1999 2000 1999 2000 over 1999

over
1998
1. Murder 66 80 59 21.2 26.3
2. Rape 331 384 403 16.0 4.9
3. Kidnapping & Abduction 56 59 48 5.3 18.6
4. Dacoity 5 3 5 -40.0 66.7
5. Robbery 15 8 2 -46.6 -75.0
6. Arson 38 43 32 13.2 -25.6
7. Hurt 638 646 447 1.2 -30.8
8. PCR Act 50 45 31 -10.0 -31.1
9. SC/ST (Prev. of 709 574 502 -19.0 -12.5
Atrocities) Act
10. Others 2368 2608 2661 10.1 -2.0
Total 4276 4450 4190 4.1 -5.8

Table 6

In the year 2000 there was an increase of 1.4% of crimes against the members
of SC. So far as the members of the ST are
concerned the figures indicate that there was an Economic crimes like
increase in the number of crimes like murder, smuggling, money laundering,
rape, kidnapping, dacoity during 2000 tax evasion, drug trafficking,
compared to the figures of the previous year. corruption and serious
economic frauds are eating the
1.29. Economic crimes like smuggling, vitals of the nation in a very
money laundering, tax evasion, drug big way.
trafficking, corruption and serious economic
frauds are eating the vitals of the nation in a very big way. Table 7 furnishes
information about major frauds reported during 2000.
18

Major Frauds Reported During 2000.

SL Value of Property lost / Number of cases Registered under

No defrauded CBT Cheating Total
1. 1-10 crores worth of loss 430 1192 1622
2. 20-25 crores 2 6 8
3. 25-50 crores 0 0 0
4. 50-100 crores 0 1 1
5. Above 100 crores 1 0 1
Total 433 1199 1632
Table 7
1.30. These figures show that there were 1,632 incidents of serious
frauds during the year 2000 involving property worth several crores of rupees.
The growing sophistication in the commission of serious economic crimes
along with its complexities is a great challenge which the law enforcement
agencies have not been able to effectively counter. The criminals adopt very
special and sophisticated modus operandi. Normally individual persons are not
the victims. It is the State that often suffers from such crimes. These offences
are committed without being noticed by the high and the mighty, often taking
advantage of deficiencies in the existing legal provisions. The system appears
to be incompetent and impotent to deal with serious economic frauds like that
of Harshad Mehta. Very little has been done to tackle economic frauds that
have shaken the economy of the country.

1.31. Terrorism and organised crimes are growing menacingly in all parts of
the world and India is no exception. To combat this problem the Government
of India enacted the Terrorist and Disruptive Activities Act (TADA). After this
statute lapsed, Prevention of Terrorist Activities Act (POTA) has been enacted
by the Parliament. Similar laws have been enacted by Maharashtra and other
States. These are very serious and complex crimes that transcend State
boundaries. As many of these crimes are inter-State in character, it may be
necessary to examine if some of these matters should be included in the Union
list to enable the Govt. of India to meet this growing challenge in an effective
manner.

1.32. The number of judges in India per million

population is about 12-13 judges. Corresponding figures available
for USA is 107, for U.K is 51, for Canada is 75 and for Australia
19

was about 41 about 12 years ago. This shows how grossly inadequate is the
judge strength per million of population in India. That is the reason why the
Supreme Court has in its recent decision in (2002) 4, S.C.C.247, All India
Judges Association & Others Vs. Union of India and Others directed that the
existing judge population ratio of 10:5 or 13 judges per million people should
be raised to 50 judges per million people in a phased manner within five years.

1.33. The foundation for the Criminal Justice System is the investigation by the
police. When an offence committed is brought to the notice of the police, it is their
responsibility to investigate into the matter to find out who has committed the
offence, ascertain the facts and circumstances relevant to the crime and to collect
the evidence, oral or circumstantial, that is necessary to prove the case in the court.
The success or failure of the case depends entirely on the work of the investigating
officer. But unfortunately, the Criminal Justice System does not trust the Police.
The courts view the police with suspicion and are not willing to repose confidence
in them. Section 161 of the Code empowers the investigation officer to examine
any person supposed to be acquainted with the facts and circumstances of the case
and record the statement in writing. However section 162 of the Code provides that
it is only the accused that can make use of such a statement. So far as the
prosecution is concerned, the statement can be used only to contradict the maker of
the statement in accordance with Section 145 of the Evidence Act. Any confession
made by the accused before the Police officer is not admissible and cannot be
made use of during the trial of the case. The statement of the accused recorded by
the police can be used as provided under Section 27 of the Evidence Act to the
limited extent that led to the discovery of any fact. The valuable material collected
by the investigating officer during investigation can not be used by the
prosecution. This makes it possible for the witnesses to make a contradictory
statement during trial with impunity as it does not constitute perjury. The accused
now-a-days are more educated and well informed and use sophisticated weapons
and advance techniques to commit the offences without leaving any trace of
evidence. Unfortunately, the investigating officers are not given training in
interrogation techniques and sophisticated investigation skills. All these factors
seriously affect the prosecution. This is a major cause for the failure of the
system.

1.34. So far as the system of prosecution is concerned, it is often seen that best
legal talent is not availed of for placing its case before the court. The accused is
normally represented by a very competent lawyer of his choice. There is a
mismatch in that, an equally competent lawyer is not there to represent the
prosecution. The burden of proof being very heavy on the prosecution, it is all the
more necessary for the prosecution to be represented by a very able and competent
lawyer. Lack of co-ordination between the investigation and the prosecution is
another problem. This makes things worse.
20

1.35. Apart from the main functionaries of the Criminal Justice System,
others who have a stake in the system are the victims, the society and the
accused. Other players are the witnesses and the members of the general
public.

1.36. The victim whose rights are The victim whose rights are
invaded by the accused is not accorded invaded by the accused is not
any right to participate except as a accorded any right to
witness. The system does not afford him participate except as a witness.
any opportunity to assist the court such as The system does not afford
adducing evidence or putting questions to him any opportunity to assist
the witnesses. The system is thus utterly the court such as adducing
insensitive to the rights of the victim. The evidence or putting questions
focus is all on the accused and none on the to the witnesses.
victim. The system has denied itself the
benefit of this important source.

1.37. Criminal cases largely depend upon the testimony of witnesses.

Witnesses come to the court, take oath and quite often give false evidence with
impunity. Procedure for taking action for perjury is not simple and the judges
seldom make use of them. Witnesses turning hostile is a common feature.
Delay in disposal of cases affords greater opportunity for the accused to win
over the witnesses to his side by threats, or inducements. There is no law to
protect the witnesses. The treatment given to the witnesses is very shabby.
Even the basic amenities like shelter, seating, drinking water, toilets etc. are not
provided. He is not promptly paid TA/DA. He is often paid much less than
what he spends and nobody bothers about it. The cases are adjourned again and
again making the witnesses to come to court several times leaving aside all his
work. Witnesses who are treated in this manner become an easy prey to the
machinations of the accused and his family.

1.38. These are some of the major problems that have contributed to the
failure of the Criminal Justice System.

1.39. Justice V.R. Krishna Iyer has expressed his anguish about the failure of
the system in his article in the Hindu of May 25, 1999.

“The glory and greatness of Bharat notwithstanding, do we not, even after

the braggartly semicentennial noises, behave as a lawless brood, tribal and
casteist, meek and submissive when political goons and mafia gangs
commit crimes in cold blood, and canny corruption and economic
offences ubiquitous? The criminal culture among the higher rungs and creamy
layers of society, even when nakedly exposed, does not produce the public
21

outrage one should expect, with no burst of rage from those who must
speak… … …
Sans the punitive rule of law, democracy becomes a rope of sand… ..
India is not a soft State, a sick society, a pathologically submissive polity.
In this darkling national milieu, the penal law and its merciless enforcement
need strong emphasis. Alas the criminals are on the triumph, the police suffer
from “dependencia syndrome” and integrity is on the decadence and the judges
themselves are activists in acquittals of anti-social felons. Less than ten percent
of crimes finally end in conviction and societal demoralization is inevitable”.

1.40. Nowhere have the broad objectives of the Criminal Justice System been
codified, though these can be inferred from different statutes, including the
Constitution and judicial pronouncements. As in every democratic civilized
society, our Criminal Justice System is expected to provide the maximum sense
of security to the people at large by dealing with crimes and criminals
effectively, quickly and legally. More specifically, the aim is to reduce the
level of criminality in society by ensuring maximum detection of reported
crimes, conviction of the accused persons without delay, awarding appropriate
punishments to the convicted to meet the ends of justice and to prevent
recidivism.

1.41. The above survey of the status of the Criminal Justice system throws
many challenges to the Criminal Justice System. The fundamental principles of
criminal jurisprudence and the relevant laws have to be critically examined to
bring out reforms in the following among other areas.
i. To set an inspiring ideal and a common purpose for all the
functionaries.
ii. To instill a sense of urgency, commitment and accountability.
iii. To improve professionalism, efficiency, expedition and
transparency in all the functionaries.
iv. Quickening the quality of justice by streamlining the
procedures.
v. To enhance the level of professional competence and to take
measures to enhance credibility, reliability and impartiality in
the investigation agency.
vi. To improve the level of professional competence of the
prosecutors and to ensure their function in co-ordination with
the investigation agency.
vii. To focus on the role of the accused in contributing to better
administration of criminal justice.
22

viii. To focus on justice to victims.

ix. To tackle the problems of perjury and to ensure protection and
better treatment to witnesses.
x. To find effective response to the menacing challenges of
terrorism, organised crime and economic crime.
xi. Restoring the confidence of the people in the Criminal Justice
System.

1.42. The task of the The task of the Committee is to find

Committee is to find ways and ways and means to reform the system to
means to reform the system to ensure that every innocent person is
ensure that every innocent person protected and every guilty person is
is protected and every guilty punished with utmost expedition. As
person is punished with utmost Sri. Fali Nariman put it ‘this is the last
expedition. As Sri. Fali Nariman bus to catch’.
put it ‘this is the last bus to catch’.
23

ADVERSARIAL SYSTEM _

2.1. The primary responsibility of the State is to maintain law and order
so that citizens can enjoy peace and security. Life and personal liberty being
very precious rights, their protection is guaranteed to the citizens as a
fundamental right under Article 21 of our Constitution. This right is
internationally recognised as a Human Right. Right to property which once had
the status of a fundamental right in our Constitution is now relegated to a
constitutional right under Article 300A of the Constitution. Many times
deprivation of right to property
leads to invasion of personal The State discharges the obligation to
liberty. The State discharges the protect life, liberty and property of the
obligation to protect life, liberty citizens by taking suitable preventive
and property of the citizens by and punitive measures which also serve
taking suitable preventive and the object of preventing private
punitive measures which also retribution so essential for maintenance
serve the object of preventing of peace and law and order in the
private retribution so essential for society.
maintenance of peace and law and
order in the society. Substantive penal laws are enacted prescribing punishment
for the invasion of the rights. When there is an invasion of these rights of the
citizens it becomes the duty of the State to apprehend the person guilty for such
invasion, subject him to fair trial and if found guilty to punish him. Substantive
penal laws can be effective only when the procedural laws for enforcing them
are efficient. This in essence is the function of the criminal justice system.

2.2. The system followed in India for dispensation of criminal justice is

the adversarial system of common law inherited from the British Colonial
Rulers. The accused is presumed to be innocent and the burden is on the
prosecution to prove beyond reasonable doubt that he is guilty. The
accused also enjoys the right to silence and cannot be compelled to reply. The
aim of the Criminal Justice System is to punish the guilty and protect the
innocent. In the adversarial system truth is supposed to emerge from the
respective versions of the facts presented by the prosecution and the defence
before a neutral judge. The judge acts like an umpire to see
whether the prosecution has been able to prove the case beyond reasonable
24

doubt and gives the benefit of doubt to the

In the adversarial system truth is
accused. It is the parties that determine the
supposed to emerge from the
scope of dispute and decide largely,
respective versions of the
autonomously and in a selective manner on
facts presented by the
the evidence that they decide to present to
prosecution and the defence
the court. The trial is oral, continuous and
before a neutral judge.
confrontational. The parties use cross-
examination of witnesses to undermine the opposing case and to discover
information the other side has not brought out. The judge in his anxiety to
maintain his position of neutrality never takes any initiative to discover truth.
He does not correct the aberrations in the investigation or in the matter of
production of evidence before court. As the adversarial system does not impose
a positive duty on the judge to discover truth he plays a passive role. The
system is heavily loaded in favour of the accused and is insensitive to the
victims’plight and rights.

2.3. Over the years taking advantage of several lacunae in the adversarial
system large number of criminals are escaping convictions. This has seriously
eroded the confidence of the people in the
The system is heavily efficacy of the System. Therefore it is necessary
loaded in favour of the to examine how to plug the escape routes and to
accused and is insensitive block the possible new ones.
to the victims’ plight and
rights. 2.4. There are two major systems in the
world. There are adversarial systems which have
borrowed from the inquisitorial system and vice versa. One school of thought is
that the Inquisitorial system followed in France, Germany, Italy and other
Continental countries is more efficient and therefore a better alternative to the
adversarial system. This takes us to the examination of the distinguishing
features of the inquisitorial system.

INQUISITORIAL SYSTEM

2.5. In the inquisitorial system, power to investigate offences rests primarily

with the judicial police officers (Police/ Judiciare). They investigate and draw the
documents on the basis of their investigation. The Judicial police officer has to
notify in writing of every offence which he has taken notice of and submit the
dossier prepared after investigation, to the concerned prosecutor. If the prosecutor
finds that no case is made out, he can close the case. If, however he feels that
further investigation is called for, he can instruct the judicial police to undertake
further investigation. The judicial police are required to gather evidence for and
against the accused in a neutral and objective manner as it is their duty to assist the
25

investigation and the prosecution in discovering truth. Exclusionary rules of

evidence hardly exist. Hearsay rules are unknown in this System. If the
prosecutor feels that the case involves serious offences or offences of complex
nature or politically sensitive matters, he can move the judge of instructions to
take over the responsibility of supervising the investigation of such cases.

2.6. To enable the Judge of instructions to properly investigate the case, he

is empowered to issue warrants, direct search, arrest the accused and examine
witnesses. The accused has the right to be heard and to engage a counsel in the
investigation proceedings before the judge of instructions and to make
suggestions in regard to proper investigation of the case. It is the duty of the
judge of instructions to collect evidence for and against the accused, prepare a
dossier and then forward it to the trial judge. The
The accused is accused is presumed to be innocent and it is the
presumed to be responsibility of the judge to discover the truth. The
innocent and it is the statements of witnesses recorded during
responsibility of the investigation by the judge of instructions are
judge to discover the admissible and form the basis for the prosecution
truth. case during final trial. Before the trial judge the
accused and the victim are entitled to participate in
the hearing. However the role of the parties is restricted to suggesting the
questions that may be put to the witnesses. It is the Judge who puts the
questions to the witnesses and there is no cross-examination as such. Evidence
regarding character and antecedents of the accused such as previous conduct or
convictions are relevant for proving the guilt or innocence of the accused.

2.7. The standard of proof required is the inner satisfaction or conviction of

the Judge and not proof beyond reasonable doubt as in the Adversarial System.

2.8. Another important feature of the Inquisitorial System is that in respect

of serious and complex offences investigation is done under the supervision of
an independent judicial officer__ the Judge of Instructions__ who for the
purpose of discovering truth
collects evidence for and Another important feature of the Inquisitorial
against the accused. System is that in respect of serious and
complex offences investigation is done under
2.9. In evaluating the the supervision of an independent judicial
two systems we should not officer__ the Judge of Instructions__ who for
forget the basic requirement the purpose of discovering truth collects
of fairness of trial. In evidence for and against the accused.
26

the inquisitorial system the Judge of instructions combines to some extent the
roles of the investigator and the Judge. Defence lacks adequate opportunity to
test the evidence of the prosecution by cross-examination. The defence has only
a limited right of suggesting questions to the Judge. It is left to the discretion of
the Judge whether to accept the suggestions or not. Thus, the accused does not
get a fair opportunity of testing the evidence tendered against him which is one
of the essential requirements of fair trial.

2.10. In the Inquisitorial System followed in France the positions of

Magistrates and Prosecutors are inter-
changeable. A person appointed as a The Judge who had functioned
Magistrate for one term may be earlier as a prosecutor is likely to
appointed as a Prosecutor for the next carry unconsciously a bias in
term. It is by common selection that favour of the prosecution. At any
Prosecutors and Magistrates are selected rate it is likely to cause an
and are subjected to a common training apprehension in the mind of the
programme. It is one of the cardinal accused that he may not get a fair
principles of justice that justice should trial at the hands of such a Judge.
not only be done but should appear to be
done. The Judge who had functioned earlier as a prosecutor is likely to carry
unconsciously a bias in favour of the prosecution. At any rate it is likely to
cause an apprehension in the mind of the accused that he may not get a fair trial
at the hands of such a Judge.

2.11. In the Adversarial System, fairness of trial is adequately assured by the

Judge maintaining a position of neutrality and the parties getting full
opportunity of adducing evidence and cross-examining the witnesses. Thus it is
seen that fairness of trial is better assured in the Adversarial System.

WORLD SCENARIO

2.12.1. So far as world scenario is concerned it is enough to quote by Prof.

Abraham S.Goldstein

“It is becoming increasingly apparent to criminal justice scholars that single

theory models of criminal procedure – whether termed inquisitorial or
adversarial – are being stretched beyond their capacity by the phenomena they
are designed to control. Virtually everywhere, formal systems of charge
and adjudication cannot possibly be enforced in accordance with the
premises underlying them. There are simply too many offenses, too many
27

offenders and too few resources to deal with them all. One result has been a
steady movement towards a convergence of legal systems – towards borrowing
from others those institutions and practices that offer some home of relief”.

Israel Law Review, Vol.41-1997

2.12.2. United Kingdom and Australia who are engaged in the reform
process do not favour switch over from the Adversarial System to the
Inquisitorial System. However they have not hesitated to borrow some of the
features of the Inquisitorial System.

V IEWS OF H IGH COURTS

2.13. The High Courts of Gauhati, Gujarat, Jammu & Kashmir, Karnataka,
Patna, Rajasthan and Sikkim have not expressed any views. The High Courts
of Allahabad, Andhra Pradesh, Kerala, and Punjab & Haryana have said that the
present system is satisfactory. The High Courts of Jarkhand and Uttaranchal
have opined that the Adversarial System has failed. The High Courts of
Bombay, Chattisgarh, Delhi, Himachal Pradesh, Kolkata, Madras, Madhya
Pradesh and Orissa have expressed that the present system is not satisfactory.
Some of them say that there is scope for improving the Adversarial System by
adopting some of the useful features of the Inquisitorial System.

V IEWS OF SOME STATE GOVERNMENTS

2.14. Governments of Arunachal Pradesh, Karnataka, Kerala, Madhya

Pradesh, Haryana, Himachal Pradesh and Jammu & Kashimir are in favour of
continuing the Adversarial System followed in India. Other Governments have
not responded.

THE NEED FOR REFORM

2.15. The Adversarial System lacks dynamism because it has no lofty ideal to
inspire. It has not been entrusted with a positive duty to discover truth as in the
Inquisitorial System. When the investigation is perfunctory or ineffective,
Judges seldom take any initiative to remedy the situation. During the trial, the
Judges do not bother if relevant evidence is not produced and plays a passive
role as he has no duty to search for truth. As the prosecution has to prove the
case beyond reasonable doubt, the system appears to be skewed in favour of the
accused. It is therefore necessary to strengthen the Adversarial System by
adopting with suitable modifications some of the good and useful features of
the Inquisitorial System.
28

TRUTH AND JUSTICE

“Truth does not pay homage to any society ancient or modern. But society has
to pay homage to truth or perish”
Swami Vivekananda.

2.16.1. The Indian ethos accords the highest importance to truth. The motto
Satyameva Jayate (Truth alone succeeds) is inscribed in our National
Emblem “Ashoka Sthambha”. Our epics extol the virtue of truth.
Gandhiji gave us truth – as the righteous means to achieve
independence by launching the movement of Satyagraha.

2.16.2. For the common man truth and justice are synonymous. So when
truth fails, justice fails.

2.16.3. What is the place accorded to ‘truth’ in the Criminal Justice

System in India?

2.16.4. It is worthwhile to recall the following observations of Dr.

R.Venkataraman, former President of India.

“The Adversarial System is the opposite of our ancient ethos. In the panchayat
justice, they were seeking the truth, while in adversarial procedure, the Judge
does not seek the truth, but only decides whether the charge has been proved by
the prosecution. The Judge is not concerned with the truth; he is only concerned
with the proof. Those who know that the acquitted accused was in fact the
offender, lose faith in the system”.

2.16.5. The Supreme Court has criticised the passive role played by the
Judges and emphasized the importance of finding truth in several cases.

2.16.6. In the case of Ram Chandra vs. State of Haryana, AIR 1981. SC
1036, the Supreme Court has said:
...there is an unfortunate tendency for a Judge presiding over a trial to assume
the role of referee or umpire and to allow the trial to develop into a contest
between the prosecution and the defence with the inevitable distortion flowing
from combative and competitive elements entering the trial procedure.
29

2.16.7. In the case of Mohanlal vs. Union of India, where best available
evidence was not brought by the prosecution before the court, the Supreme
Court observed as follows:

In such a situation a question that arises for consideration is whether the

presiding officer of a Court should simply sit as a mere umpire at a contest
between two parties and declare at the end of the combat who has won and who
has lost or is there not any legal duty of his own, independent of the parties to
take an active role in the proceedings in finding the truth and administering
justice? It is a well accepted and settled
principle that a Court must discharge its It is the duty of a Court
statutory functions- whether discretionary or not only to do justice but
obligatory – according to law in dispensing also to ensure that justice
justice because it is the duty of a Court not only is being done.
to do justice but also to ensure that justice is
being done.

2.16.8. In practice however we find that the Judge, in his anxiety to

demonstrate his neutrality opts to remain passive and truth often becomes a
casualty. Failure to ascertain truth may be on account of errors or omissions on
the part of the investigation agency, the prosecution or the faulty attitude of the
parties, the witnesses or inadequacies in the principles and laws regulating the
system. There is no provision in the Code which expressly imposes a duty on
the court to search for truth. It is a general feeling that it is falsehood that often
succeeds in courts.

2.16.9. Truth being the cherished ideal and ethos of India, pursuit of truth
should be the guiding star of the Criminal Justice System. For justice to be
done truth must prevail. It is truth that must protect the innocent and it is truth
that must be the basis to punish the guilty. Truth is the very soul of justice.
Therefore truth should become the ideal to inspire the courts to pursue. This can
be achieved by statutorily mandating the
Concern for and duty to seek
courts to become active seekers of truth. It
truth should not become the
is of seminal importance to inject vitality
limited concern of the courts. It
into our system if we have to regain the
should become the paramount
lost confidence of the people. Concern for
duty of everyone to assist the
and duty to seek truth should not become
court in its quest for truth. the limited concern of the courts. It should
become the paramount duty of everyone to
assist the court in its quest for truth.
30

2.16.10. Many countries which have Inquisitorial model have inscribed in

their Parliamentary Acts a duty to find the truth in the case. In Germany
Section 139 of the so called ‘Majna Charta’, a breach of the Judges’ duty to
actively discover truth would promulgate a procedural error which may provide
grounds for an appeal. Nothing great and
worthy can be achieved without a great In Germany Section 139 of the
vision and an inspiring ideal. For courts of so called ‘Majna Charta’, a
justice there cannot be any better or higher breach of the Judges’ duty to
ideal than quest for truth. Preamble is the actively discover truth would
right place to incorporate the goal or ideal promulgate a procedural error
to pursue which the law is enacted. It may which may provide grounds for
look rather unusual that the ideal for the an appeal.
law is being introduced in the preamble
long after the law is enacted. But then, it is never too late to do the right thing
for the right cause. The Committee therefore favours incorporating an inspiring
ideal of ‘quest for truth’ in the Preamble and a specific provision in the Code
imposing a fundamental duty to seek truth.

INHERENT POWERS

2.17.1 The Code which speaks in Section 482 of the inherent power of the
High Court says that nothing in the Code shall be deemed to limit or affect the
inherent powers of the High Court to make such orders as may be necessary to
give affect to any order under the Code or to prevent the abuse of the process of
any Court or otherwise to secure the ends of justice. In essence it speaks of the
residuary power to do justice. As all the Criminal Courts are courts of justice
there is no good reason to limit the exercise of inherent powers to the High
Court. Limited conferring of inherent powers to the High Court has contributed
to unnecessary litigation and delay. The inherent powers in civil matters are
conferred by Section 151 of the Civil Procedure Code on all courts and are not
limited to the High Court. Now that
Inherent powers can be exercised in every criminal court is enjoined the
the interest of justice, in the absence duty to seek truth there is no good
of a statutory provision to meet the reason why it should not be
situation. empowered to exercise inherent
powers for seeking truth or to prevent
abuse of the process of any court or otherwise to secure the ends of justice.
Inherent powers can be exercised in the interest of justice, in the absence of a
statutory provision to meet the situation. The lower courts can be trusted to
exercise inherent powers in accordance with settled principles.
31

2.17.2 The Law Commission in its 14th report (Paras 828 & 830) has also
recommended conferment of inherent power but on the sessions courts. There
is no good reason to deny inherent powers to other subordinate criminal courts.

COURTS’POWER TO SECURE EVIDENCE

2.18.1 Section 165 of the Evidence Act, invests the Court with the power
to ask any question it pleases, in any form, at any time, of any witness, or the
parties about any fact, relevant or irrelevant, and also to order the production of
any document or thing. This power can be exercised by the Court, “in order to
discover or to obtain proper proof of relevant facts”. This Section does not
expressly confer a power on the Court to summon witnesses, to give evidence.
It can summon a witness only to produce any document or a thing.

2.18.2 Wide power has been conferred on the court by Section 311 of the
Code to summon material witnesses or examine the persons present in the
Court. It reads:

Any court may, at any stage of any inquiry, trial or other proceeding under this
Code, summon any person as a witness, or examine any person in attendance,
though not summoned as a witness, or recall and re-examine any person already
examined; and the court shall summon and examine or recall and re-examine
any such person if his evidence appears to it to be essential to the just decision
of the case.

2.18.3 First part of Section 311 gives discretion to the court to summon
any person as a witness; the second part makes it obligatory to examine witness
if it is essential for the just decision of the case. It does not say that the power
should be exercised when it appears to the court that it is necessary to discover
truth. The requirement of “just decision of the case” occurring in the latter part
of the Section is not synonymous with the duty to discover truth.

2.18.4 The provisions discussed above do not cast a positive duty on the
court to exercise the power to summon witnesses “in order to seek the truth” but
only for “proof of relevant facts” or for “just decision” in the case. In practice it
is seen that when the witnesses are examined the courts rarely ask any questions
to the witnesses, fearing that their neutrality may be doubted.

2.18.5 Witnesses examined at the instance of the court are

liable to be cross-examined by the rival parties to the
proceedings. Aggrieved parties often challenge such intervention on
32

grounds of bias and denial of fair trial. The trend of judicial decisions is
The trend of judicial decisions is also that also that this power should be
this power should be exercised with exercised with utmost
utmost circumspection and not to circumspection and not to
supplement the evidence for the supplement the evidence for the
prosecution or to fill up the gaps in the prosecution or to fill up the gaps
prosecution case. Thus the power under in the prosecution case. Thus the
Section 311 is virtually rendered power under Section 311 is
nugatory. virtually rendered nugatory.

2.18.6 Furthermore, the other provisions in the Code also appear to curtail
this power, may be unintentional. So far as summons trial procedure is
concerned Section 255 entitles the court to take into account in addition to the
evidence produced by the prosecution, such further evidence as the court on its
own motion causes to be produced. But there is no similar provision in respect
of warrant (Section 238 to 250) and sessions (Section 225 to 232) trials. The
court can consider only the evidence produced by the prosecution and not other
evidence collected by invoking courts’ power under Section 311. These
restrictions should be removed and a provision similar to Section 255 should be
made in respect of warrant and session’s trial procedure also.

2.18.7 In England the court has power to cause production of evidence for
elucidating truth as can be seen from the following observation of Lord Esher in
Coulson vs Disborough, 1894, 2 Q.B, 316.

If there be a person whom neither party to an action chooses to call as witness,

and the Judge thinks that the person is able to elucidate the truth, the Judge in
my opinion is entitled to call him; and I cannot agree that such a course has
never been taken by a Judge
before. It is therefore necessary to amend
Section 311 imposing a duty on every
2.18.8 It is therefore court to suo motu cause production of
necessary to amend Section 311 evidence for the purpose of discovering
imposing a duty on every court truth and requiring every court to take
to suo motu cause production of into account the evidence so collected in
evidence for the purpose of addition to the evidence produced by the
discovering truth and requiring Prosecution.
every court to take into account
the evidence so collected in addition to the evidence produced by the
Prosecution.
33

COURTS’POWER TO REGULATE INVESTIGATION

2.19.1 Quite often the Judge acquits the accused after recording a
finding that the prosecution has miserably failed to prove its case
against the accused attributing the failure to defective, incompetent
or dishonest investigation. The courts rarely direct further or proper
investigation by the same or other competent agency for discovering truth
though they have the power as can be seen from Section 173(8) of the code
which reads:

Nothing in this section shall be deemed to preclude further investigation in

respect of an offence after a report under sub-section (2) has been forwarded to
the Magistrate and, where upon such investigation, the officer-in-charge of the
police station obtains further evidence, oral or documentary, he shall forward to
the Magistrate a further report or reports regarding such evidence in the form
prescribed; and the provisions of sub-sections(2) to (6) shall, as far as may be,
apply in relation to such report or reports as they apply in relation to a report
forwarded under sub-section(2).

2.19.2 This provision was invoked by the Supreme Court in AIR 1988 SC
1323 between Kashmiri Devi vs. Delhi Administration and others and the
relevant observations are as follows:

(5) “After hearing learned counsel for the parties and on perusal of the
record we are satisfied that prima facie the police have not acted in a
forthright manner in investigating the case, registered on the complaint
of Sudesh Kumar. The circumstances available on record prima facie
show that effort has been made to protect and shield the guilty officers
of the police who are alleged to have perpetrated the barbaric offence of
murdering Gopi Ram by beating and torturing. The appellant has been
crying hoarse to get the investigation done by an independent authority
but none responded to her complaint. The Additional Sessions Judge
while considering the bail application of Jagmal Singh, Constable,
considered the autopsy report and observed that Doctor had postponed
giving his opinion regarding the cause of death although the injuries
were ante mortom. The learned Sessions Judge referring to a
34

number of circumstances observed that the investigating officer had

converted the case from S.302/IPC to S.304/IPC on flimsy grounds
within hours of the registration of the case even without waiting for the
post-mortem report. The learned Sessions Judge further observed that it
was a prima facie case of deliberate murder of an innocent illiterate poor
citizen of Delhi in Police custody and investigation was partisan.
6) … … … … … … … … … ..Prima facie the police has acted in partisan
manner to shield the real culprits and the investigation of the case has
not been done in a proper and objective manner. We are therefore of the
opinion that in the interest of justice it is necessary to get a fresh
investigation made through an independent authority so that truth may
be known.

2.19.3 Technical or non-fulfillment of any procedural requirement or

inadequacies of evidence or non-
The Committee is of the view, that
examination of material witnesses,
in such situations, the court
mistakes in investigation and similar
concerned should not be allowed the
other factors have quite often
shortcut of acquitting the accused.
contributed to acquittals. This
A statutory obligation should be
amounts to failure of the courts’ to
placed on the court to take such
search for truth to do justice.
steps as may be necessary, or to
Therefore the Committee is of the
issue such directions as may be
view, that in such situations, the court
required, to remove the deficiencies.
concerned should not be allowed the
This may include examining
shortcut of acquitting the accused. A
witnesses and directing fresh or
statutory obligation should be placed
proper investigation by any
on the court to take such steps as may
appropriate agency.
be necessary, or to issue such
directions as may be required, to remove the deficiencies. This may include
examining witnesses and directing fresh or proper investigation by any
appropriate agency.

2.19.4 Quality of investigation needs substantial improvements, more so

when it is charged with the responsibility of discovering truth. These aspects
are discussed in a separate chapter on investigation.

2.19.5 In the present system, the Directorate of Prosecution

is expected to guide the investigation. In practice however this has
not worked satisfactorily. The Committee has
35

examined the question of improving the functioning of the Directorate of

Prosecution, in a separate chapter devoted to Prosecution.

V ICTIM’S PARTICIPATION

2.20.1. In the Inquisitorial System the Judge of instructions is a part of the

investigating machinery charged with the responsibility of ascertaining truth. In
the Adversarial System, the Judge is not a part of the investigating machinery.
As it is proposed to cast a duty on the court to discover truth we have to find
ways and means of achieving this object without the Judge becoming a part of
the investigating machinery.

2.20.2. Ordinarily the prosecution places such evidence as it considers

necessary during the trial of the case. The court has no means to know if there is
any other evidence which can throw light on truth of the case. The victim not
being a party has no role to play in the trial except giving evidence as a witness.
The victim may have information about the evidence available in regard to
commission of the crime.
He would also be very The victim may be made a party to assist the
much interested in the court in discovering truth. He may be permitted
vindication of justice by to put questions or suggest questions to be put
securing conviction of the by the court to the witnesses produced by the
person who has committed parties. He can also point out the availability of
the offence. He would be other evidence that would assist the court in
eager to assist the discovering truth. On the victim furnishing
prosecution. Therefore the such information the court may cause
victim may be made a production of such evidence as it considers
party to assist the court in necessary to discover truth.
discovering truth. He may
be permitted to put questions or suggest questions to be put by the court to the
witnesses produced by the parties. He can also point out the availability of other
evidence that would assist the court in discovering truth. On the victim
furnishing such information the court may cause production of such evidence as
it considers necessary to discover truth.

2.20.3. Active participation of the victim during investigation would be

helpful in discovering truth. He can assist investigation in finding out the real
offender and in collecting evidence to prove the commission of the offence by
the assailant. He can also offer suggestions for proper investigation of the case.
When the investigation proceeds on wrong lines the victim can move the court
for appropriate directions to ensure proper investigation of the case.
36

2.20.4. In this way, the Judge does not become part of the investigation
machinery as in the Inquisitorial System. He would maintain his position as a
neutral judge and objectively consider the request of the victim for directions
regarding investigation or production of evidence during trial.

2.20.5. Participation of the victim will also assist the court in exercising its
discretion in regard to grant or cancellation of bail. The victim will also have
opportunity to adduce evidence in regard to his loss, pain and suffering and
assist the court in determining the quantum of compensation. In cases where
prosecution seeks to withdraw from the case, the victim would be in a position
to assist the court in proper exercise of its discretion and may even offer to take
the responsibility of continuing the prosecution. Presence of the victim before
the court would also facilitate in the matter of compounding or settlement of the
case.

2.20.6. In cases where the victim is dead or otherwise not available, his
dependent or next of kin or a recognized NGO permitted by the Court may be
impleaded as a party.

2.20.7. The victim should have the right to be represented by a lawyer. If

the victim is an indigent person and is not in a position to engage a lawyer, the
State should provide him a lawyer. When the State has an obligation to provide
a lawyer to the accused, there is no good reason why the victim should not be
provided a lawyer at the cost of the State.

2.20.8. When the victim is arrayed as a party to the criminal proceedings

he should take his turn after the prosecution or at such other stage as may be
permitted by the court.

V ICTIM’S RIGHT TO APPEAL

2.21. The victim or his representative who is a party to the trial should
have a right to prefer an appeal against
any adverse order passed by the trial The appellate court should have
court. In such an appeal he could the same powers as the trial court
challenge the acquittal, or conviction for in regard to assessment of
a lesser offence or inadequacy of evidence and awarding of
sentence, or in regard to compensation sentence.
payable to the victim. The appellate
court should have the same powers as the trial court in regard to assessment of
evidence and awarding of sentence.
37

EVIDENCE REGARDING CHARACTER

2.22.1. Section 54 of the Indian Evidence Act provides that evidence

regarding bad character is irrelevant except in cases where evidence has been
led to show that the accused is of good character. Under Section 53 evidence
regarding good character of the accused is relevant in criminal cases. Evidence
regarding good character of the accused may show that he is not likely to have
committed the offence. Logically it follows that evidence of bad character of
the accused may show that he is more likely to commit the offence. At present
the law in this behalf is heavily loaded in favour of the accused and against the
prosecution. Just as evidence of good character of the accused is relevant,
evidence regarding bad character
The Committee therefore recommends
of the accused should also be
that Section 54 of the Evidence Act be
relevant. There is no good reason
substituted by a provision to the effect
why evidence regarding bad
that in criminal cases evidence of bad
character of the accused should be
character and antecedents is relevant.
made relevant only when evidence
is led about his good character.
This is quite illogical and irrational. By the exclusionary rule of evidence
prescribed by Section 54, the Court is denied of the benefit of a very valuable
piece of evidence that would assist in the search for truth. In the inquisitorial
system character and antecedents of the accused are relevant both in regard to
determination of guilt and awarding of sentence. The Committee therefore
recommends that Section 54 of the Evidence Act be substituted by a provision
to the effect that in criminal cases evidence of bad character and antecedents is
relevant.

2.22.2. Relevant recommendations regarding rights of the victim to

participation, right to prefer an appeal against acquittals and right to
compensation are incorporated in the separate chapter on ‘justice to victims’.
38
39

RIGHT TO SILENCE _

3.1 The right not to be compelled to testify against himself is a

universally recognised right of the accused under Art 14 of the International
convention on civil and political rights and is a fundamental right conferred by
Art 20 (3) of the Constitution. It says that “No person accused of any offence
shall be compelled to be a witness against himself”. This is often described as
right to silence. History of mankind is replete with instances where under every
type of regime the accused in custody was tortured within the four corners of
the cell for forcing him to
confess or disclose information, It cannot be disputed that accused is good
when there is none to hear his source of information about the
cries or to come to his rescue. commission of the offence. But
That is why compulsion is unfortunately this source is not fully
prohibited by of Article 20(3). In tapped may be for the fear of infringing
AIR 1992 SC 1795, the Supreme the accused’s right to silence granted by
Court has pointed out that Article 20(3). To ascertain if there is any
compulsion in the present scope for tapping this source and to find
context means “Duress”. It does out ways and means of enhancing
not prohibit admission or contribution of the accused for better
confession which is made quality of criminal justice it is necessary
without any inducement, threat to examine the true scope and limits of
or promise. It also does not bar the Right to silence.
the accused from voluntarily
offering himself to be examined as a witness. Any confession made under
compulsion is rendered inadmissible in evidence by virtue of S.24 of the
Evidence Act. It cannot be disputed that accused is good source of information
about the commission of the offence. But unfortunately this source is not fully
tapped may be for the fear of infringing the accused’s right to silence granted
by Article 20(3). To ascertain if there is any scope for tapping this source and
to find out ways and means of enhancing contribution of the accused for better
quality of criminal justice it is necessary to examine the true scope and limits of
the Right to silence.
40

3.2 Art. 20(3) does not prohibit the accused being questioned during
investigation or trial. When questioned the accused may deny or make a
confession. When the accused is asked during trial whether he pleads guilty to the
charge he may confess and plead guilty. If the accused is willing during
investigation to make a confession, it can be got recorded by the Magistrate under
section 164 of the Code. A voluntary statement by the accused leading to
discovery of any incriminating fact is admissible under S-27 of the Evidence Act.
Sections 306 and 307 of the Code empower the court to tender pardon to the
approver who was a privy or an abettor in the commission of the offence, subject
to the condition that he makes a full and complete disclosure of all the facts
including his own involvement in the commission of the crime. If the person after
accepting tender of pardon gives false evidence or willfully conceals any essential
fact he can be deprived of the privilege of pardon and tried for the offences he is
alleged to have committed as also for the offence of giving false evidence.

3.3 Section 313 of the Code confers power on the court to examine the
accused only to explain any circumstances appearing in the evidence against him.
Whereas Clause (a) of Sub-Section (1) of Section 313 empowers the court to put
questions at any stage to the accused as it considers necessary, Clause (b) of Sub-
Section (1) requires the court to question the accused generally on the case after
the witnesses for the prosecution have been examined. Sub-Section (2) of 313
provides that no oath shall be administered to the accused when he is examined
under Sub-Section (1). Sub-Section (3) provides that the accused shall not be liable
for punishment for refusing to answer the questions put to him or for any false
answers.

3.4 Sub-section(4) provides that the answers given by the accused may
be taken into consideration in such inquiry or trial, and put in evidence for or
against him in any other inquiry into, or trial for, or any other offence which such
answers may tend to show he has committed. It does not empower the court to
draw any inference when the accused remains silent or refuses to answer the
question put to him.

3.5 If, in answer to the question put to the accused under Section 313 he
voluntarily makes a self-incriminatory statement it can be taken into consideration
for or against him as provided in Section 313(4). As no compulsion is involved
Article 20(3) is not violated. If any incriminatory statement is voluntarily made by
the accused in answer to the question put by a police officer, it cannot be regarded
as one made under compulsion, vide AIR 1962 SC 1831, R.K. Dalmia Vs. Delhi
Administration. In AIR 1965 SC 1251, State of Gujarat Vs. Shyamlal Mohanlal
Choksi the Supreme Court has upheld the validity of Section 27 of the Evidence
Act which renders the portion of the statement of the accused that leads to the
discovery of any fact admissible in evidence.
41

3.6 Burden of Proof in

Criminal cases is on the Prosecution Burden of Proof in Criminal cases is
as provided in section 101 of the on the Prosecution as provided in
Evidence Act. However, there are section 101 of the Evidence Act.
several statutory provisions which However, there are several statutory
provide that the court may presume provisions which provide that the
certain facts, place the burden on the court may presume certain facts, place
accused of rebutting such the burden on the accused of rebutting
presumption. If the accused fails to such presumption.
rebut the presumption the court can
proceed to give its verdict on the basis of the presumption. For the sake of
convenience we shall limit our examination to only a few statutory provisions
which provide for raising certain rebuttable presumptions.

3.7.1 Section 114 of the Evidence Act gives several illustrations where
the Court may presume existence of certain facts.

S.114 illustration (a) reads:

The court may presume
(a) that a man who is in possession of stolen goods soon after
theft is either the thief or has received the goods knowing
them to be stolen, unless he can account for his possession”.

3.7.2 If the accused remains silent and fails to account for possession of
the goods the court may convict the accused on the basis of the statutory
presumption for the offence of theft or offence of receiver of the stolen goods.

Illustration (h) to section 114 reads: -

“The court may presume

(h) that if a man refuses to answer a question which he is not

compelled to answer, by law, the answer, if given, would be
unfavourable to him”;

3.8 The expression “man” used herein is in a generic sense and does
not exclude the accused. If the accused refuses to answer the questions put to
him an unfavourable inference can be drawn against him.

3.9 Section 113 A of the Evidence Act provides for a presumption

that the husband has abetted suicide of his wife if suicide took place
within seven years of marriage and the wife was earlier subjected to
cruelty. Likewise Section 113 B raises a presumption of dowry death if it is
shown that prior to her death she was harassed etc in connection with demand
42

of dowry. Again Section 114 A provides for presumption as to absence of

consent in certain prosecutions for rape.

3.10 Similarly there are several special statutes which provide for
raising certain presumptions placing the burden of rebutting them on the
accused. Section 4 of Public Gambling Act 1867 provides that “Any person
found in any common gambling house or in gambling or playing there-in shall
be presumed until the contrary be proved to have been there for the purpose of
Gambling”. Section 12 of the Protection of Civil Rights Act 1955 provides
“where any act constituting an offence under this Act is committed in relation to
a member of the Scheduled Caste as defined in clause (24) of Article 366 of the
Constitution, the court shall presume, unless the contrary is proved that such act
was committed on the ground of untouchability”. Certain presumptions are
drawn under Section 3, 5 and 6 of Immoral Traffic (Prevention) Act 1956. In
order to avoid such presumption taking effect the accused has to break his
silence to rebut the presumption. This type of pressure on the accused is not
regarded as compelling him to be a witness against himself in contravention of
Article 20(3). The Supreme Court has held in AIR 1971 SC 2346 that no
compulsion is involved in enacting a rule of absolute liability or conclusive
evidence against the accused or to disclose his defence failing which an adverse
inference may be drawn against the accused.

3.11 The common features discernible from the analysis of some of the
statues in India in the previous paragraphs may be summarized as follows:
i. Article 20(3) does not prohibit the Investigating Officer from
putting questions to the accused to elicit information about the
commission of the crime and his involvement.
ii. The court can put any questions to the accused during trial to
give him an opportunity to explain the circumstances
appearing against him in the evidence.
iii. The accused has a right to answer or refuse to answer any
question put to him during investigation or trial.
iv. The court can draw appropriate inferences from the answers
given by the accused when examined under Section 313 of the
Code.
v. There is no express provision empowering the court to draw
an adverse inference against the accused on his failure to
answer the questions put to him.
vi. On the accused failing to rebut the statutory presumption the
court can proceed to treat the presumption as absolute.

3.12 In the separate chapter on ‘Investigation’ the Committee has inter-alia made the
43

following recommendations to improve the competence and credibility of the

investigating agency: -
i. To provide a separate, independent, honest, competent and
efficient investigation agency free from political and other
pressures.
ii. To ensure that during investigation the accused and witnesses are
not subjected to any torture, threats or inducements and that only
the voluntary statements made by them are recorded faithfully
and accurately.
iii. To suitably amend Sections 161 and 162 of the Code to provide
for recording and signing the statements made by any person to
the Police Officer and to render them admissible evidence.
iv. To delete Sections 25 to 29 of the Indian Evidence Act.

3.13 Further discussion shall be on the basis of these recommendations.

3.14 We shall now examine how refusal of the accused to answer the
questions put to him is dealt with in different countries.

3.15 In United States of America right to silence has been granted by

the 5th amendment to the Constitution. No adverse inference of guilt can be
drawn from the failure of the accused to testify. However some of the
American Courts have held that adverse inference can be drawn from the
silence of the accused for the limited purpose of determining the quantum of
punishment. Professor Ingraham holds the view that:
Every citizen has a duty to give frank answers to relevant questions concerning
the crime to the Police. An obdurate silence in the face of an accusation of
involvement must be capable of leading to whatever reasonable inferences can
be drawn there-from. One of those is concealment of guilt.

3.16 He further points out that common sense expects one who is accused
of the crime to reply, explain, admit or exonerate himself and that this does not
threaten the privilege from self-incrimination.

3.17 In Canada right to silence is recognised by Section 11(c) of the

Canadian Charter of Rights and Freedom. Section 4(6) of the Canadian
Evidence Act 1985 provides that failure to testify shall not entitle the court to
draw an adverse inference against him.

3.18 In Italy, adverse inference is drawn against the accused for failure to testify. In
44

Japan the accused has the right to silence and no adverse inference can be
drawn on his refusal to testify. In South Africa, right to silence is enshrined in
Section 35 of the Bill of Rights and no adverse inference can be drawn against
the accused for failure to answer any question during investigation or trial.

3.19 So far as Australia is concerned, in New South Wales, the accused

has the right to silence and Section 20 provides that adverse inference can be
drawn against the accused for failure to testify only when a comment is made
by another accused in the case. The position is slightly different in the State of
Queensland. In the Case of Weissensteiner vs. Queen (1993 178, Common
Law Report 217) the majority has held that adverse inference can be drawn on
the failure of the accused to testify where the evidence establishes a prima-facie
case.

3.20 The Law Commission of North South Wales has in its recent
report No.95 recommended that legislation based on Sections 34, 36 and 37 of
the United Kingdom Criminal Justice and Public Order Act 1994 should not be
introduced in South Wales. However they have made recommendations No.5
(a), 5(b) and No.10 to require the accused to disclose his defence in several
respects and upon failure to do so to draw adverse inference and also to draw
adverse inference on the refusal of the accused to testify.

3.21 United Kingdom has during last few years undertaken several
measures to reform the Criminal Justice System. The reforms which have a
bearing on the right to silence of the accused are contained in Sections 34, 35,
36 and 37 of the Criminal Justice and Public Order Act 1994. These provisions
permit “proper inferences” being drawn from the silence of the accused to the
questions put to him during investigation or trial.

3.22 In Northern Ireland there are similar provisions in the Criminal

Evidence (Northern Ireland) Order 1988. In that Country the cases are tried
with the help of the Jury. A case arising from Northern Ireland where silence of
the accused was taken into account, came up for consideration in the House of
Lords in the case of Murray vs. DPP (1993 Cr.APP.REP.151). In that case Lord
Mustill observed that no finding of guilt can be arrived at merely on the basis of
the silence of the accused unless the prosecution makes out a prima-facie case. On
appeal, the European Court of Human Rights in Murray Vs. United Kingdom
(1996) 22 EHRR-29 upheld the validity of the Irish Law holding that they did not
have the effect of denying the right of the accused to a fair trial or of rebutting the
presumption of innocence flowing from Article 6 of the European Convention.
The Court however held that two conditions should be satisfied for drawing
appropriate inferences from the silence of the accused, namely (i)
that the prosecution must firstly establish prima-facie case and (ii) that the accused
should be given an opportunity to call his Attorney when he is interrogated
45

during investigation or questioned during the trial. In the light of this decision
of the European Court of Human Rights, the Criminal Justice and Public Order
Act 1994 applicable to England and Wales was amended to bring it in
conformity with the view taken by the European Court of Human Rights and a
provision requiring the accused to be informed of his rights to call an Attorney
was added.

3.23 Shortly thereafter a case arose from the United Kingdom in which
the provisions of the English Act permitting appropriate inferences being drawn
from the silence of the accused were challenged. The matter ultimately reached
the European Court on Human Rights which rendered its judgment in Condron
Vs. United Kingdom on the 2nd of May 2000. The European Court of Human
Rights did not dissent from the view taken by it earlier in Murray’s case.
However the Court set aside the conviction of Condron on the ground that there
was misdirection by the Court to the jury in the context of the stand taken by
the accused that he remained silent on the advice of his Solicitor. The
provisions of law which permit appropriate inferences being drawn against the
accused on his silence were up-held following its earlier decision in Murray’s
case.

V IEWS OF EMINENT JURISTS

3.24 Eminent lawyer Sri Fali Nariman has said “It is time that we
recognise the right of silence during a trial is not really a right, but a privilege
and although every accused has a right to be presumed innocent till he is proved
guilty, in terrorist related and other grave crimes the accused has an obligation
to assist the discovery of truth”. Former Chief Justice Ahmadi is in favour of
drawing an adverse inference on the silence of the accused only in relation
matters which are within the special knowledge and not in other cases. Former
Chief Justice Ranganath Misra says that requiring the accused to disclose his
defence once the prosecution case/charge leveled against him is made known to
him will not offend Article 20(3). He, however, says that no adverse inference
should be drawn if the accused remains silent.

V IEWS OF THE H IGH COURTS

3.25 The High Courts of Guwahati, Jammu & Kashimir, Karnataka,

Madras, Patna, Rajasthan, Sikkim and Uttaranchal have not expressed any views
on the question of drawing adverse inference against the accused on his refusal to
answer the questions put to him. They have also not expressed any opinion on the
question whether the accused should be required to disclose his defence once the
prosecution case/charge levelled is made known to him. The High
Courts of Andhra Pradesh, Bombay, Chattisgarh, Delhi, Gujarat, Himachal
46

Pradesh, Jarkhand, Kolkata, Orissa and Punjab & Chandigarh are in favour of
adverse inference being drawn on the accused refusing to answer the question
put to him. They are also in favour of requiring the accused to disclose his
defence.

V IEWS OF THE STATE GOVERNMENTS

3.26 Only the Governments of the States of Arunachal Pradesh,

Karnataka, Kerala, Haryana, Himachal Pradesh and Jammu & Kashmir have
offered their views on the ‘Right to Silence’. The other States have exercised
their Right to silence. The Governments of Arunachal Pradesh, Karnataka and
Himachal Pradesh favour adverse inference being drawn against the accused on
his silence. Kerala Govt. is not in favour of a general provision to draw adverse
inference against the accused on his refusing to answer the questions put to him.
Similar is the view of the Government of Jammu & Kashmir. The
Governments of Karnataka, Haryana and Jammu & Kashmir are in favour of a
provision being made requiring the accused to state his case in defence
immediately after the charge is framed against him. Governments of Karnataka
and Jammu & Kashmir favour issues being raised in regard to matters in
dispute. Allegations which are admitted or not specifically denied need not be
proved. It is further pointed out that the Supreme Court has held in AIR 1998
SC 6 between Sampath Kumar Vs. Enforcement Directorate that the disclosure
of the defence by the accused is not violative of Article 20(3).

RESPONSES TO THE QUESTIONNAIRE

3.27 Substantial majority of those who have responded to the

questionnaire sent by the Committee favour adverse inference being drawn if
the accused remains silent when questions are put to him. They are also in
favour of requiring the accused to disclose his defence once the prosecution
case/charge leveled is made known to him.

V IEWS OF THE LAW COMMISSION

3.28 However the Law Commission of India has in its 180th Report on
“Article 20 of the Constitution of India and the Right to silence” recommended
to the Government of India that no changes in the law relating to the right to
silence of the accused are necessary on the ground they would be violative of
Article 20(3) and Article 21 of the Constitution of India. The Committee would
therefore like to examine the reasons that persuaded the Law Commission to
make such recommendations. The main reasons assigned by the Law
Commission in support of their recommendations are as follows: -
i. That though the validity of Sections 34 to 37 of the United Kingdom Criminal
47

Justice and Public Order Act 1994 has been up-held by the
European Human Rights Court in the Condron’s case, these laws
have yet to be tested with reference to the U.K. Human Rights Act
1998.
ii. That the implementation of the two conditions laid down by the
European Human Rights Court firstly that prima-facie case should
be made out by the prosecution and secondly that the accused
should be given an opportunity to call his Attorney when he is
questioned are likely to create several difficulties and problems in
their implementation.
iii. So far as the position in Australia is concerned the Law
Commission has noticed that there are provisions in North South
Wales and other States which permit the Court to draw appropriate
inferences against the accused from his silence subject to certain
conditions which have been upheld in the decision in
Weissensteiner Vs. Queen (1993 178 COMLAWREP 217). The
Law Commission has also adverted to the recommendations of Law
Reforms Commission Report No.95 of North South Wales in which
it has recommended that no legislation based on Sections 34, 36
and 37 of the United Kingdom Criminal Justice and Public Order
Act 1994 should be introduced in North South Wales. Alongside
the Law Reforms Commission has made recommendations No 5(a),
5(b) and 10 which require the accused to disclose his defence in
several respects and upon failure to do so to draw adverse
inferences. The Law Commission says that these recommendations
amount to compelling the accused to disclose various facts relating
to defence failing which an adverse inference can be drawn against
the accused. These, in the view of the Law Commission would
violate the right against self-incrimination.
iv. The Commission feels the view taken by American and Canadian
courts which prohibit silence of the accused being taken into
consideration before arriving at the finding of guilt beyond
reasonable doubt is sound and must be accepted. It says that the
accused should be questioned to seek his explanation only after the
court has found the guilt of the accused beyond reasonable doubt.
v. The Law Commission says that it would be impracticable to
introduce changes on the United Kingdom pattern and further that
any modifications would offend Article 20(3) and Article 21 of the
Constitution.

3.29 The important question that requires serious examination is whether the
provisions which permit the court to draw an adverse inference against the accused on
his refusal to answer the question put to him during investigation or trial violate
Article 20(3).

3.30 At the outset let us understand the true scope and limits of the right to silence.
48

The common man’s common sense approach to the doctrine of Right to Silence
is beautifully portrayed in the following extract:
It is normal for a child who has stolen a cookie to be questioned by
his parent on its disappearance. It would be absurd if the child’s
defence is that he may not be questioned and in any event cannot be
expected to reply as this might incriminate him. Yet when he has
stolen a bicycle this is the accepted situation vis a vis police and
court, entrenched in our Constitution. He does not even have to
raise this defence, the constitution does it for him. And we don’t
find it absurd! We don’t consider whether the legal walls which we
erect that impede society’s search for the truth are warranted. And
we have no inkling of the cost of our strange procedure in monetary
terms and in wasted judicial, prosecutorial and police man hours.
Those that know are silent.
K van Dijkhorst.

3.31 The origin of the right to silence according to Wigmore is as

follows:
In 1637 John Lilburn was charged with printing or importing
seditious and heretical books. He denied the charges and was
interrogated thereon by the Council of the Star Chamber and
furnished answers. When the interrogation shifted to matters outside
the scope of the charges he refused to answer as the interrogators
were attempting to ensnare him in order to find other charges against
him. He was whipped and pilloried for this refusal. He did not let
the matter rest and petitioned parliament and eventually in 1641 the
Star Chamber and the Court of High Commission for Ecclesiastical
Cases were abolished, mainly as a result of his protests. This affair
gave rise to the privilege against self-incrimination. It was
essentially the right to refuse to answer and incriminate oneself in
the absence of a proper charge. Not initially, the right to refuse to
reply to a proper charge. And certainly not the right not to be
questioned. From this developed a philosophy that the culprit may
not be required to assist his adversary, the state, in giving him his
just desserts – due punishment for his crimes. That would be unfair.
It would be an unequal contest.
49

3.32 Bentham called the rule “one of the most pernicious and most
irrational notions that ever found its way into the human mind”.

3.33 Professor Glanville Williams in The Proof of Guilt (p.50-53) calls

it an irrational psychological reaction to past barbarism to refuse questioning of
an accused and observes as follows:
The rule cannot, if dispassionately regarded, be supported by an
argument referring to torture. No one supposes that in present-day
England a permission to question an accused person, if
accompanied, as it would be, by safeguards, would result in any ill
treatment of him. The risk, if there is one, is just the opposite: that if
dangerous criminals cannot be questioned before a magistrate or
Judge, the frustrated police may resort to illegal questioning and
brutal ‘third degree’ methods in order to obtain convictions”.
Historically regarded, the rule against questioning the defendant is
one example of the indifference of society to the need for securing
the conviction of the guilty.
Those who seek to alter the accused’s freedom from interrogation
ask only that the prosecution should be permitted, in court, to put
questions to be accused person, whether (since 1898) he elects to
give evidence or not. There would be no direct compulsion on the
accused to answer the questions if he preferred to maintain a stolid
silence; though of course this silence would almost certainly have a
most serious effect upon his defence. The crux of the matter is that
immunity from being questioned is a rule which from its nature can
protect the guilty only. It is not a rule that may operate to acquit
some guilty for fear of convicting some innocent. To quote
Bentley’s words, ‘If all criminals of every class had assembled, and
framed a system after their own wishes, is not this rule the very first
they would have established for their security? Innocence never
takes advantage of it; innocence claims the right of speaking, as guilt
invokes the privilege of silence.

3.34 Professor Salmond states in his treatise on Jurisprudence (11th

edition p.178):
The most curious and interesting of all these rules of exclusion is the
maxim Nemo tenetur se ipsum accusare… … … .. it seems impossible
50

to resist Bentham’s conclusion that the rule is destitute of any

rational foundation, and that the compulsory examination of the
accused is an essential feature of sound criminal procedure.

3.35 These great jurists have expressed very firmly and eloquently in
favour of the right to question the accused to elicit relevant information.
Drawing an adverse inference on the silence of the accused is a corollary that
flows from the right to put questions to the accused.

3.36 Right granted by Article 20(3) is in reality an immunity to the

accused from compulsion to speak against himself. Even when the accused is
not compelled to speak, he has the discretion to speak or not to speak. If he
choses to speak, the court can draw appropriate inferences from his statement.
Article 20(3) does not in terms speak of any immunity from drawal of
appropriate inference when the accused refuses to answer. It is difficult to infer
how immunity from drawal of appropriate inference including adverse
inference flows from or is a part of the immunity against testimonial
compulsions. If the court can draw an adverse inference against the accused
from his silence there would be less incentive for the police to resort to
compulsion or trickery to obtain a confession. If drawing of such adverse
inference is not permissible it would tend to encourage such behaviour.
Immunity from compulsion to be a witness against himself is a concept of
ancient origin long before the time of the Star Chamber. The concept of
immunity from adverse inference however is of the 20th century. This would
suggest that immunity from adverse inference on silence of the accused would
not flow from immunity against compulsion. It may not be right to say that
adverse inference should always be drawn from the silence of the accused.
Adverse inference should be drawn only where an answer is reasonably
expected from the accused and not mechanically in every case. That adverse
inference would be drawn by a trained judicial mind is sufficient to guarantee
that it would be exercised reasonably and on irrelevant considerations.

3.37 Validity of the provision of Sections 34 to 37 of the United

Kingdom Criminal Justice and Public Order Act 1994 has been up-held by the
European Human Rights Court in Condron’s case. A view similar to the one
taken in Condron and Murray’s cases has also been taken in Australia in
Weissensteiner Vs. the Queen (1993 178 COMLAWREP 217). They have held
that adverse inference can be drawn from the accused’s refusal to testify
when the evidence establishes prima-facie case. The Law Reforms
Commission of North South Wales which has recommended that no legislation
should be enacted based on Sections 34, 36 and 37 the United Kingdom
Criminal Justice and Public Order Act 1994 has itself made recommendations
in paragraphs 5 (a), 5 (b) and 10 which provide that the accused should
51

disclose his defence and upon his failure to do so, adverse inferences can be
drawn. It however seems to restrict drawing of adverse inference only by the
courts.

3.38 The Law Commission of India has pointed out that the United
States of America and Canada do not permit adverse inference being drawn
against the accused on his silence. It must be pointed out that many countries
such as United Kingdom, Northern Ireland, Australia, France and Italy provide
for adverse inference being drawn on the silence of the accused. The Law
Commission has not been able to point out any decision of any superior court
which has dissented from the view taken in the cases of Condron and Murray.

3.39 The paragraph from Glanville Williams book The Proof of Guilt
(p.60) which quotes a passage from Mr. Justice Swift’s charge to the jury has a
convincing answer to those who oppose drawing of adverse inference from the
silence of the accused. It reads:
‘Members of the jury, there is one person in this court who could tell
you a great deal about the disappearance of this little child. A great
deal! For it is admitted that he was with her on the evening and
during the afternoon of the day on which she was last seen.
He could tell you much, and, members of the jury, he sits before
you in the dock. But he has never been there [pointing to the
witness-box]. Would you not think that he would be willing-nay,
eager to go into the box, and on his oath tell you all he knows? But
he stays where he is. Nobody has ever seen that little girl since
twelve o’clock on January 6th. Nobody knows what has become of
her…
There is one person in this court who knows, and he is silent. He
says nothing to you at all.
The witness-box is there open and free. Whey did he not come and
tell you something of that strange journey beginning in the Guildhall
Street, Newark, when she inquired: ‘How is Auntie? I should like to
see Peter’?
There is one person in this world who could have made it all plain to
you. There is one man in the world who knows the whole story, and
when you are trying to elicit that which is true he sits there and
never tells you a word.
When [counsel for the defendant] says there is no evidence of what
happened on January 5th and 6th I venture to ask: ‘Whose fault is
that?’
52

You are not to speculate, but you are entitled to ask yourselves:
‘Why does he give us no information? Why is he silent when we are
wondering and considering what has happened to that little girl?’...
The position is, therefore, that the accused will normally give
evidence; or if he does not, the Judge will comment on the fact and
the jury will probably convict’.

3.40 In the considered view of the Committee, drawing of adverse

inference against the accused on his silence or refusing to answer will not
offend the fundamental
In the considered view of the Committee,
right granted by Article
drawing of adverse inference against the
20(3) of the Constitution
accused on his silence or refusing to answer will
as it does not involve any
not offend the fundamental right granted by
testimonial compulsion.
Article 20(3) of the Constitution as it does not
Therefore the Committee
involve any testimonial compulsion. Therefore
is in favour of amending
the Committee is in favour of amending the
the Code to provide for
Code to provide for drawing appropriate
drawing appropriate
inferences from the silence of the accused.
inferences from the
silence of the accused.

3.41 The English Law permits adverse inference being drawn when the
accused remains silent both at the stage of investigation and at the stage of trial.
The European Human Rights Court has held that adverse inference from the
silence of the accused can be drawn subject to two conditions (i) that there is
prima-facie case against the accused and (ii) the accused has access to a lawyer.
It is not easy to ensure access to lawyer during investigation in every case and
difficulties may arise in regard to due compliance with this condition in the
present Indian context. It is also difficult to expect a prima facie case being
established before the investigation is complete. The Law Commission of India
has said that it is not easy to ensure compliance with the second condition
namely of providing access to the lawyer at the stage of investigation. The
procedure established by law must be just, fair and reasonable to conform to
Article 21 of the Constitution. Fulfillment of the above two conditions is
necessary to render the drawal of adverse inference just, fair and reasonable. As
it is not reasonably possible to satisfy these two conditions the Committee is not
in favour of drawing adverse inference against the accused on his silence when
interrogated during investigation. This does not mean that the accused
should not be questioned during investigation or that the answers
given by him should not be taken into consideration at the appropriate stage
by the court. The Committee is therefore not in favour of making
provisions on the lines of Sections 34 and 36 of the United Kingdom Criminal
53

Justice and Public Order Act 1994. Section 35 of that act deals with similar
situation arising during trial before the court.

3.42 However such problems will not arise if the accused is questioned
during trial after the charge is framed. It is after investigation is complete and the
statements of witnesses and other relevant materials are collected the court on
being satisfied that there is a prima facie case frames the charge. Thus the court
would be examining the accused only after prima-facie is made out by the
prosecution. So far as access to the lawyer is concerned, it does not confront any
difficulty for the simple reason that the accused is entitled to take the assistance of
a lawyer of his choice and if he cannot afford one, at the cost of the State.
Therefore both the conditions are satisfied when the accused is examined during
trial. As it is, Section 313 (1)(a) of the Code provides for the accused being
examined without any previous warning for the limited purpose of giving an
opportunity to the accused to explain the circumstances brought out by the
prosecution in its evidence against him. Now without affecting that right it is
proposed to empower the court to put questions to the accused for the purpose of
discovering truth. This power must be liberally used by the courts to discover
truth. If the accused does not answer one or few questions the court should put
other questions to the accused and try to elicit as much information as possible.
Much depends on the tact of the Judge and the attitude of the accused. The court is
expected to use the new power of questioning the accused vigorously and
proactively inspired by the new objective of seeking truth. However this does not
give any right to the parties to ask questions to the accused. If they have any
questions they may suggest them to the court which will put
the questions to the accused if it is satisfied that it will assist in discovering truth or
otherwise advance the cause of justice. Power to put questions includes the power
not to ask questions if it is found that it is unnecessary. As no amendments to sub-
sections 2 and 3 are proposed, the accused will not be administered oath and he
will not be liable for punishment for refusing to answer the questions or for giving
false answers. The Committee recommends a provision being made in the Code on
the lines of Section 35 of the United Kingdom Criminal Justice and Public Order
Act 1994 to authorize the court to ask questions to the accused for discovering
truth and to draw adverse inference against the accused on his silence or refusal to
answer the questions put to him. No modification is called for to Section 315 of
the Code under which the accused can volunteer to be a witness and give evidence
on oath.

3.43 The Committee feels that examination of the accused during trial
should be done as at present after all the witnesses of the prosecution have been
examined and before he is called upon his defence, to elicit his explanation.

3.44 Another aspect that needs examination is the use of the courts power under
54

Section 313 (1)(b) of the Code to examine the accused to give him an
opportunity to explain the circumstances in evidence against him. There is a
catena of judicial decisions which have held that it is the duty of the court to
invite the attention of the accused to every circumstance that has come in
evidence against him. If there is any omission to bring any material
circumstance to the attention of the accused, it often leads the higher court
setting aside the conviction. In the considered view of the Committee such
elaborate examination is an unnecessary and avoidable exercise. As the
accused is furnished with all the copies of the statements of witnesses
recorded during investigation and the copies of documents on which the
prosecution relies, the witnesses for the prosecution are examined during trial in
the presence of the accused, he would be well aware of all the evidence and
circumstances brought out against him. Besides he is assisted by a lawyer. In
cases where there are more than one accused this would consume considerable
amount of court time. It is common experience that the accused rarely comes
forward with any explanation. His response is mostly one of bare denial. Even
at the appeal stage lot of time is spent in arguing that a particular question was
not put to the accused and therefore the trial is vitiated. Almost every trial Judge
with whom we interacted conveyed to us in unequivocal terms that this is an
unnecessary exercise and waste of precious time of the court. In these
circumstances it is unnecessary waste of time of the court to invite the attention
of the accused to every circumstance against him. It is enough to ask if the
accused has any explanation to offer in respect of the evidence produced by the
prosecution against him. Therefore it is felt necessary to amend Section 313 of
the Code to provide for questioning the accused only generally inviting him to
offer his explanation. It is after this mandatory questioning that the court may
put such questions to the accused as it considers necessary to discover truth
about the commission of the offence and his involvement.

3.45.1 The United Kingdom Criminal Justice and Public Order Act, 1994
has made several other reforms relating to investigation and trial. They have
introduced the concept of disclosure of their respective cases by the prosecution
as well as the accused. Relevant provisions are found in Chapter-25 of the
Criminal Procedure and Investigation Act, 1996. Brief summary of the relevant
provisions is as follows:

3.45.2 Part I (“DISCLOSURE”) contains 21 sections. Sections 3 and 4

make it obligatory for the prosecution, to disclose to the accused any material, it
may have withheld on the ground that it may affect the prosecution or a
statement that no such material is withheld. This disclosure must conform to
the Code of Practice enumerated in Section 24. In addition, the accused must
be also given copies of documents containing the evidence.

3.45.3 After such compliance by the prosecution, it becomes compulsory for the accused
55

under Section 5, “to give a defence statement to the court and the Prosecutor,”
within a time frame stipulated under Section. 12. The Defence Statement
[Section 5(6)] should:
i. Set out in general terms the nature of the accused’s defence.
ii. Indicate the matters on which he takes issue with the Prosecution.
iii. Set out in the case of each such matter, the reason why he takes
issue with the prosecution.

3.45.4 Sub-Section (6) stipulates, that in case of a defence of alibi, the

accused must also furnish the names and address of witnesses believed to be
able to give evidence in support of the alibi and any information in accused’s
possession which might be of material assistance, in finding such witnesses.

3.46 Section 6 enables the accused to make a similar voluntary

disclosure. Under S.7, it becomes the duty of the prosecutor, to disclose to the
accused any prosecution material which has not been previously disclosed, but
which might be reasonably expected to assist the defence. However, such
material need not be disclosed, if it is the result of interception under
Interception of Communications Act, 1985. Section 8 enables an accused to
apply for the production of material envisaged in section 6. Section 9 casts a
further obligation on the prosecutor, to continue to keep these matters under a
review, till the final stages of the trial. Failure to comply with these provisions
may either result in stay of the proceedings, for abuse of process, and if it
involves delay, it may amount to denial of fair trial.

3.47 Faults in disclosure by accused (section 11), such as inconsistent

stands, or the examination of witnesses different from the ones cited or a
different defence altogether, would invest the Court or any other party, with the
leave of the court, to make such comment as appears appropriate, and to draw
such inferences as appear proper in deciding whether the accused is guilty of
the offence concerned.

3.48 Part III, section 29 enumerates the purpose of preparatory hearings

such as:
i. Identifying issues which are likely to be material to the verdict of
the jury;
ii. Assisting their comprehension of any such issues;
iii. Expediting the proceedings before the jury;
iv. Assisting the Judge’s management of the trial.

3.49 The procedure introduced by these provisions is very useful in

reducing unnecessary waste of time and focusing attention to the real issues in
controversy. It casts responsibility on the parties to disclose their stand so that
none of the parties is taken by surprise and the cause of justice is advanced.
56

3.50 In our system it is the prosecution that furnishes to the accused

copy of the allegations and the supportive materials collected during
investigation. The accused is not required to disclose what his defence is going
to be. He may spring a surprise at any stage. This is not fair and hampers
dispensation of justice. So far as documents produced by the prosecution or the
accused are concerned, section 294 of the Code provides that the opposite party
can be called upon to admit or deny the genuineness of each document and if
not disputed, to admit the same without proof. Logically the same principle can
be extended to the allegations making out the case of the prosecution.

3.51 In criminal cases the onus of proving everything essential to the

establishment of the charge against the accused lies upon the prosecution
because the accused is presumed to be innocent until the guilt is established by
the prosecution. Section 105
of the Evidence Act is an In our system it is the prosecution that
exception to this general furnishes to the accused copy of the
rule and provides that when allegations and the supportive materials
a person is accused of any collected during investigation. The accused is
offence, the burden of not required to disclose what his defence is
proving the existence of going to be. He may spring a surprise at any
circumstances bringing his stage. This is not fair and hampers
case within any of the dispensation of justice. So far as documents
General Exceptions in the produced by the prosecution or the accused
Indian Penal Code, or within are concerned, section 294 of the Code
any special exception or provides that the opposite party can be called
proviso contained in any upon to admit or deny the genuineness of each
other part of the same Code document and if not disputed, to admit the
or in any law defining the same without proof. Logically the same
offence, is upon him, and principle can be extended to the allegations
the Court shall presume the making out the case of the prosecution.
absence of such
circumstances. It releases
the prosecution of the burden and necessity of proving the absence of facts
which might bring the case within the general or specific exception, or
exempted or proviso under the IPC or other criminal law. This Section involves
both (i) the presumption and (ii) a rule as to the burden of proof following it.
As the court is required to presume the non-existence of circumstances bringing
the case within the exception, the accused who relies on its existence, has to prove
the same. There is no law requiring the accused to plead before he can claim the
benefit of any general or special exceptions in the Penal Law. At present he may
take such a plea after the conclusion of the prosecution evidence, when he is
examined under section 313 of the Code. If at that stage the benefit of exception is
claimed the prosecution will be prejudiced as it would be deprived an opportunity
of leading evidence to negate the claim of the accused.
57

As quest for truth shall be the guiding star of the Criminal Justice System any
impediments to discovery of truth have to be eliminated. Therefore it is
necessary to require the accused to specifically plead at the earliest stage of the
trial of the case and disclose the general or special exception he claims. After
the charge is framed and supporting allegations called the ‘Prosecution
Statement’ are served on the accused, he should be required to file his reply
called the ‘Defence Statement’ in which he should state as to which of the
allegations he accepts and which he does not. He should specifically plead the
general exceptions in the IPC or any special exception or proviso contained in
any other part of the Code or any law defining the offence which he claims,
failing which he shall not be entitled to claim the benefit of such exceptions.
Along with the defence statement the accused should file the documents on
which he relies and the list of witnesses whom he proposes to examine.

3.52 In the light of the stand taken in the ‘Prosecution Statement’ and
the ‘Defence Statement’, the court should frame the points for determination
indicating the party on whom the burden of proof lies. Allegations which are
admitted or not denied shall not be required to be proved by the prosecution.
The allegations which are denied or not admitted will give rise to a point of
determination. Burden of proving the conditions for claiming the benefit of the
exceptions claimed shall be on the accused. However a provision may be made
giving discretion to the court to allow a belated plea being raised on the accused
showing sufficient cause.

3.53 If, in the light of the plea taken by the accused in his defence
statement, it becomes necessary for the Prosecution to investigate the case
further, it may do so with the leave of the court. The copies of the materials
collected during further investigation and relied upon by the Prosecution shall
be furnished to the accused.

3.54 As the accused is represented by a lawyer and as all the parties are
before the court it cannot be said that the suggested procedure is, in any manner
unfair or unjust or likely to cause prejudice to the accused. The amendments
proposed are necessary to conduct a fair trial with focus on the quest for truth a
shared responsibility of all the functionaries of the Criminal Justice System.
58
59

RIGHTS OF ACCUSED _ ______________________________

4.1 The overarching aim of the Criminal Justice System should be to

find out the truth. The person who is most likely to know the truth of an
offence which has been committed, is the offender himself. It must be
emphasised that the suspect/accused like the other players in the Criminal
Justice System can also contribute to the search for truth. It is true that except
where there has been a voluntary confession, the suspect/accused is unlikely to
incriminate himself; to which in a democracy, he is entitled to under the rights
guaranteed to him by the Constitution.

4.2 The rights of the The rights of the accused include the
accused include the obligation on obligation on the part of the State to
the part of the State to follow the follow the due processes of law, a
due processes of law, a quick and quick and impartial trial, restraint from
impartial trial, restraint from torture torture and forced testimony, access to
and forced testimony, access to legal legal aid etc.
aid etc.

4.3 The present day approach of the Courts - in their attempt to find
out whether or not there is evidence “beyond reasonable doubt” that the accused
has committed a particular offence – is only to look at the evidence for or
against the accused and balance the evidence rather than seek the truth. In
attempting to get away from a situation of such balancing of evidence and the
Judge acting as an umpire, the Committee feels that it would be useful to put in
place the search for truth as the basis.

4.4 Accused has a right not to be convicted for any offence for the
commission of an act which was not an offence at the time of the commission
of the act nor to be subjected to a penalty greater than the one prescribed at the
time of commission of the Act. [Art 20 (1)]. The rights of the accused under
the Constitution and laid down by the Supreme Court in A.I.R. 1994 S.C. 1349,
Joginder Kumar vs. State of Uttar Pradesh and A.I.R. 1997 S.C. 610 D.K. Basu
vs. State of West Bengal are as follows:
60

1. Accused has a right against double jeopardy. [Art 20 (2)].

2. Accused has a right not to be compelled to be a witness against
himself. [Art 20 (3)].
3. No accused shall be deprived of his life or personal liberty except
in accordance with procedure established law which is just, fair
and reasonable. [Art 21].
4. Accused has a right to fair and speedy trial. [Art 21].
5. Accused has a right to assistance of a Counsel. [Art 22 (1)].
6. Right to be produced before the Magistrate within 24 hours of
arrest excluding the time for travel. [Art 22 (2)].
7. Right not to be detained in custody beyond 24 hours after arrest
excluding the time for travel without the order of the Magistrate.
[Art 22 (2)].

Arrest and Rights of Accused

8. An arrested person being held in custody is entitled, if he desires,
to have one friend, relative or other person, who is known to him
or likely to take an interest in his welfare, told as far as practicable
that he has been arrested and where he is being detained.
9. The police officer shall inform the arrested person when he is
brought to the police station of this right.
10. The entry shall be required to be made in the diary as to who was
informed of the arrest.

Obligation of Police Officers after arrest:

11. The police personnel carrying out the arrest and handling the
interrogation of the arrestee should bear accurate, visible and clear
identification and name tag with their designations. The
particulars of all such police personnel who handle interrogation of
the arrestee must be recorded in a register.
12. That the Police Officer carrying out the arrest of the arrestee shall
prepare a memo of arrest at the time of arrest and such memo shall
be attested by at least one witness, who may be either a member of
the family of the arrestee or a respectable person of the locality
from where the arrest is made. It shall also be countersigned by
the arrestee and shall contain the time and date of arrest.
13. A person who has been arrested or detained and is being held in
custody in a police station or interrogation centre or other lock-up,
shall be entitled to have one friend or relative or other person
known to him or having interest in his welfare being
informed, as soon as practicable, that he has been arrested and is
61

being detained at the particular place, unless the attesting witness

of the memo of arrest is himself such a friend or a relative of the
arrestee.
14. The time, place of arrest and venue of custody of an arrestee must
be notified by the police where the next friend or relative of the
arrestee lives outside the district or town through the Legal Aid
Organisation in the District and the police station of the area
concerned telegraphically within a period of 8 to 12 hours after the
arrest.
15. The person arrested must be made aware of this right to have
someone informed of his arrest or detention as soon as he is put
under arrest or is detained.
16. An entry must be made in the diary at the place of detention
regarding the arrest of the person which shall also disclose the
name of the next friend of the person who has been informed of the
arrest and the names and particulars of the police officials in whose
custody the arrestee is.
17. It has been pointed out that in grave crimes such as those relating
terrorism, organised crime etc. investigation may be frustrated if
compliance with the directions contained in paras 14, 15 and 16
regarding the opportunity to be given to the arrestee to
communicate with a friend or advocate are insisted upon.
Verification of information revealed during interrogation is a time
consuming process specially when several co-accused and
conspirators are involved. Compliance with the directions may
lead to alerting the co-accused or the accomplices who may not
only evade arrest but also destroy or shift materials and evidence
and defeat the timely recovery of crucial evidence. Deviation from
this rule may be permitted for a reasonable period in public
interest. If an Investigating Officer has reasonable ground to
believe that compliance with such directions would adversely
affect the investigation, he may, with the permission of the
supervisory officer, dispense with compliance with the direction
for the reasons to be recorded in writing. He shall forward a copy
of the same to the court concerned at the earliest.
18. The arrestee should, where he so requests, be also examined at the
time of his arrest and major and minor injuries, if any present on
his/her body, must be recorded at that time. The “Inspection Memo”
must be signed both by the arrestee and the police officer effecting
the arrest and its copy provided to the arrestee.
19. The arrestee should be subjected to medical examination by a trained
doctor every 48 hours of his detention in custody by a doctor on the
panel of approved doctors appointed by Director, Health Services of
the concerned State of Union Territory. Director, Health Services
should prepare such a panel for all Tehsils and Districts as well.
62

20. Copies of all the documents including the memo of arrest, referred to
above, should be sent to the Illaqa Magistrate for his record.
21. The arrestee may be permitted to meet his lawyer during
interrogation, though not throughout the interrogation.
22. A police control room should be provided at all district and state
headquarters, where information regarding the arrest and the place of
custody of the arrestee shall be communicated by the officer causing
the arrest, within 12 hours of effecting the arrest and at the police
control room it should be displayed on a conspicuous notice board.

4.5 DUTY OF THE MAGISTRATE WHEN THE ACCUSED IS PRODUCED

When the arrested person is produced before the Magistrate, he has a duty
to enquire with the accused as to when he was arrested and the treatment meted out
to him including subjecting him to third degree methods, and about the injuries if
any on his body.

4.6 H ANDCUFFING OF ACCUSED

(i) As a rule handcuffs or other fetters shall not be forced on prisoners

convicted or under-trial –while lodged in a Jail anywhere in the
country or while transporting or in transit from one Jail to another
or from Jail to Court or back. The Police and the Jail authorities, on
their own, shall have no authority to direct the handcuffing of any
inmate of the Jail in the country or during transport from one Jail to
another or from Jail to Court or back.
(ii) Where the Police or the Jail authorities have well grounded basis
for drawing a strong inference that a particular prisoner is likely to
jump Jail or break out of the custody then the said prisoner be
produced before the Magistrate concerned and a prayer for
permission to handcuff the prisoner be made before the said
Magistrate. In rare cases of concrete proof regarding proneness of
the prisoner to violence, his tendency to escape, he being too
dangerous / desperate and finding no other practical way of
forbidding escape is available, the Magistrate may grant permission
to handcuff the prisoner.
(iii) In all the cases where a person arrested by Police, is produced
before the Magistrate and remand---judicial or non-judicial— is
given by the Magistrate, the person concerned shall not be
handcuffed unless special orders in that respect is obtained from the
Magistrate at the time of the grant of the remand.
(iv) When the Police arrests a person in execution of a warrant
of arrest obtained from a Magistrate, the person arrested
shall not be handcuffed unless the police has
63

also obtained orders from the Magistrate for the handcuffing of

the person to be so arrested.
(v) Where a person is arrested by the Police without warrant, the
Police Officer concerned may if he is satisfied, on the basis of the
guidelines given by the Supreme Court in para above, that it is
necessary to handcuff such person, he may do so till the time he
is taken to the Police Station and thereafter his production before
the Magistrate.

4.7 In most of the countries handcuffing is permitted as a rule. The

above restrictions on the right of the police to handcuff the accused have
created lot of practical difficulties. It is not always easy to prevent the accused
from escaping. At the same time it is necessary to ensure that this power is not
misused. As now-a-days accused are becoming more daring and are even
prepared to risk their life to escape, it may be necessary in larger public interest
to remove the onerous restrictions now placed on the right of the Police Officer
to handcuff the suspect. Therefore, the Committee is of the view that
appropriate provision in the Code should be made prescribing the conditions for
handcuffing and providing an in-house mechanism to correct the aberrations
including punishing the Officer for misusing the power. Seeking review of the
decision of the Supreme Court may also be considered.

4.8 Interrogation: The suspect has a right to counsel during

interrogation and should be allowed to meet his counsel; but the counsel need
not be present throughout the interrogation; where necessary, he is entitled to
free legal aid and enjoys the right to remain silent. A woman or a child below
16 years of age cannot be taken to a police station for interrogation. This should
apply equally to those who have serious physical or mental problems. Though
this does not apply to the suspect/accused, it may be necessary to introduce this
change.

4.9 Torture, violence, rape etc.: If tortured, an accused should have

the freedom to apprise the Magistrate of the incident, when produced before
him. In such cases, the magistrate can remand him to judicial custody. This
should be true of any violence or sexual offence perpetrated against an accused
person in custody. In all such cases, there must be a detailed enquiry.

4.10 BAIL

4.10.1 A person accused of a bailable offence is entitled to bail as a

matter of right. Similarly, persons accused of non-bailable offence may be
granted bail at the
64

discretion of Court, on application. The main purpose behind the denial of bail
is that the person can help the police during investigation and not tamper
evidence, threaten the witness or impede the course of justice. The bail may be
granted at the discretion of the Court depending on the charge against the
person and progress of the case. A person seeking bail must furnish bond of
necessary value before he is released. He is granted bail on the condition that he
presents himself as and when required by the investigating authority and not
leave the Country till the trial is complete. The amount of bail should be
reasonable and not excessive.

4.10.2 A person who has reason to believe that he may be arrested in

future for a non bailable offence, may apply to the competent Court for grant of
anticipatory bail. The Court considering the circumstances of the case may
grant anticipatory bail so that in the event of arrest, he shall be released on bail.

4.10.3 Bail may be cancelled depending on the behaviour of the person

after the grant of bail. If there is sufficient reason to believe that the accused
may abscond, repeat the offence, tamper with evidence, threaten witnesses, then
the Court may cancel bail on obtaining sufficient proof regarding the
involvement of the accused in crime.
65

PRESUMPTION OF INNOCENCE AND B URDEN OF PROOF

5.1 Every man is presumed to be innocent until he is proved guilty.

This is the cardinal principal of criminal law. In recognition of this right of the
accused the burden of establishing the charge against the accused is placed on
the prosecution. The concept of burden of proof is one of the most important
contributions of Roman law to the criminal law jurisprudence. This principle is
based on fairness, good-sense and practical utility and accepted in the English
Common Law. In the case of Woolmington vs. Director of Public Prisons 1935
AC 462 the law has been lucidly restated by Viscount Sankey, LC as follows:
Throughout the web of the English criminal law, one golden thread
is always to be seen that it is the duty of the prosecution to prove the
prisoner’s guilt, subject to what I have already said as to the defence
of insanity and subject also to any statutory exception. If, at the end
of, and on the whole of the case, there is a reasonable doubt created
by the evidence given by either the prosecution or the prisoner, as to
whether the prisoner killed the deceased with a malicious intention
the prosecution has not made out the case, and the prisoner is
entitled to acquittal.

5.2 This principle has been followed in India vide decision of the
Supreme Court in Dahyabhai Chhaganbhai Thakkar vs. State of Gujarat AIR
1964 SC 1563. This is a universally recognised right and Article 14(2) of the
International Covenant on Civil and Political Rights, 1966 provides “Every one
charged with a criminal offence shall have the right to be presumed innocent
until he is proved guilty according to law”. It is left to the law making authority
to prescribe the procedure for proof.

5.3 Section 101 of the Evidence Act provides that the party who seeks
a Judgement from the court about any legal right or liability dependent on the
existence of certain facts must prove that those facts exist. Section 102
provides that the burden of proof lies on that person who fails, if no evidence
at all is given on either side. Section 103 provides that burden of proof
as to any particular fact lies on that person who wishes the court to believe in
66

its existence unless otherwise provided by law. Section 105 provides that
burden of proving that the case of the accused comes within any of the
exceptions lies on him.

5.4 Section 106 provides that when any fact is especially within the
knowledge of any person, the burden of proving that fact is upon him. Section
3 defines the expression “proved” as follows:
A fact is said to be proved when, after considering the matter before
it, the Court either believes it to exist, or considers its existence so
probable that a prudent man ought, under the circumstances of the
particular case, to act upon the supposition that it exists.

5.5 Section 3, while adopting the standard of the prudent man as an

appropriate concrete standard by which to measure ‘proof’also contemplates of
giving full effect to the circumstances or condition of probability or
improbability. Section 3 does not speak of proof beyond reasonable doubt. The
Supreme Court has in AIR 1974 SC 859 Collector of Customs, Madras vs.
D.Bhoormall, held:

All that it requires is the establishment of such a degree of

probability that a prudent man may, on its basis, believe in the
existence of the fact in issue. Thus, legal proof is not necessarily
perfect proof; often it is nothing more than a prudent man’s estimate
as to the probabilities of the case.

5.6 However, the cardinal principle of criminal law jurisprudence that the
burden rests on the Prosecution of proving its case has been deviated in several
statutes. Under Sections 105 to 114(A) of the Indian Evidence Act, burden of
proof is shifted to the accused. As an example we may advert to illustration (b) to
Section 106 which says that when “A” is charged with traveling on railway
without a ticket, the burden of proving that he had a ticket is on him. There are
other provisions where burden of proof shifts to the accused after the Prosecution
establishes certain facts, e.g. sections 107, 108, 109, 110, 111-A, 112, 113-A, 113-
B, 114-A. By way of illustration we may advert to Section 114-A which says that
where sexual intercourse by the accused is proved and the victim states in her
evidence that she did not consent, the court shall presume that she did not consent
and the burden shifts to the accused to prove that she had given her consent.
Similar provisions are found in several special statutes.

5.7 Presumptions are legal devices whereby courts are entitled to

pronounce on an issue notwithstanding that there is no evidence or
insufficient evidence. Presumptions may be either of fact or of law.
It may be either conclusive or rebuttable. But presumptions of facts
67

are always rebuttable. The Supreme Court of India has in several cases up-held
the constitutionality of statues providing for such presumptions. In 1991 SCC
(Cri) 734 K.Veeraswamy Vs. Union of India, the Supreme Court has up-held
the validity of Section 5(1)(e) and Section 5(3) of the Prevention of Corruption
Act which place the burden on the accused to rebut the statutory presumption.
It is held that this law is just, fair and reasonable and does not contravene
Article 21 of the Constitution. In (1986) 2 SCC 486 Sodhi Transport Co. vs.
State of U.P, the Supreme Court has held: -
A rebuttable presumption which is clearly a rule of evidence has the
effect of shifting the burden of proof and it is hard to see how it is
unconstitutional when the person concerned has the opportunity to
displace the presumption by leading evidence.

5.8 It is therefore clear that “proof beyond reasonable doubt” is not an

absolute principle of universal application and deviations can be made by the
legislature. Deviations can take different forms such as shifting the burden of
proof to the prosecution or prescribing a standard of proof lower than “proof
beyond reasonable doubt”. As long as the accused has the opportunity to adduce
evidence to nullify the adverse effect such deviation will not offend Article 14
or 21 of the Constitution. Even in England the principle in Woolmington case
would apply only in the absence of a statutory provision to the contrary.

5.9 While the concept of “presumption of innocence” maintains its

pivotal position in the criminal law jurisprudence, there is a steady shifting of
burden of proof to tackle the new problems such as growing socio-economic
problems, emergence of new and graver crimes, terrorism, organised crimes,
poor rate of conviction, practical difficulties in securing the evidence etc.

5.10 What is meant by “proof beyond reasonable doubt”? It is not

defined and is not easy to define. Prof. Wigmore in his classic treatise on
Evidence points out the difficulty in ascertaining how convinced one must be to
be convinced beyond a reasonable doubt. He says:
The truth is that no one has yet invented or discovered a mode of
measurement for the intensity of human belief. Hence there can be
as yet no successful method of communicating intelligibly a sound
method of self-analysis for one’s belief. And yet the choice of the
standard of proof makes a difference.

5.11 Judge Harlan of the US Supreme Court has explained in 397 US

358, 25 L.ED how this principle will more often set guilty free than send the
innocent to prison.
68

5.12 Whereas the civil cases are governed by the standard of proof
prescribed by section 3 of the Indian Evidence Act namely, preponderance of
probabilities, the criminal cases are governed by a higher standard of “proof
beyond reasonable doubt” laid down by judicial decisions.

5.13 The protagonists of reforms contend that there is no justification

for applying a higher standard of proof than the one prescribed by the law made
by Parliament, in criminal cases. They argue that “proof beyond reasonable
doubt” is a vague, unreasonable, unfair, unjust and impractical standard which
has done more harm than good to the society. They want that the lower standard
of “preponderance of probabilities” should govern criminal cases. We should
examine the arguments against the higher standard of ‘proof beyond reasonable
doubt’in the context of the new ethos of quest for truth.

5.14 The standard “proof beyond reasonable doubt” places a very heavy
burden proof on the Prosecution. It is vague and not easy to define. Professor
Glanville Williams in his book The Proof of Guilt says:
To say that the burden of proving a crime is generally on the
prosecution does not conclude all questions. What degree or
quantum of proof is needed: is it mere likelihood, or certainty, or
something in between these two extremes? This question in turn
raises a fundamental issue of penal policy: how far is it
permissible, for the purpose of securing the conviction of the
guilty, to run the risk of innocent persons being convicted?

5.15 The courts believe that it is better that ten guilty persons escape
rather than one innocent person suffer. It is from such concern of the courts to
safeguard personal liberty of the citizens that flows the standard of ‘proof
beyond reasonable doubt’. This fails to take into account that it is as much as a
miscarriage of justice to acquit a guilty person as it is to convict an innocent.
Professor Glanville Williams has narrated the adverse affects flowing from
acquittal of the guilty persons in the following words:

The evil of acquitting a guilty person goes much beyond the

simple fact that one guilty person has gone unpunished.
It frustrates the arduous and costly work of the police, who,
if this tendency goes too far, may either become daunted or resort to
improper methods of obtaining convictions. If unmerited
acquittals become general, they tend to lead to a
disregard of the law, and this in turn leads to a public demand
for more severe punishment of those who are found guilty. Thus the
69

acquittal of the guilty leads to a ferocious penal law. An acquittal is,

of course particularly serious when it is of a dangerous criminal who
is likely to find a new victim.

5.16 Courts have quite often observed that though they are convinced
that the accused is guilty they have to acquit him because there is some
reasonable doubt. Chief Justice Ahmadi says that in actual practice, in a large
number of cases “proof beyond reasonable doubt” virtually becomes “proof
beyond doubt”. There is considerable subjective element involved in coming to
the conclusion that the doubt is a reasonable one. In the process, instead of
focusing on discovering truth, attention is drawn to the doubts and about their
reasonableness. It is common knowledge that most of the acquittals flow from
the finding of the court that the
prosecution has failed to prove its There is considerable subjective
case beyond reasonable doubt and element involved in coming to the
that therefore the accused is entitled conclusion that the doubt is a
to the benefit of doubt. Very grave reasonable one. In the process,
consequences flow from the large instead of focusing on discovering
percentage of acquittals of guilty truth, attention is drawn to the doubts
persons. More the number of and about their reasonableness.
acquittals of the guilty, more are the
criminals that are let loose on the society to commit more crimes. This they
would do with greater daring for they know by their own experience that there
is no chance of their being punished. If the loopholes are not tightened, there
will in course time be more criminals in the society to cause more harm to
innocent citizens. Such criminals may occupy important and sensitive position
in public life. If criminals start ruling the country one can imagine the
consequences. If crimes go unchecked anarchy will not be a matter of distant
future. Peace and law & order situation depend to a large extent on the efficacy
of the Criminal Justice System. There is therefore an imperative need to
provide a fair procedure that does not allow easy escape for the guilty. In
(1973) Cri.L.J. 1783 Shivaji vs. State of Maharashtra, Justice Krishna Iyer
while criticizing the view that it is better that several guilty persons should
escape than making one innocent person to suffer said that public accountability
is one of the most important responsibilities of the judiciary. Therefore, if the
accused is acquitted on the basis of every suspicion or doubt, the judicial system
will lose its credibility with the community. Proof beyond reasonable doubt
clearly imposes an onerous task on the prosecution to anticipate every possible
defence of the accused and to establish that each such defence could not be made
out.

5.17 Realisation of these problems has contributed to a steady watering

down the rigour of this standard. Justice K.T.Thomas, former Supreme Court
Judge has in his ‘Justice Sir Sayed Mahmood Memorial Lecture’has observed the
following:
70

Even regarding the pristine doctrine of proof beyond reasonable doubt,

the pre-independence approach was one of strict adherence to that
doctrine. In some cases, even that extreme view was crossed by saying
what is meant by it is to prove beyond a shadow of doubt. But the case-
law which developed during the post-independence period relaxed the
rigor of the doctrine and reached the level of making it as “proof with
reasonable certainty will tantamount to proof beyond reasonable doubt”.
The case law further advanced by narrowing down the meaning of the
word “doubt” as something much higher than a hunch or hesitancy. They
said that reasonable doubt is what a conscientious mind judicially
entertains with a good level of reasonableness.

5.18 The standard of proof is becoming flexible. In (1994) 1 S.C.C. 73,

State of West Bengal vs. Orilal Jaiswal, the Supreme Court said “… ..there is no
absolute standard of proof in a criminal trial and the question… … must depend
upon the facts and circumstances of the case… … The doubt must be of
reasonable man and the standard adopted must be a standard adopted by a
reasonable and just man… … .”

5.19 Following the observations of Lord Denning in (1950) All ER 458,

Justice Sabyasachi Mukharji observed “reasonableness of doubt must be
commensurate with the nature of the offence to be investigated. Exaggerated
devotion to the rule of benefit of doubt must not nurture fanciful doubts… … .
Letting guilty escape is not doing justice according to law.”

5.20 Thus, it is seen that there is no strict adherence to “proof beyond

reasonable doubt” and the courts have not hesitated to modify the standard
depending upon the needs of justice.

5.21 In USA, the standard of proof adopted in criminal cases is “proof

beyond reasonable doubt”. But in cases of fraud some of the States in USA
have adopted a lower standard called the “clear and convincing standard”. This
demonstrates that depending upon the local conditions and the requirements of
the situation, the law-makers have prescribed standards lower than “proof
beyond reasonable doubt”.

5.22 “Proof beyond reasonable doubt” is not a standard of universal

application. France has not adopted this standard. The French standard is “in
time conviction” or inner conviction, the same as “proof on
preponderance of probabilities”. International Convention on Civil
71

and Political Rights has recognised in Article 14(2) the right of the accused ‘to
be presumed innocent until proved guilty according to law’. In other words
though presumption of innocent is universally recognised the mode of proof
which includes the standard of proof is a matter which is left to be regulated by
law made at the discretion of the respective States. Therefore, the Indian
Parliament is entitled to prescribe any other standard of proof which it considers
appropriate.

5.23 “Proof beyond reasonable doubt” is understood by different Judges

differently. How this principle actually operates in the minds of the decision
maker is not easy to gather. In England the responsibility of assessing the
evidence produced by the prosecution and to decide whether the accused is guilty
or not rests with the jury which consists of common citizens in the locality. After
the evidence for the prosecution is adduced and the time for the jury to make its
decision arrives, the Judge, trying the case has to address the jury and tell them
that they have to decide whether the accused is guilty or not bearing in mind that
the burden is on the prosecution of proving the case beyond reasonable doubt.
Thus if they entertain any reasonable doubt in their minds, the benefit of that doubt
must be given to the accused and he be pronounced not guilty. Judges have to
explain to the jury what the expression “proof beyond reasonable doubt” means.
In the Woolmington’s case, the House of Lords approved the explanation of the
trial Judge to the jury that “proof beyond reasonable doubt” required “a clear
conviction of guilt and not merely a suspicion, even a strong suspicion, though on
the other hand a mere fanciful doubt where it was not in the least likely to be
true would not prevent conviction”. Shortly thereafter in Summer’s case (1952)
36 C.A.R.14, the Court of Appeal ruled that the expression “reasonable doubt’
ought to be abandoned because it could not be satisfactorily defined. Instead,
the court said that the jury should have been directed that they must be
“satisfied” of guilt or “satisfied so that they can feel sure” of it. In a later case
in which the Judge told the jury that they should be satisfied of guilt the court of
appeal held that it is not an adequate way of informing the jury that the accused
is entitled to the benefit of doubt if there is one. This only demonstrates the
practical difficulties in understanding and explaining what ‘proof beyond
reasonable doubt’ means. It is of essence that the law affecting the rights of the
citizens should be clear and certain. Different meanings contribute to
uncertainty and confusion.

5.24 In the case of Brown vs. Stott 2001 (2) All ER 17 PC it was
observed that “there was need therefore to maintain a fair balance between the
general interest of the community and the personal right of the individual”.

5.25 The principle “proof beyond reasonable doubt” was

evolved in the context of the system of jury trial in the UK.
The verdict on the guilt of the accused was the responsibility of
72

the jury. The jury consisted of ordinary citizens in the locality. As they are not
trained Judges they may jump to conclusions without due care and concern for
the rights of the accused. Therefore standard of “proof beyond reasonable
doubt” appears to have been evolved for the guidance of the jury. That
principle which was originally meant for the guidance of the jury is being
followed by all the courts of the countries which follow common law.

5.26 Though the trial Judge in the jury system asks the jury to take a
decision bearing in mind that the burden is on the prosecution of proving the
case beyond reasonable doubt, it is doubtful whether in practice the members of
the jury would make a conscious effort to apply this principle in deciding the
case. As the jury consists of laymen who are not used to the judicial ways of
assessing evidence, they would decide the matter in the same manner they take
decisions in their day to day affairs As the jury consists of laymen who are
and not following the un-common not used to the judicial ways of
way of looking for reasonable assessing evidence, they would decide
doubt. That standard which a the matter in the same manner they
prudent man would apply is of take decisions in their day to day
“preponderance of probabilities”. affairs and not following the un-
But so far as Judges are concerned common way of looking for
they being trained in the art of reasonable doubt. That standard which
decision making try to apply the a prudent man would apply is of
‘proof beyond reasonable doubt’ “preponderance of probabilities”.
standard.

5.27 The legislative practice of prescribing statutory presumptions

indicates how the legislature has been prescribing a lower standard of proof. For
example under section 4 of the Public Gambling Act 1867, “any person found in a
common gambling house… … .shall be presumed until the contrary be proved to
have been there for the purpose of gambling”. The mere fact that the person is
found in the common gambling house does not mean that he is necessarily there
for the purpose of gambling. He may be there for any innocent purpose. In the
absence of this presumption, the prosecution had to prove not only that the accused
was found in the common gambling house but also that he was there for the
purpose of gambling. As a result of the presumption under section 4 the
prosecution is absolved of the burden of proving that the presence of the accused
was for the purpose of gambling. If such taking away the burden of proof of the
prosecution can be done by enacting a law for that purpose, there is no good
reason why a law cannot be made to prescribe a lower standard of proof than
“proof beyond reasonable doubt”.

5.28 Requirement of “proof beyond reasonable doubt”

was laid down long back with regard to the prevailing
circumstances of the time. At that time offences were few, ways and
73

habits of the people were simple, people were more honest, by and large
witnesses readily came forward to give truthful evidence before the court. The
modes adopted for committing the offences were simple. Now there is a sea
change in all these aspects. People now-a -days are better informed. The Press,
the radio, the T.V, films and various types of literature have enormous influence
in educating and enlightening people of different ways of committing crimes.
They use sophisticated weapons and employ techniques so as not to leave any
trace of evidence that may implicate them. The accused are becoming more
daring and reckless. The level of morality has gone down and regard for truth
is waning. Witnesses do not come forward to give evidence on account of
threats or inducements and those who come, quite often turn hostile. It looks as
though the criminals are emerging stronger than the law enforcing agency. The
existing laws and procedures are proving inadequate to meet the new
challenges. The changing scenario has to be taken into account to evaluate the
efficacy of the present standard and to find suitable solutions to meet the new
challenges.

5.29 While proof on “preponderance of probabilities” followed in civil

cases provides a lower standard of proof, “proof beyond reasonable doubt”
followed in criminal cases provides a higher standard of proof bordering on
certainty. The cherished object of the Criminal Justice System is to ensure that
every guilty person is punished and every innocent person is protected. Our
experience shows that operation of the standard “proof beyond reasonable doubt”
has contributed to large number of guilty persons escaping punishment. This
standard followed all these years has failed to achieve the main object of ensuring
that the guilty are punished. What then is the answer and what are the options
available to remedy the mischief? Should we opt for the standard of “proof on
preponderance of probabilities” that is applied in civil cases? On a careful
examination the Committee is of the view that this standard is not adequate to lend
assurance that the innocent will be protected. Therefore, we have to find standard
of proof which, while protecting the innocent is adequate to prevent the guilty
escaping punishment. A standard in between these two standards seems to be the
answer.

5.30 In this connection it is useful to advert to the following observation

in Riley Hill General Contractor vs. Tandy Corp, 737 P.2d 595 (Or.1987):
There are three standards of proof: “a preponderance”, “clear and
convincing” and “beyond a reasonable doubt”.

5.31 The middle course, in our opinion, makes a proper balance between
the rights of the accused on one hand and public interest and rights of the
victim on the other. This standard is just, fair and reasonable. It is operated not
by layman but by Judges who are sensitive to the rights
of the accused and recognised in criminal jurisprudence. Safety lies in the
74

fact that the accused is assisted by a lawyer and the Judge is required to give
reasons for his findings. This will promote public confidence and contribute to
better quality of justice to victims. It is time for realm of doubts to pave way
for search for truth and justice.

V IEWS OF EMINENT JURISTS

5.32 Mr. Fali Nariman favours modification of the principle of “proof

beyond reasonable doubt” and says that there is a need to maintain a proper
balance of justice for the victims as well as fairness to the accused. Former
Chief Justice Sri Ranganatha Mishra however feels that proof beyond
reasonable doubt is a better alternative to proof on preponderance of
probabilities. Former Chief Justice A.M.Ahmadi favours the removal of the
extraordinary burden of “proof beyond reasonable doubt” subject to the safe-
guards available to the accused under the Evidence Act and the Code.

V IEWS OF THE H IGH COURTS

5.33 The High Courts of Allahabad, Bombay, Himachal Pradesh,

Jarkhand, Karnataka and Punjab and Haryana are not in favour of proof on the
basis of preponderance of probabilities in criminal cases. The High Courts of
Delhi, Gujarat, Kolkata, Madras, Orissa and Uttaranchal are in favour of proof
on preponderance of probabilities. The High Courts of Andhra Pradesh and
Madhya Pradesh are in favour of middle course which they describe as ‘strict
proof’. The High Court of Chattisgarh says that proof beyond reasonable doubt
should be restricted to cases that hinge upon circumstantial evidence.

V IEWS OF STATE GOVERNMENTS

5.34 The State Governments of Arunachal Pradesh, Haryana, Kerala

and Madhya Pradesh are not in favour of proof on preponderance of
probabilities and do not favour any modification of the principle of proof
beyond reasonable doubt. The State Governments of Karnataka and Jammu &
Kashmir favour proof on preponderance of probabilities. The State
Government of Himachal Pradesh favours proof on preponderance of
probabilities except in cases which provide deterrent punishment. The other
State Governments have not responded.
75

JUSTICE TO VICTIMS _

INTRODUCTION

6.1 Referring to the state of criminal justice in India today, the

Government Notification constituting the Criminal Justice Reforms committee
observed :
… … ..People by and large have lost confidence in the Criminal
Justice System … .. Victims feel ignored and are crying for attention
and justice … .. there is need for developing a cohesive system, in
which, all parts work in co-ordination to achieve the common goal.

6.2 Very early in the deliberations of the Committee, it was recognized

that victims do not get at present the legal rights and protection they deserve to
play their just role in criminal proceedings which tend to result in dis-
interestedness in the proceedings and consequent distortions in criminal justice
administration. In every interaction the Committee had with the police, the
Judges, the prosecution and defense lawyers, jail officials and the general
public, this concern for victims was quite pronounced and a view was
canvassed that unless justice to the victim is put as one of the focal points of
criminal proceedings, the system is unlikely to restore the balance as a fair
procedure in the pursuit of truth. Furthermore, it was pointed out that support
and co-operation of witnesses will not be forthcoming unless their status is
considerably improved along with justice to victims. This perception was
strengthened while the Committee examined the systems prevalent in other
jurisdictions. The U. N. system also wanted member countries to guarantee
rights of victims of crime through their respective legal systems. In the
circumstances, the Committee resolved to give adequate importance to the idea
of justice to victims of crime in the scheme of reform to be recommended. This
chapter of the report is specifically addressed to rights of victims with a view to
solicit their maximum support to criminal proceedings and to restore the
confidence of people in Criminal Justice System.
76

6.3 Basically two types of rights are recognized in many jurisdictions

particularly in continental Basically two types of rights are
countries in respect of victims recognized in many jurisdictions
of crime. They are, firstly, the particularly in continental countries in
victim’s right to participate in respect of victims of crime. They are,
criminal proceedings (right to firstly, the victim’s right to participate in
be impleaded, right to know, criminal proceedings (right to be
right to be heard and right to impleaded, right to know, right to be heard
assist the court in the pursuit of and right to assist the court in the pursuit of
truth) and secondly, the right to truth) and secondly, the right to seek and
seek and receive compensation receive compensation from the criminal
from the criminal court itself court itself for injuries suffered as well as
for injuries suffered as well as appropriate interim reliefs in the course of
appropriate interim reliefs in proceedings.
the course of proceedings.

6.4 It is interesting to find that the European system assigned a very

active role assigned to the victim or his representative in criminal proceedings. For
example, in France, all those who suffer damage on account of the commission of
an offence are entitled to become parties to the proceedings from the investigation
stage itself. He can assist investigation on proper lines and move the court for
appropriate directions when the investigation gets delayed or distorted for
whatever reasons. His active participation during trial will be of great help in the
search for truth without inconveniencing the prosecution. He may suggest
questions to the court to be put to witnesses produced in court. He may conduct the
proceedings if the public prosecutor does not show due diligence. He can
supplement the evidence adduced by the prosecution and put forth his own
arguments. He would be of help to the court in the matter of deciding the grant or
cancellation of trial. He will adduce evidence in the matter of loss, pain and
suffering to decide on his entitlement of interim reliefs and compensation by way
of restitution. Wrongful attempts to withdraw or close the prosecution due to
extraneous factors can be resisted if the court were to have the continued
assistance of the victim. For all these reasons and more, it is clear that if the
criminal proceedings have to be fair to both the parties and if the court were to be
properly assisted in its search for truth, the law has to recognize the right of
victim’s participation in investigation, prosecution and trial. If the victim is dead,
or otherwise not available this right should vest in the next of kin. It should be
possible even for Government Welfare bodies and voluntary organizations
registered for welfare of victims of sexual offences, child victims, those in charge
of the care of aged and handicapped persons to implead themselves as parties
whenever the court finds it appropriate for a just disposal of the case.

6.5 The right of the victim should extend to prefer an appeal against any
adverse order passed by the trial court. The appellate court should have the
same powers to hear
77

appeals against acquittal as it now has to entertain appeal against conviction.

There is no credible and fair reason why appeals against acquittals should lie
only to the High Court.

6.6 The right of representation by lawyer is a constitutional right of

every accused and there is no reason why it should not be available to the
victim as well. If the victim is an indigent person, the Legal Services Authority
should be directed by the Court to provide a lawyer at State expense.

VICTIMS UNDER THE EXISTING CRIMINAL JUSTICE SYSTEM

6.7.1 Historically speaking, Criminal Justice System seems to exist to
protect the power, the privilege and the values of the elite sections in society.
The way crimes are defined and the system is administered demonstrate that
there is an element of truth in the above perception even in modern times.
However, over the years the dominant function of criminal justice is projected
to be protecting all citizens from harm to either their person or property, the
assumption being that it is the primary duty of a State under rule of law. The
State does this by depriving individuals of the power to take law into their own
hands and using its power to satisfy the
sense of revenge through appropriate In the process of this
sanctions. The State (and society), it transformation of torts to crimes,
was argued, is itself the victim when a the focus of attention of the system
citizen commits a crime and thereby shifted from the real victim who
questions its norms and authority. In suffered the injury (as a result of
the process of this transformation of the failure of the State) to the
torts to crimes, the focus of attention of offender and how he is dealt with
the system shifted from the real victim by the State.
who suffered the injury (as a result of
the failure of the State) to the offender and how he is dealt with by the State.
Criminal justice came to comprehend all about crime, the criminal, the way he
is dealt with, the process of proving his guilt and the ultimate punishment given
to him. The civil law was supposed to take care of the monetary and other
losses suffered by the victim. Victims were marginalized and the State stood
forth as the victim to prosecute and punish the accused.

6.7.2 What happens to the right of the victim to get justice to the harm
suffered? Well, he can be satisfied if the State successfully gets the criminal
punished to death, a prison sentence or fine. How does he get justice if the
State does not succeed in so doing? Can he ask the State to compensate him for
the injury? In principle, that should be the logical consequence
in such a situation; but the State which makes the law absolves itself
78

of such liability. Not only the victim’s right to compensation was ignored except a
token provision under the Criminal Procedure Code but also the right to
participate as the dominant stakeholder in criminal proceedings was taken away
from him. He has no right to lead evidence, he cannot challenge the evidence
through cross-examination of witnesses nor can he advance arguments to influence
decision-making.

6.7.3 What is the present role that victim is assigned under the existing
criminal law? When a person who has been the victim of a cognizable offence
gives information to the police regarding the same, the police is required to reduce
the information into writing and read it over to the informant. The informant is
required to sign it and get a copy of the FIR [section 154 (1) & (2) of Cr.P.C.]. If
the police refuses to record the information, the victim – informant is allowed to
send it in writing and by post to the S. P. concerned [Section 154 (3)]. If the police
refuses to investigate the case for whatever reason, the police officer is required to
notify the informant of that fact [Section 157 (2)].

6.7.4 Alternatively, victims are enabled by Section 190 of the Cr. P. C. to

avoid going to the Police Station for redress and directly approach the Magistrate
with his complaint.

6.7.5 Complainants say that they are treated indifferently by police and
sometimes harassed when they go to them with their grievances. There are
complaints that the police do not truthfully record the information but distort facts
as found convenient to them. Cognizable cases are made non-cognizable and vice-
versa. Complainants are sometimes made the accused and investigations initiated
accordingly. Though these are unauthorized by the law and are rare, yet whenever
it happens the victim gets disillusioned and alienated from the system itself.

6.7.6 The investigation process is exclusively a police function and the

victim has a role only if the police consider it necessary. There are administrative
instructions given by police departments of certain States to give information on
progress of investigation to the victim when asked for. Otherwise till police report
(charge sheet) is filed under Section 173 Cr. P. C., the victim’s plight is pitiable.
This is the time victims need assistance the most and the law is silent on it. After
the police report is taken cognizance of by the Magistrate, if he decides to drop the
proceedings, it is required of him to hear the victim-informant by issuing notice to
him [1997 Cr. L. J. 4636 (S.C.)] The Court seems to have recognized a gap in the
statutory provision and enjoined the court not to drop proceedings without giving
an opportunity to the victim to ventilate his grievance.

6.7.7 Pending investigation and prosecution, there are several things that a victim-friendly
79

Criminal Justice System needs to address on an urgent basis. For example,

victims of rape and domestic violence etc. require trauma counseling,
psychiatric and rehabilitative services apart from legal aid. The object is to
avoid secondary victimization and provide hope in the justice system. At the
police station level, with or without the assistance of voluntary organizations,
victim support services need to be organised systematically if the system were
to redeem its credibility in society.

6.7.8 The existing law only envisages the prosecutor appointed by the
State to be the proper authority to plead on behalf of the victim. However, the
Code does not completely prohibit a victim from participating in the
prosecution. A counsel engaged by the victim may be given a limited role in
the conduct of prosecution, that too only with the permission of the court. The
counsel so engaged is to act under the directions of the public prosecutor. The
only other privilege a victim might exercise is to submit again with the
permission of the court, written arguments after the closure of evidence in the
trial. This requires change on the lines proposed above.

6.7.9 In the granting and cancellation of bail, victims have substantial

interests though not fully recognized by law. Section 439 (2) may allow a
victim to move the Court for cancellation of bail; but the action thereon depends
very much on the stand taken by the prosecution. Similarly prosecution can
seek withdrawal at any time during trial without consulting the victim (Section
321 Cr. P. C.). Of course, the victim may proceed to prosecute the case as a
private complainant; but he seems to have no right to challenge the prosecution
decision at the trial stage itself. This is another change the Committee would
recommend for justice to victims.

6.7.10 Victims have a right to testify as prosecution witness. However,

victims often fall prey to intimidation and harassment by offenders which tend
to dissuade them from testifying freely and truthfully. Though it is the duty of
the State to prevent such things, the situation according to available evidence is
disturbing. There is no victim protection law as such and police is not in a
position to protect every victim. Such conduct, of course, is prohibited under
the IPC (Section 504 IPC).

6.7.11 The The situation is alarming in respect of victim-

situation is alarming in witnesses who belong to vulnerable sections of
respect of victim- society. The adversarial trial built around cross-
witnesses who belong to examination of witnesses often result in adding
vulnerable sections of insult to injury against which even the Court may
society. The adversarial not be of much help.
trial built around cross-
80

examination of witnesses often result in adding insult to injury against which

even the Court may not be of much help. In several offences the experience
may be a nightmare to victims acknowledging this predicament, Government
has adopted recently an amendment preventing character assassination during
trial of sexual offences.

6.7.12 There is need for an officer equivalent to Probation Officer to take

care of victim interests in investigation and trial. He may be called Victim
Support Service Co-ordinator who may work closely with the police and Courts
to monitor, co-ordinate and ensure delivery of justice during the pendency of
the case.

6.7.13 Compounding is a process through which the offender and the victim
come to an agreement to put an end to the tension arising out of the criminal
action. Offences which are compoundable and the persons by whom they could be
compounded are indicated in Section 320 of the Cr. P. C. The Section specifies
two lists of offences : one, compoundable without the permission of the Court, and
the other, relatively more grave offences, which are compoundable with the
permission of the Court. Sometimes the requirement of permission of the Court
before compounding is got over by making the complainant and other prosecution
witnesses retract their statements given to police and to depose favourably to the
accused. The Committee is in favour of giving a role to the victim in the
negotiation leading to settlement of criminal cases either through courts, Lok
Adalats or Plea-bargaining.

6.8 COMPENSATION FOR VICTIM

6.8.1 The principle of compensating victims of crime has for long been
recognized by the law though it is recognized more as a token relief rather than
part of a punishment or substantial remedy. When the sentence of fine is imposed
as the sole punishment or an additional punishment, the whole or part of it may be
directed to be paid to the person having suffered loss or injury as per the
discretion of the Court (Section 357 Cr.P.C.). Compensation can be awarded only
if the offender has been convicted of the offence with which he is charged.

6.8.2 While Section 357 (i)(c) provides for the payment of compensation
out of the fine imposed, Section 357 (3) makes way for the payment of
compensation even if fine does not form part of the punishment. The amount of
compensation which the Court can thus order is flexible enough to make it real and
truly compensatory. It may be paid directly to the beneficiary before the court on a
fixed date and if not so paid, may be reconsidered as a fine.

6.8.3 Compensation may also be ordered even in case the convicted person is released
81

after due admonition or on probation of good conduct (Sections 3 & 4 of

Probation of Offenders Act, 1958). Costs can also be made payable under such
circumstances.

6.8.4 The payment of compensation by the offender is not possible

where there is acquittal or where the offender is not apprehended. Further, the
payment remains suspended till the limitation period for the appeal expires or if
an appeal is filed, till the appeal is disposed of (Section 357(2) Cr. P. C.) The
delay in the realization of the amount often adds to the woes of the victim.

6.8.5 In 1992 the U. P. Government through an amendment to Section

357 provided that where the victim is a member of a scheduled caste or
scheduled tribe and the person convicted is not such a member, then it shall be
obligatory for the Court to order compensation to the victim of crime.

6.8.6 A person who fails to pay the fine/compensation is normally

required to undergo imprisonment in default of the said payment. There are
many cases of default for a variety of reasons. The result is again denial of
compensation for the victim even in those few cases which end in conviction.
The hopeless victim is indeed a cipher in modern Indian criminal law and its
administration.

6.8.7 Sympathizing with the plight of victims under Criminal Justice

administration and taking advantage of the obligation to do complete justice
under the Indian Constitution in defense of human rights, the Supreme Court
and High Courts in India have of late evolved the practice of awarding
compensatory remedies not only in terms of money but also in terms of other
appropriate reliefs and remedies. Medical justice for the Bhagalpur blinded
victims, rehabilitative justice to the communal violence victims and
compensatory justice to the Union Carbide victims are examples of this liberal
package of reliefs and remedies forged by the apex Court. The recent decisions
in Nilahati Behera V. State of Orissa [ (1993) 2 SCC 746] and in Chairman,
Railway Board V. Chandrima Das are illustrative of this new trend of using
Constitutional jurisdiction to do justice to victims of crime. Substantial
monetary compensations have been awarded against the instrumentalities of the
State for failure to protect the rights of the victim.

6.8.8 These decisions have clearly acknowledged the need for

compensating victims of violent crimes irrespective of the fact whether
offenders are apprehended or punished. The principle invoked is the obligation
of the State to protect basic rights and to deliver justice to victims of crimes
fairly and quickly. It is time that the Criminal Justice System takes note of
these principles of Indian Constitution and legislate on the subject suitably.
82

6.8.9 In 1995 the Indian Society of Victimology based in Chennai prepared

a bill for Victim compensation and submitted to the Government which the
Committee feels is an appropriate draft for initiating action.

6.9 VICTIM RIGHTS INTERNATIONALLY AND IN CRIMINAL JUSTICE SYSTEM

ELSEWHERE

6.9.1 Victims of crime are important players in criminal justice

administration both as complainant/informant and as witness for the
police/prosecution. Despite the system being heavily dependent on the victim,
criminal justice has been concerned with the offender and his interests almost
subordinating or disregarding the interests of victim. In the civil law systems
generally, the victims enjoyed a better status in administration of criminal justice.
Towards the last quarter of the twentieth century, the common law world realized
the adverse consequences arising from this inequitable situation and enacted laws
giving rights of participation and compensation to the victims. “Victims” mean
the person or persons who have suffered financial, social, psychological or
physical harm as a result of an offense, and includes, in the case of any homicide,
an appropriate member of the immediate family of any such person. In the
Constitutions of certain countries, rights of victims have been recognized thereby
forcing changes in criminal justice goals and procedures. In the United States the
Supreme Court ruled that consideration of Victim Impact Statements during
sentence hearing was Constitutionally permissible [Payne V Tennesse, III S. Ct.
2597 (1991)] This enabled victims to describe the extent of any physical,
emotional, or psychological effects caused by the crime. Eventually in U.S.,
Victim Impact Statements became part of plea bargains and parole hearings.

6.9.2 According to some studies, victim’s participation in plea bargain

negotiations has been shown to contain their vengeful instincts, decrease their
assessment of the system being too lenient on criminals and inculcate of feeling of
fairness in the whole process. Increased victim satisfaction will, in effect, enhance
the efficiency of the Criminal Justice System by ensuring his future support to the
system.

6.9.3 In 1985 the United Nations General Assembly adopted the

Declaration of Basic Principles of Justice for Victims of Crime and Abuse of
Power. The Declaration recognized the following rights of victims of crime :-
i. Access to justice and fair treatment – This right includes access to
the mechanisms of justice and to prompt redress, right to be
informed of victim’s rights, right to proper assistance throughout
the legal process and right to protection of privacy and safety.

ii. Restitution – including return of property or payment for the harm or

83

loss suffered; where public officials or other agents have

violated criminal laws, the victims should receive restitution
from the State.
iii. Compensation – when compensation is not fully available from
the offender or other sources, State should provide financial
compensation at least in violent crimes, resulting in bodily
injury for which national funds should be established.
iv. Assistance – victims should receive the necessary material,
medical, psychological and social assistance through
governmental, voluntary and community-based means. Police,
justice, health and social service personnel should receive
training in this regard.

The Declaration specially ask States to provide by law the above rights
for victims of abuse of political or economic power.

6.9.4 In Europe, the Convention on the Compensation of Victims of

Violent Crimes (1983) do incorporate the essential rights of victims as
stipulated in the U. N. Declaration. The Council of Europe has recommended
the revamping of criminal justice incorporating victim’s rights in every stage of
criminal proceeding. Following it many States in Europe and elsewhere
enacted laws aimed at providing increased participation and more substantive
rights to victims of crime. Illustrative of this legislative trend are the Criminal
Injuries Compensation Act, 1995 of the United Kingdom, The Victims of Crime
Assistance Act, 1996 of Victoria, The Victims and Witnesses Protection Act,
1982 of U.S.A., The Victims Rights and Restitution Act, 1999 of U.S.A. etc.

6.9.5 In an informative report on “Criminal Justice: The Way Ahead”

presented to the British Parliament (February, 2001) the Home Department
found that despite having a fairly advanced Criminal Injuries Compensation
Scheme, victim satisfaction with the police has gone down in U. K. and many
victims felt “that the rights of these accused of a crime take precedence over
theirs”. Every time a case collapses, or the verdict is perceived to be unjust, a
victim’s suffering is made worse. One of the key recommendations which
formed the foundation for criminal justice reform according to the U. K. report
was :
“We will put the needs of victims and witnesses at the heart of the Criminal
Justice System and ensure they see justice done more often and more quickly.
We will support and inform them, and empower them to give them best
evidence in the most secure environment possible”.
6.9.6 Among the many steps proposed to translate this principle into
practice, the U. K. White Paper promised to do the following :
84

(a) legislate to entitle victims with information about release and

management of the offenders and progress of their cases;

(b) enable victims to submit a “victim personal statement” to the

courts and other criminal justice agencies setting out the effect
of the crime on their lives.

(c) Introduce measures for vulnerable and intimidated witnesses,

such as screens, pre-recorded video evidence and TV links;

(d) extend specialized support for victims of road traffic incidents

and their families;

(e) establish a Victim’s Commissioner (Ombudsman)

(f) enable victims to report minor crime online and to track the
progress of their case online;

(g) legislate to produce a Victim’s Code of Practice setting out

what protection, practical support and information every
victim of a crime has a right to expect from the criminal
justice agencies.

6.9.7 The above strategies being introduced in the United Kingdom for
reforming the Criminal Justice System to give a better deal for victims should
be considered for adoption in India, of course, with suitable modification for
effective implementation. This is over and above the victim compensation
scheme which has been in operation in Britain for a fairly long period. Of
course, victim support strategies depend for their effectiveness on the reform
steps undertaken in the overall structure and policies in criminal law and
criminal justice administration. The idea is to reduce victimization in the first
place by reducing crime itself. The idea also is to ensure that the victim gets as
much justice out of the system as the accused. The recommendations that
follow are made keeping these objects in view in the Indian context.
85

PART – II

INVESTIGATION

PROSECUTION
86
87

INVESTIGATION _

7.1 The primary responsibility of Police is to protect life, liberty and

property of citizens. It is for the protection of these rights that Criminal Justice
System has been constituted assigning important responsibility to the Police. They
have various of duties to perform, the most important among them being
maintenance of Law and order and investigation of offences. The police are
charged with the responsibility of protecting precious Human Rights of the
citizens. Whenever there is invasion or threat of invasion of one’s human rights it
is to the police that the citizen rushes for help. Unfortunately the contribution of
the police in this behalf is not realized and only the aberrations of the police are
noticed, highlighted and criticized. The aberrations must be corrected and the
police respected for the difficult role they play even at the cost of their lives in the
process of protecting the rights of the citizens.

7.2 The manner in which police investigations are conducted is of critical

importance to the functioning of the Criminal Justice System. Not only serious
miscarriage of justice will result if the collection of evidence is vitiated by error or
malpractice, but successful prosecution of the guilty depends on a thorough and
careful search for truth and collection of evidence which is both admissible and
probative. In undertaking this search, it is the duty of the police to investigate fairly
and thoroughly and collect all evidence, whether for or against the suspect.
Protection of the society being the paramount consideration, the laws, procedures
and police practices must be such as to ensure that the guilty are apprehended and
punished with utmost dispatch and in the process the innocent are not harassed.
The aim of the investigation and, in fact, the entire Criminal Justice System is to
search for truth. To achieve this objective, the investigating officers must be
properly trained and supervised and necessary scientific and logistical support
should be made available to them.

7.3 The police perceive themselves psychologically and morally bound to

do everything possible to curb crime and investigate the cases successfully to meet
the peoples’ expectations. In this process the police often resort to short cut
methods and exhibit negative traits of police sub-culture, namely, rudeness, use of
third degree methods, defensiveness in face of criticism, lack of innovativeness etc.
88

7.4 Even though investigation is the foundation of the Criminal Justice

System it is unfortunate that it is not trusted by the laws and the courts. Sections
161 and 162 of the Code provide that the statements of the witnesses examined
during investigation are not admissible and that they can only be used by the
defence to contradict the maker of the statement. The confession made by accused
is also not admissible in evidence. The statements recorded at the earliest stage
normally have greater probative value but can’t be used in evidence. The
observations of the courts in several criminal cases show that the Judges are
reluctant to accept the testimony of police officers. Such is not the position in
other countries. This is a historical legacy of the colonial rulers. It is common
knowledge that police often use third degree methods during investigation. There
are also allegations that in some cases they try to suppress truth and put forward
falsehood before court for reasons such as corruption or extraneous influences
political or otherwise. Unless the basic problem of strengthening the foundation is
solved the guilty continue to escape conviction and sometimes even innocent
persons may get implicated and punished. It is therefore necessary to address
ourselves to the problems and strengthen the investigation agency.

7.5 CRIME: A QUANTITATIVE ANALYSIS

COGNIZABLE CRIMES REGISTERED DURING 1995-2000.
Year I.P.C. S.L.L. Total Ratio
(IPC:SLL)
1995 16,95,696 42,97,476 59,93,172 1:2.53
1996 17,09,576 45,86,986 62,96,562 1:2.68
1997 17,19,820 46,91,439 64,11,259 1:2.73
1998 17,78,815 44,03,288 61,82,103 1:2.47
1999 17,64,629 31,47,101 49,11,730 1:1.78
2000 17,71,084 33,96,666 51,67,750 1:1.92

Table 8
During the year 2000, in addition to 51,67,750 crimes registered by the police,
the other investigating agencies under the Central and State Governments also
registered 70,648 cognizable crimes.

7.5.1 From the above statistics, it would appear that

IPC crimes, through on the increase from 1995 to 1998,
showed a downward trend in 1999 and slight upward trend in 2000. The
89

IPC crimes registered an increase of 0.4% in 2000 compared to 1999. SLL

crimes, however, registered a much higher increase of 7.9% in the same period.

7.5.2 Of IPC crimes, violent crimes constituted 13.4%, property

crimes,20.6%, economic crimes, 3.2% and other IPC crimes, 62.1% in the year
2000. Violent crimes, which were about 8% in the 1950s and 1960s have almost
doubled in last three decades. This is disturbing.

7.5.3 The crime rate i.e. incidence of crime per lac of population, is
universally taken as a more realistic indicator since it balances the effect of growth
in population. The crime rate of total cognizable crimes (i.e. IPC+SLL) was 515.7
in 1999. The crime rate of total cognizable crimes increased marginally by 3.6% in
2000 vis-à-vis 1999. The IPC crime rate in 2000 was 176.7 while it was 178.9 in
1999, thereby recording a decline of 1.2% during this period.

7.5.4 It may be noted that in 2000 at All India level, a total of 22,74,026
IPC cases including those pending from the previous years were pending
investigation with the police. 17,92,896 cases i.e. 84% cases were disposed of
during the year and 4,75,536 cases (i.e. 20.9%) remained pending. Broadly
speaking, 4/5 of the cases were disposed of by the police and 1/5 remained
pending. This is the pattern which obtains since last several years. As regards SLL
cases, 93.7% were disposed of in 2000; investigation was denied in 0.8% cases and
the remaining 5.5% remained pending at the end of the year.

7.6 DIFFICULTIES OF THE INVESTIGATING OFFICERS

7.6.1 The Committee has interacted with a cross-section of the police

officers at all levels and in different States. The police officers have mentioned
the following difficulties before the Committee in ensuring speedy, effective
and fair investigation:
i. Excessive workload due to inadequacy of manpower and long working
hours even on holidays and the absence of shift system;
ii. Non co-operative attitude of the public at large;
iii. Inadequacy of logistical and forensic back up support;
iv. Inadequacy of trained investigating personnel;
v. Inadequacy of the state-of-the-art training facilities in investigation,
particularly in- service training;
vi. Lack of coordination with other sub-system of the Criminal Justice
System in crime prevention, control and search for truth;
vii. Distrust of the laws and courts,
viii. Lack of laws to deal effectively the emerging areas of crime such as
organised crime, money laundering etc.
90

ix. Misuse of bail and anticipatory bail provisions;

x. Directing police for other tasks which are not a part of police
functions;
xi. Interrupting investigation work by being withdrawn for law
and order duties in the midst of investigation.
xii. Political and executive interference;
xiii. Existing preventive laws being totally ineffective in curbing
criminal tendencies of hardened criminals and recidivists.
7.7 QUALITY OF INVESTIGATION
7.7.1 The Committee is required to address itself primarily to the role of
the Police in investigating crimes. The word ‘investigation’ has been defined in
section 2(b) of the Criminal Procedure Code as:
All the proceedings under the Code for the collection of
evidence by a police officer or by any other person (other than a
Magistrate) who is authorized by the Magistrate in this behalf.
7.7.2 Investigation is basically an art of unearthing the truth for the
purpose of successful detection and prosecution. In the words of the Supreme
Court (in H.N. Rishbud v/s State of Delhi : AIR 1955 SC 196: 1955 SCJ 283,)
the investigation generally consists of the following steps:
1) Proceeding to the spot;
2) Ascertainment of the facts and circumstances of the case;
3) Discovery and arrest of the suspected offender;
4) Collection of evidence relating to the commission of the offence
which may consist of the examination of:
a) various persons (including accused) and the reduction of
statements into writing, if the officer thinks fit;
b) the search of places and seizure of things considered
necessary for the investigation and to be produced at the
trial; and
5) Formation of the opinion as to whether on the materials collected,
there is a case to place the accused before a Magistrate for trial
and, if so, taking the necessary steps for the same for the filing of
a charge sheet u/s 173 Cr.P.C.
7.7.3 The standard of police investigation in India remains poor and
there is considerable room for improvement. The Bihar Police Commission
(1961) noted with dismay that “during the course of tours and examination of
witnesses, no complaint has been so universally made before the
Commission as that regarding the poor quality of police investigation”. Besides
91

inefficiency, the members of public complained of rudeness, intimidation,

suppression of evidence, concoction of evidence and malicious padding of
cases. Almost in the same vein, the Punjab Police Commission (1961-62)
bemoaned poor quality of police investigation. A frequent complaint relating to
the method of investigation received by the Punjab Police Commission was that
all cases were not investigated by one officer but several officers in succession.

7.7.4 The West Bengal Police Commission (1960-61) also referred to

noticeable deterioration in the standard of investigation. The Second West
Bengal Police Commission (1988) reaffirmed the downward trend and observed
that during the intervening years the standard of investigation had further gone
down. Many cases did remain undetected. It also observed that conviction
figures had also gone down.

7.8 INADEQUACY OF STAFF

7.8.1 In the first place, there is inadequacy of the investigating staff. The
police officers are hard pressed for time with multifarious commitments and,
thus, not able to devote adequate time for investigational work. A sample survey
done at the instance of the National Police Commission (Fourth Report of the
National Police Commission-page 3) in six States of the country revealed that
on an average, the investigating officer is able to devote only 27% of his time
on investigational work, while the rest of the time is taken by other duties
connected with the maintenance of law and order, VIP bandobust, petition
enquiries, court attendance, collection of intelligence and other administrative
work. The Committee on Internal Security constituted by the group of Ministers
(GOI) in the wake of Kargil conflict in 2000 was informed by the DGP, Uttar
Pradesh, of the startling fact that the police could devote only 13% of its time on
investigations. Similarly, a random survey done at the instance of Second West
Bengal Police Commission revealed that a Sub-Inspector of an urban police
station in West Bengal, on an average, spent 20-25% of his time on
investigational work; a Sub- Inspector in Calcutta City spent about 41% his time
on it and a Sub Inspector in rural areas spent 16 to 18% of time in investigative
work due to long distances involved. Inadequate number of I.Os. coupled with
low percentage of their time being devoted to investigational work, resulting in
perfunctory and delayed investigations, paved way for the acquittal of the
accused.
7.8.2 An investigating officer on an average, investigates 45 cases in a
year. There is, however, a wide variation amongst States, with the workload of
IO ranging from a low of 12.7 cases in Orissa to a high of 145.3 cases in Andhra
Pradesh. The National Police Commission had suggested a workload of 60
cases per IO. Given the heavy commitment of police officers in law and order,
VIP security and other ‘Bandobast’ duties, there is need for fixing a more
92

realistic norm. It may be apt to add that the prevailing norms regarding workload
of 10 in the CBI are two cases per year in the Central Units and 4 cases per year in
the Territorial Units.

The Committee has interacted with police officers at the highest level as well as at
the executive level. It has also discussed relevant issues with SHOs and there
immediate supervisory officers and seen their work regarding investigation in some
States. On the basis of observations and interaction, the Committee is of the
opinion that for improving quality of investigation, the workload of an IO (or a
team of IOs) should not exceed 10 cases per year. This norm is suggested for
investigation of serious crimes.

7.9 SEPARATION OF INVESTIGATION WING FROM LAW & ORDER WING

7.9.1 As of now, the police have a combined cadre of Officers and men
who perform both investigational and law and order duties, resulting in lack of
perseverance and specialisation in investigations, especially of the serious cases. It
needs to be emphasised that the duties of the police as prescribed in section 23 of
the Indian Police Act, 1861, have become totally out-dated. Much water has flown
down the Ganges since then. Terrorism, particularly State sponsored terrorism
from across the borders, has drastically changed the ambit and role of police
functions and duties in certain parts of the country. Besides, organised crime
having inter-State and trans-National dimensions has emerged as a serious
challenge to the State authority. This has compelled the Police Departments to
divert a large chunk of their resource to these areas, leaving as much less for the
routine crime work.

7.9.2 The need for expeditious and effective investigation of offences as

contributing to the achievement of the goal of speedy trial cannot be gain said. The
investigation of crime is a highly specialised task requiring a lot of patience,
expertise, training and clarity about It is basically an art of unearthing
the legal position of the specific
hidden facts with the purpose of linking
offences and subject matter of
up of different pieces of evidence for
investigation. It is basically an art of
successful prosecution. The Committee
unearthing hidden facts with the
purpose of linking up of different is of the view that investigation requires
pieces of evidence for successful specialisation and professionalism of a
prosecution. The Committee is of type not yet fully achieved by the police
the view that investigation requires agencies.
specialisation and professionalism
of a type not yet fully achieved by the police agencies.

7.9.3 The National Police Commission by a sample survey

in six States in different parts of the country found that an
average IO was able to devote only 30% of his time to investigational
93

work while the rest of the time was taken in other duties. The National Police
Commission stopped short of categorically recommending separation of the
investigation wing from the law and order wing but recommended restructuring of
the police hierarchy for increasing the cadre of IOs.

7.9.4 The Law Commission of India discussed this issue threadbare in its
th
154 report and categorically recommended separating the investigating agency
from the law and order police. The Law Commission adduced the following
grounds in support of its recommendations:
i) it will bring the investigating agencies under the protection of
judiciary and greatly reduce the possibility of political or
extraneous influences;
ii) efficient investigation of cases will reduce the possibility of
unjustified and unwarranted prosecutions;
iii) it will result in speedier investigation which would entail speedier
disposal of cases;
iv) separation will increase the expertise of the investigating officers;
v) the investigating police would be plain clothes men and they
would be able to develop good rapport with the public;
vi) not having been involved in law and order duties entailing the use
of force, they would not provoke public anger and hatred which
stand in the way of public police cooperation in tracking down
crime and criminals and getting information, assistance and
intelligence from the public.
7.9.5 The Committee on Police Reforms constituted by the Government
of India under the chairmanship of Sri K. Padmanabhaiah also recommended
separation of investigation from the law and order wing.
We feel that the long standing arguments whether crime and law and
order should be separated should be ended once and for all. Most
police officers are agreed that they should be separated but feel that the
separation may not be practical. We are of the view that such a
separation should be made in urban areas in all States as a beginning.
Separation of crime from law and order will lead to greater
professionalism and specialisation and will definitely improve the
quality of investigation. In UP, this separation has already been put
into effect in municipal and bigger towns from April, 2000.
Maharashtra is also in the process of doing it. The rest of India must
follow suit.
7.9.6 It has been brought to our notice that separation in the two wings has already
94

been effected in certain large cities in the country. In Chennai Police

Commissioner’s office, there are separate police stations for Law and Order and
crime. The Crime Police Stations in Chennai register and investigate cases
relating to property offences. The rest of the offences are handled by the Law &
Order PSs. There are separate Assistant Commissioner of Police to supervise
the work of respective police stations. The work of both types of PSs in
coordinated by the territorial Dy. Commissioner of Police. In other urban areas,
in the State, the above system prevails. The rural PSs, however, work in a
traditional system.

7.9.7 The Tamil Nadu pattern is being followed in Andhra Pradesh also.
In cities/big towns, namely, Hyderabad, Vishakhapatnam, Vijaywada,
Rajhmundry, Guntur and Eluru etc., there are separate PSs for law an order and
crime, though both types of PSs function from the same building. While
investigation of offences relating to property are taken up by the Crime PSs,
investigation of other offences is handled by the law and orders PSs. Unlike,
Chennai, the work of both types of PSs is supervised by the territorial
supervisory officers i.e. SDPOs, DCPs etc. Hyderabad City Police
Commissionerate also has a Central Crime Police Station which takes up
investigation of important crimes. In the rural areas, the traditional system
prevails.

7.9.8 We have given a serious thought to the matter and are of the view
that all serious crimes, say sessions triable cases, and certain other classes of
cases are placed in the domain for the Crime Police and the remaining crimes
including crimes under most of the Special and Local laws are handled by the
Law and Order Police. The Committee strongly feels that:
(i) The staff in all stations in urban areas should be divided as Crime
Police and Law and Order Police. The strength will depend upon
the crime & other problems in the PS area.
(ii) In addition to the officer in-charge of the police station, the
officer in-charge of the Crime Police should also have the powers
of the officer in-charge of the police station.
(iii) The investigating officers in the Crime Police should be at the
least of the rank of ASI and must be graduates, preferably with a
law degree, with 5 years experience of police work.
(iv) The category of cases to be investigated by each of the two wings
shall be notified by the State DGP.
(v) The Law & Order police will report to the Circle officers/SDPO.
Detective constables should be selected, trained and authorised to
investigate minor offences.
95

This will be a good training ground for them when they

ultimately move to the crime police.
(vi) A post of additional SP (Crimes) shall be created in each district.
He shall have crime teams functioning directly under him. He
will carry out investigations into grave crimes and those having
inter district or inter state ramifications. He shall also supervise
the functioning of the Crime Police in the district.
(vii) There shall be another Additional SP (Crime) in the district who
will be responsible for (a) collection and dissemination of
criminal intelligence; (b) maintenance and analysis of crime data:
(c) investigation of important cases; (d) help the Crime Police by
providing logistic support in the form of Forensic and other
specialists and equipment. Investigations could also be entrusted
to him by the District SP.
(viii) Each state shall have an IG in the State Crime Branch exclusively
to supervise the functioning of the Crime Police. He should have
specialised squads working under his command to take up cases
having inter District. & and inter-state ramifications. These could
be (a) cyber crime squad; (b) anti terrorist squad; (c) organised
crime squad; (d) homicide squad; (e) economic offences squad;
(f) kidnapping squad (g) automobile theft squad; (h) burglary
squad etc. He will also be responsible for (a) collection and
dissemination of criminal intelligence (b) maintenance and
analysis of crime data (c) co-ordination with other agencies
concerned with investigation of cases.

7.10 INVESTIGATION BY A TEAM

7.10.1 It has come to the notice of the Committee that investigations of even
grave and sensational crimes having inter-State and even trans- national
ramifications are being conducted by a single IO. The Committee feels that by
virtue of the nature of such cases, application of a single mind is not enough to
respond to the modern needs of the art and science of investigation — may it be
inspection of site, picking of the clues and developing them and handling of other
multidimensional related matters.

7.10.2 The investigation of all such crimes needs to be conducted by a team

of officers, the size and level of the team depending on the dimensions of the case,
with the senior most officer working as the leader of the team. This would ensure
continuity between investigative efforts as also proper appraisal of evidence and
application of law thereto. It will also avert or minimise the scope of misuse of
discrimination by the police and ensure greater transparency in the investigations.
Integrity of the team, needless to mention would obviously be higher.
96

7.11 LEVEL OF THE INVESTIGATING OFFICER

7.11.1 It may be apt to point out that the rank of the IO investigating a case
also has a bearing on the quality of investigation. The minimum rank of an SHO in
the country is SI. However, some of the important police stations are headed by the
officers of the rank of Inspector. It has been observed that investigations are mostly
handled by lower level officers, namely, HC and ASI etc.. The senior officers of
the police stations, particularly the SHOs generally do not conduct any
investigations themselves. This results in deterioration of quality of investigations.

7.11.2 While no hard and fast rule can be laid down as to the rank of the IO
for a particular type of case, the Committee, however, recommends that, as far as
possible, all Sessions triable cases registered in the police stations should be
investigated by the senior most police officers posted there, be they SIs or
Inspectors. This has obvious advantages as they will be able to do a better job
because of their superior intelligence, acumen and experience and control over the
resources.

7.12 INSULARITY AND INTEGRITY OF THE INVESTIGATING AGENCY

7.12.1 Another important aspect impacting on the quality of investigation is

the insularity of the investigating officers and the supervisory ranks. For fair and
impartial investigation, it is imperative that the investigating machinery is immune
from political and other extra influences and acts in consonance with the law of the
land and the Constitution. It has, however, been observed that the people in
authority think nothing of wielding influence to scuttle and, even thwart, criminal
investigations or to bend them to suit their political or personal conveniences.
What is worse is that in certain States, the ‘Desires System’ in the posting of
District and Thana level police officers is ruling the roost. The things have come to
such a pass that no transfer can be affected without the ‘desire’of the local MLA
and MPs and certainly not always for altruistic reasons or in public interest. This
practice, wherever it prevails, is not desirable in any wing of the Government and
certainly not in the Police Department and needs to be discontinued.

7.12.2 It is strongly felt that the investigating officers should have the
requisite independence responsible to act according to law and the constitution.
Mere change of mind set would not suffice unless appropriate legal backing is
provided in this regard.

7.12.3 Integrity of the I.O has a vital bearing on the

integrity of the investigation conducted by him. The misconduct
of the IOs has often been overlooked due to misplaced and
97

misconceived service loyalties. The Committee feels that the Dist. Supdts. of
Police, Range Dy.IGs and the DGPs must ensure that the IOs function wit utmost
integrity and bad elements amongst them are identified and excluded from
investigative process. This would necessitate strengthening of the Police Vigilance
set-ups at the State level and constitution of a similar mechanism at the
Range/District. level.

7.13 Placement Policy of Investigating Staff

7.13.1 Another related aspect is frequent transfer of cases from one IO to

another and from District. Police to the Range Office or the State Crime Branch
due to extraneous considerations. Another related aspect is frequent transfer
This practice not only demoralises of cases from one IO to another and from
the initial investigating officer or District. Police to the Range Office or the
agency but also cools the trail of
State Crime Branch due to extraneous
investigation and renders
considerations. This practice not only
immunity to the criminals, at least
temporarily, from penal
demoralises the initial investigating
consequences. officer or agency but also cools the trail
of investigation and renders immunity to
the criminals, at least temporarily, from
7.13.2 The Committee is of penal consequences.
the opinion that:
a) The National Security Commission at the national level and the State
Security Commissions at the State level should be constituted, as
recommended by the National Police Commission. Constitution of the
aforesaid Commissions would give an element of insularity to the
police forces in the country and invoke faith and trust of the people in
its functioning.
b) Police Establishment Boards consisting of DGP and 3 to 4 other senior
police officers should be set up at the Police Headquarters in each
State. Posting, transfer and promotions etc. of District. level officers
should be made on the recommendation of such Boards, with the
proviso that the Government may differ with the recommendations of
such Boards for reasons to be recorded in writing.
c) No case should ordinarily be transferred from one 10 to another or
from District. Police to the Range office or the State Crime Branch by
the competent authority unless there are very compelling and cogent
reasons for doing so and such reasons should be recorded in writing by
the concerned authority.
d) The ‘superintendence’ of the Police in the State vests in the State
Govt. As there are allegations, not always unfounded, of misuse of this
power for extraneous considerations, it would be desirable to delimit
the ambit and scope
98

thereof by adding an explanation underneath section 4 of the

Indian Police Act, as recommended by the NPC, to the following
effect:
Explanation: The power of superintendence shall be limited to
the purpose of ensuring that the police performance is in strict
accordance with law”.
7.13.3 Understandably format of a new Police Act is already under
consideration of the Govt. of India. We feel that this exercise should be
completed without loss of any time.

7.14 SUPERVISION

7.14.1 Another important reason for the decline in the quality of

investigation is lack of effective and timely supervision by the senior officers.
There is a hierarchy of officers above the SHO who are empowered to monitor and
guide the investigations in terms of section 36 Cr.P.C., namely, Deputy SP,
Additional SP, Superintendent of Police and even the Range DIG. But most of
them do not devote adequate time and energy to supervisory work. This has been
affirmed in a study conducted by the BPRD in respect of murder cases of
Faridabad, Gurgaon, & Union Territory, Delhi, which resulted in acquittals during
the period 1984-86.

7.14.2 Further, it has to be pointed out in view of our fractured polity and
social dissonances, it has now become a regular feature to embellish the FIRs and
statements, giving incorrect facts and circumstances, with the objective of roping
in innocent persons for political reasons or to settle personal scores. This happens
even in grave offences like murder and rape etc. Witnesses and victims even make
false statements before the Magistrates u/s 164 Cr.P.C. It is, therefore, the duty of
the supervisory officers to properly guide the investigations right from the
beginning so as to ensure that innocent persons are exculpated and the real guilty
ones brought to justice. It is easier said than done. It needs hard work, professional
expertise, and to top it all, moral courage to call a spade a spade, unmindful of the
parties and pressure groups involved. The I.O alone, lowly in rank, cannot do it; he
needs professional and moral support of his seniors, which, unfortunately, is
missing either due to professional inaptitude or political compulsions.

7.14.3 The Committee feels that the quality of investigations would not
improve unless the supervisory ranks in the police hierarchy i.e. Circle Officers/
District. Supdt. of Police/Range Dy.IGP, pay adequate attention to the thorough
and timely supervision over the progress of individual investigations. The National
Police Commission in para 27.35 of its 4 report observed that effective supervision
of an investigation would call for:
99

(i) Test visit to the scene of crime;

(ii) A cross check with the complainant and a few important
witnesses to ensure that their version has been correctly brought
on police record and that whatever clues they had in view have
been pursued by the police;
(iii) Periodic discussion with the investigating officers to ensure
continuity of his attention to the case; and
(iv) Identification of similar features noticed in other cases reported
elsewhere, and coordinated direction of investigation of all such
cases.
7.14.4 Needless to say, supervision ensures proper direction, coordination
and control and this helps efficiency. Effective supervision by the District. Supdts.
of Police and Circle Officers also reduces the utilisation of opportunities and
misuse of coercive powers vested in the officers from the SHO down to the
constabulary, to the
minimum. If the The efficiency and honesty of the force depends
supervision of the largely in the manner in which superior officers
District. SP and the CO discharge their responsibilities through example
is lax and ineffective, it and precept. Thus, close and constant supervision
is bound to breed by senior officers over the work of subordinate
inefficiency and officers is absolutely essential. Close supervision of
corruption in the force.
individual investigations is also essential to check
The efficiency and
the canker of corruption.
honesty of the force
depends largely in the manner in which superior officers discharge their
responsibilities through example and precept. Thus, close and constant supervision
by senior officers over the work of subordinate officers is absolutely essential.
Close supervision of individual investigations is also essential to check the canker
of corruption.

7.14.5 Some of the areas in which Supervisory Officers can play a vital role are
enumerated below:
i. Crimes are freely registered.
ii. Crimes are registered under the appropriate sections without
minimizing the occurrence for the sake of statistics;
iii. There is no minimization or lessening of the value of property in order
to reduce supposed police responsibility;
iv. Complaint, if made orally, is recorded at once carefully and accurately
in plain and simple language by the senior most officer present in the
police station or by someone to his dictation without omitting any of
the important and relevant details.
v. There is no interpolation while writing complaints and if any fact is
omitted, it is
100

written afresh at the bottom, and if anything is scored out, it is done

neatly with initials and date and in such a manner that it could be read;
vi. If investigation is refused u/s 157(1)(b), it is done on proper grounds;
vii. The investigation in all cases is prompt, thorough and sustained;
viii. Final reports are submitted without delay and charge-sheets are
accompanied by complete evidence that is to be led at the trial;
ix. Cases are not routinely closed as false unless there are reasons to do so
and in case it is decided to close the case, steps are taken to prosecute
the accused u/s 182 or 211 IPC;
x. After the case has gone to the Court, its progress is watched and it is
ensured that the witnesses, including the investigating police officers,
attend the Court on the due dates and depose properly and that the
Public Prosecutors perform their duties competently;
xi. They should coordinate with the neighboring police stations or
neighboring Districts. and even States in investigation of Inter District
or Inter-State crimes;
xii. Investigation is kept on the right track and no extraneous influences
and political and otherwise are allowed to influence it;
xiii. Investigations are conducted in an honest and transparent manner;
xiv. Scientific aids to investigation are optimally utilized in investigations
and that FSL experts are taken to the spot in specified crimes for
preservation and collection of evidence.
xv. Articles/exhibits seized in investigation are sent to the FSL for expert
opinion and that such opinion is promptly obtained and cited as
evidence alongwith the charge sheet.
xvi. The Medico Legal Reports are obtained from the experts quickly so as
to reach a fair and just conclusion in a case;
xvii. Case diaries are properly maintained as per law and entries in the
General Diary;
xviii. The power of arrest is not abused or misused;
xix. The human rights of the accused are protected;
xx. The witnesses coming to the police station are not made to wait for
long hours and they are disposed of as promptly as possible;
xxi. Third degree methods are avoided in the investigation;
xxii. The inbuilt system of timely submission of case diaries etc. to
supervisory officers is reinforced and investigations completed
expeditiously.
7.14.6 The mandate of the supervisory officers enumerated
above is only illustrative and not exhaustive. In cases of
grave crimes, supervisory officers have to coordinate with other
101

Districts and other States police forces and may when necessary undertake tours
to places outside their jurisdictions. Given the present crime scenario, the
supervisory officers must, lend a helping hand to because of their superior
caliber, better mobility and superior contacts.
7.14.7 The Circle Officers should be left alone to concentrate on their
primary job of supervision, and investigations generally, should be conducted
by the Inspectors, Sub-Inspectors and AS! etc. posted in the police stations.
Nonetheless, both the COs and the lOs need to be made responsible and
accountable for ensuring correctness of investigation.

7.15 INADEQUATE TRAINING

7.15.1 Crime investigations is a specialized work where the I.Os can

perform their duties properly only when they are properly trained and possess
necessary skills and expertise. There is, thus, great need to develop and sharpen
investigative skills of the officers through regular training programmes at the
induction stage and periodical in-service training courses. These are two main
problems in this regard: lack of training institutions, let alone state-of-the-art
institutions; and more importantly, lack of willing trainers. Presently, there are
three Central Detective Training Schools at Calcutta, Chandigarh and
Hyderabad. Most of the States also do have their own training institutions but
the present training facilities appear to be unable to cater to the total
requirements of training. Further, the existing training institutions impart the
training in old disciplines. As the complexity and nature of crime is changing
fast, training facilities in emerging disciplines such as forensic accounting and
information technology etc need to be developed and imparted to the I.Os.
7.15.2 The Committee is of the view that:
1) Adequate number of Training Institutions should be set up by the
State Governments as also by the Central Government for initial
training of various ranks of the police personnel as also for in-
service training. These instructions should focus on:
(i) Protection of scene of crime;
(ii) Collection of physical evidence there from with the help of
experts, including forensic experts;
(iii) Inculcating the art of interrogation of suspects and witness;
(iv) Developing the art of collection, collation and
dissemination of criminal Intelligence;
(v) Developing and handling informers etc.
2) The trainers should be handpicked by a Committee constituted by the DGP and
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officers having professional skills and aptitude alone should

be inducted in the Training Institutions. They need to be given
adequate monetary incentive and a fixed tenure, say of three
years. The old system of 30% of the basic pay to the trainers
may be revived.
3) Facilities should be developed for imparting training in modern
disciplines such as Forensic Accounting, Information
Technology, Cyber Crime, Economic and Organised Crimes etc.

7.16 COMPREHENSIVE USE OF F ORENSIC SCIENCE FROM THE INCEPTION

7.16.1 It can hardly be gainsaid that the application of forensic science to

crime investigation must commence from the stage of the very first visit by the
IO to the crime scene so that all relevant physical clues, including trace
evidence, which would eventually afford forensic science examination, are
appropriately identified and
collected. This can best be It can hardly be gainsaid that the application
done if the IO is accompanied of forensic science to crime investigation
to the crime scene by an must commence from the stage of the very
appropriately trained first visit by the IO to the crime scene so that
scientific hand. The standard all relevant physical clues, including trace
practice in most of the evidence, which would eventually afford
advanced countries is to forensic science examination, are
provide such scientific hands, appropriately identified and collected.
variously designated as ‘Field
Criminalists’, ‘Scene of Crime Officers’ (SOCO), Police Scientists etc., in the
permanent strength of each police station. In some cases, these personnel are
drawn from scientific cadre, while in some others, they are policemen
themselves, specially selected for their flair for scientific work and their
academic background of science subjects. These personnel are then provided in-
depth training in crime scene management and in the identification of different
types of scientific clues to be looked for in different types of crimes.

7.16.2 The present level of application of forensic science in crime

investigation is some-what low in the country, with only 5-6% of the registered
crime cases being referred to the FSLs and Finger Print Bureau put together.
There is urgent need to bring about quantum improvement in the situation,
more so when the conviction rate is consistently falling over the years in the
country and the forensic evidence, being clinching in nature, can reverse the
trend to some extent.
7.16.3 There are only 23 Central Forensic Science Laboratories /Forensic Science
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Laboratories and about 17 Regional Laboratories in the country. On the other

hand, USA has about 320 Forensic Science Laboratories (including private
sector Laboratories). It would, thus, appear that the number of Forensic Science
Laboratories in the country is grossly inadequate and certainly not
commensurate with our requirements. The Committee strongly feels that
Forensic Science facilities in India need heavy augmentation.
7.16.4 It may be added that a National Seminar on “Forensic Science; Its Use
and Application in Investigation and Prosecution; was organised by this Committee
and the Bureau of Police Research and Development at Hyderabad on 27 July 2002. A
number of Judges (including High Court Judges), Senior Police Officers and Directors
of most of the Central and State Forensic Science Laboratories of the country
participated in the seminar and made valuable suggestions for improving the Forensic
Science scenario in the country. The members of the Core Group constituted by this
Committee formulated the recommendations in this matter and submitted to our
Committee. The Committee is of the opinion that the following recommendations of
the Core Group should be implemented:
(1) Police Manuals and Standing Orders of different States/Union
Territories need to be amended to make the use of Forensic Science
mandatory, as far as practicable, in investigation of all grave and
important crimes such as those involving violence against the persons,
sexual offences, dacoity, robbery, burglary, terrorists crimes, arson,
narcotics, poisons, crimes involving fire-arms, fraud and forgery and
computer crimes.
(2) Police Manuals and Standing Orders should mandate the supervisory
officers to carefully monitor and scrutinize, if or not the IOs have
exploited the possibility of the use of forensic science in the
investigation of each crime right from the threshold of investigation.
(3) The State Governments should immediately create appropriate
forensic science facilities in each District. This should include one or
more Mobile Forensic Science Units, depending on the size of the
District, the incidence of crime, terrain and communication conditions
in each District. Each unit should have a Forensic Expert, a Finger
Print Expert, a Photographer and a Videographer. The job of these
mobile units would be not only to identify, collect and preserve the
evidence but also to tender necessary opinion, on the spot, to the IO, if
scientifically feasible.
(4) Each police station should be provided with a set of Scientific
Investigation Kits for identification and lifting of scientific clues from
the crime scene.
(5) Arrangement should also be made to create proper facilities for
packaging, storage and preservation of scientific clue material
collected from the crime scene or suspects, to ensure their protection
against contamination, degradation or damage at the police station or
in the District Headquarters. Standard material for packaging
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and preserving scientific evidence should be supplied for this purpose

from time to time by the State FSLs.
(6) Appropriate number of Regional FSLs at the headquarters of each
Police Range should be set up by the State Govt.
(7) The Central and State FSLs are facing acute shortage of men power.
According to a study conducted by NICFS, the vacancies in the FSLs
range from 17 to 71% of the sanctioned posts of scientists. The
Governments concerned should take appropriate steps to fill up these
vacancies. Further, the sanctioned strength itself is pegged at far below
the yardsticks formulated by BPR&D. The States must, therefore,
revise the sanctioned strength of their respective FSLs in the light of
the BPR&D guidelines.
(8) There are virtually no facilities for training of Forensic Scientists in
the country and they mostly learn on the job. It must be noted that a
trained scientist is far more productive than several untrained or semi-
trained hands. We, therefore, recommend that NICFS should take
upon its shoulders the responsibility of imparting professional training
to the scientific personnel. We also recommend that NICFS must
expand and strengthen its core facilities in emerging areas such as
forensic DNA, Forensic Explosives and Computer Forensics etc.
(9) The Finger Print Bureaux in the country are generally undermanned
and are storing and analyzing data manually. The analysis and
retrieval, therefore, takes a long time and the storage capacity is also
limited. We, therefore, recommend that modern electronic gazettes
must be used in collection, storage, analysis and retrieval of finger
print related data.
(10) Most of the FSLs suffer from financial crunch. The budgetary position
of the FSLs should be reviewed and sufficient funds should be made
available to them.
(11) A mandatory time limit should be prescribed for submission of reports
to the police/Courts by the FSLs.
(12) A national body on the pattern of Indian Council of Medical Research
should be constituted in the country to prescribe testing norms for the
FSLs and ethical standards for the forensic scientists.
(13) Forensic Science, unfortunately, has not assumed the status of an
academic discipline in India. We recommend that the UGC should
consider creating the departments of Forensic Science in at least all
the major universities. Later, Forensic Sciences could be introduced as
subjects at the school level. Funds should also be ear-marked and
allotted for research in these departments.
(14) A polygraph machine for lie detector test should be provided in each
district. The regular use will obviate the need for extra legal methods
of interrogation.
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7.17 MEDICO LEGAL SERVICES

7.17.1 The Medico Legal Services play an equally important role in the
investigation of crime and prosecution thereof. The state of Medico Legal
Services in the country is far from satisfactory. One of the main contributory
factors for this is that the entire apparatus of the Medico Legal Services is
administratively controlled by the Department of Health under the State
Governments who are not concerned with the police or with the Criminal
Justice System. Even, the Forensic Medicine Departments attached to the
Medical Colleges are in a poor and neglected state. The Doctors doing Medico
Legal work i.e. conducting postmortems of dead bodies and preparing Injury
Reports etc. are also a dispirited lot and in a poor state of morale. They feel
forsaken by their parent departments and not owned up by the Police
departments for which they seemingly work. Keeping in view the prevailing
scenario, the Committee recommends that:
(i) On the pattern of Tamilnadu, a Medico Legal Advisory Committee
should be set up in each State under the Senior Most Medico Legal
Functionary/Professor of Forensic Medicine/Police Surgeon, with
at-least two Board members, including one from the State FSL. One
of the main tasks of this Committee would be to resolve the
differences of opinion between the Medico Legal Professionals and
the Forensic Experts.
(ii) The condition of mortuaries is dismal all over the country.
Appropriate mortuary rooms with adequate infrastructure and
equipment should be made available to each Medical College.
(iii) At places where there are no Medical Colleges, Medico Legal work
is being done by the Doctors who are not adequately trained in such
work. Resultantly, they often turn out sub-standard reports which
create confusion for the IOs as well as for the Courts. The State
Governments must prepare a panel of qualified Doctors, adequately
trained in Medico Legal work, and post them in the Districts and
other Mufassil Hospitals for attending to such work.
(iv) The State Government must prescribe time-frame for submission of
Medico Legal reports. We recommend the following time frame:
a) Injury Report : 6 hours;
b) Postmortem Report : 24 hours
(v) There has been a tendency on the part of some Medico Legal
experts to reserve their opinion as to the cause of death etc.,
pending receipt of the reports of FSLs on toxicological examination
even in cases where it is possible for them to give a definite opinion
about the cause of death. This tendency should be eschewed.
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7.18 DELAYED SUBMISSION OF EXPERT REPORTS

The report of FSL experts and Medical Jurists play a seminal role
both at the investigation stage and at the trial stage in the determination of facts.
The police and the court complain that these reports are not being submitted in
time by the experts concerned. The delay hampers the investigations and delays
trials. Certain State Governments have laid down the time frame for submission
of reports by the experts but these norms are not being adhered to partly due to
inadvertence and partly due to over-loading of these institutions.

7.19 REGISTRATION OF CASES

7.19.1 According to the section 154 of the Code of Criminal Procedure,

the officer incharge of a police station is mandated to register every information
oral or written relating to the commission of a cognizable offence. Non
registration of cases is a serious complaint against the police. The National
Police Commission in its 4th report lamented that the police “evade registering
cases for taking up investigation where specific complaints are lodged at the
police stations”. It referred to a study conducted by the Indian Institute of Public
Opinion, New Delhi, regarding “Image of the Police in India” which observed
that over 50% of the respondents mention non registration of complaints as a
common practice in police stations.
7.19.2 The Committee recommends that all complaints should be
registered promptly, failing which appropriate action should be taken. This
would necessitate change in the mind-set of the political executive and that of
senior officers.
7.19.3 There is yet another aspect that needs consideration. Section
154 Cr.P.C. provides that it is the officer in-charge who will register a case
relating to commission of a cognizable offence. The SHO are often busy in
investigational and law and order duties and are also on tours in connection with
court appearances etc. In their absence from the police stations, the informants
are made to wait till their return. it causes avoidable harassment to the informant
and also results in the disappearance of evidence. We, therefore, recommend
that the State Govts./DGPs must issue firm instructions to the field formations
to the effect that a case shall be registered by the SHO of the police station if he
is present at the police station and in his absence by the senior most police
officer available at the station, irrespective of his rank.
7.19.4 There are two more aspects relating to registration. The first is
minimization of offences by the police by way of not invoking appropriate
sections of law. We disapprove of this tendency. Appropriate sections of law
should be invoked in each case
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unmindful of the gravity of offences involved. The second issue is relating to

the registration of written complaints. There is an increasing tendency amongst
the police station officers to advise the informants, who come to give oral
complaints, to bring written complaints. This is wrong. Registration is delayed
resulting in valuable loss of time in launching the investigation and
apprehension of criminals. Besides, the complainant gets an opportunity to
consult his friends, relatives and, sometimes, even lawyers and often tends to
exaggerate the crime and implicate innocent persons. This eventually has
adverse effect at the trial. The information should be reduced in writing by the
SHO, if given orally, without any loss of time so that the first version of the
alleged crime comes on record.

7.20 INVESTIGATION OF COGNIZABLE AND NON-COGNIZABLE OFFENCES

7.20.1 Section 2(c) of the Code defines ‘Cognizable Offence’ and
‘Cognizable case’as follows: -
“Cognizable Offence” means an offence means an offence for
which, and “Cognizable case” means a case in which, a police
officer may, in accordance with the First Schedule or under any
other law for the time being in force, arrest without warrant”.

7.20.2 It says that those offences which are specified in the schedule to the
Code in which police officer can arrest without warrant are cognizable offences.
But when we look at the Schedule we find that there is no enumeration of
offences where police officer can arrest without warrant. This is a patent
anomaly. However the Schedule specifies the offences which are cognizable
and which are not. It also gives information about punishment for each offence,
whether the offence is bailable or non-bailable, and the name of the court where
the offence can be tried.

7.20.3 The question for examination is as to whether the distinction

between cognizable and non-cognizable offences is conducive to satisfactory
dispensation of criminal justice.
7.20.4 ‘Offence’as defined in Section 2 (n) means:-
Any act or omission made punishable by any law for the time
being in force and includes any act in respect of which a
complaint may be made under Section 20 of the Cattle
Trespass Act, 1871 (1 of 1871).

7.20.5 Whenever any offence is committed it results in the invasion of the rights of
the citizen and the victim is entitled to complain about such invasion. In this connection the
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Code makes a distinction between cognizable and non-cognizable offences.

Cognizable offences are by and large serious in nature.

7.20.6 Section 154 provides that any information received in the police
station in respect of a cognizable offence shall be reduced into writing, got signed
by the informant and entered in the concerned register. Section 156(1) requires the
concerned officer to investigate the facts and circumstances of such a case without
any order from the Magistrate in this behalf. If Magistrate receives information
about commission of a cognizable offence he can order an investigation. In such
cases citizen is spared the trouble and expense of investigating and prosecuting the
case.

7.20.7 However, the position is different so far as non-cognizable offences

are concerned. They are regulated by Section 155 of the Code. When a citizen
goes to the concerned police station complaining about commission of a non-
cognizable offence the police officer is required to enter the substance of the
information in the relevant register and refer the informant to the Magistrate. Sub-
section 2 of Section 155 says that the police officer shall not investigate such a
case without the order of the Magistrate. In such cases the citizen is forced to
approach the Magistrate to file his complaint. The Magistrate will examine the
complainant and the witnesses present and decide whether there is sufficient
ground for proceeding further. The burden of adducing evidence during trial is on
the accused.

7.20.8 The offences that are non-cognizable include Public servants

disobeying law to cause injury to any person; bribery during election; giving or
fabricating false evidence; escape from confinement; offences relating to weights
and measures; some offence affecting public health, safety, convenience and
morals; causing miscarriage; causing heart; buying or disposing of any person as a
slave; rape of wife under 12 years; dishonest misappropriation; cheating; mischief;
forgery; making or using documents resembling currency notes or bank notes;
offences relating to marriage; criminal intimidation; causing annoyance in a state
of intoxication in a public place etc. These are some of the offences which
seriously affect the citizens. Some of them carry imprisonment from a few months
to imprisonment for life. Offence under Section 194 I.P.C carries death sentence.
Quantum of punishment prescribed indicates the seriousness of the crime and its
adverse affect on society. But even such serious offences adverted above are non-
cognizable. There is no good reason why such offences should not be investigated
without the order of the Magistrate.

7.20.9 The object of the penal law is to protect life, liberty and property of
the citizen. All citizens who are victims of crimes punishable under
the Indian Penal Code are entitled to be treated fairly, reasonably and
equally. By categorizing large number of offences as non-
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cognizable, unreasonable burden has been placed on the citizens by requiring

them to investigate the case, collect evidence and produce them before the
Magistrate. The citizen would be also obliged to engage a lawyer to conduct his
case as he may not be familiar with court procedures. Sometimes witnesses will
not be willing to co-operate with the complainant. The complainant would be
required to spend a lot of time to investigate. This is not easy for a private
citizen who has no training in investigation. Thus a heavy burden, financial and
otherwise is placed on the victims of non-cognizable offences.

7.20.10 A common citizen is not aware of this artificial distinction between

cognizable and non-cognizable offences. There is a general feeling that if any
one is a victim of an offence the place he has to go for relief is the police
station. It is very unreasonable and awkward if the police were to tell him that it
is a non-cognizable offence and therefore he should approach the Magistrate as
he cannot entertain such a complaint.

7.20.11 It has come to the notice of the Committee that even in cognizable
cases quite often the Police Officers do not entertain the complaint and send the
complainant away saying that the offence is not cognizable. Sometimes the
police twist facts to bring the case within the cognizable category even though it
is non-cognizable, due to political or other pressures or corruption. This
menace can be stopped by making it obligatory on the police officer to register
every complaint received by him. Breach of this duty should become an offence
punishable in law to prevent misuse of the power by the police officer.

7.20.12 The present classification of offences as cognizable and non-

cognizable on the basis of the power to arrest with or without order of the
Magistrate is not based on sound rational criteria. Whether in respect of any
offence arrest should be made with or without the order of the Magistrate must
be determined by relevant criteria, such as the need to take the accused
immediately under custody or to prevent him from tampering with evidence, or
from absconding or the seriousness of the crime, and its impact on the society
and victim etc.

7.20.13 Because of the burden placed on investigating and producing

evidence large number of victims of non-cognizable offences do not file
complaints. They stand deprived and discriminated. This is one of the reasons for
the citizens’losing faith and confidence in the Criminal Justice System. As justice
is the right of every citizen it is not fair to deny access to justice to a large section
of citizens by classifying certain offences as non-cognizable. Law should provide
free and equal access to all victims of crimes. This can be done by removing the
distinction between cognizable and non-cognizable offences for the purpose of
investigation of cases by the Police Officer.
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7.20.14 Considerable time of court is now being spent in dealing with

registration of complaints regarding non-cognizable offences. The time saved
can be utilized for dealing with other judicial work.

7.20.15 This may contribute to more aggrieved persons filing complaints

thereby increasing the work-load of the police. As the state has the primary
duty to maintain law and order, this cannot be a good reason against the
proposed reform.

7.20.16 Another apprehension is that this may encourage false and

frivolous complaints. An experienced police officer will not find it difficult to
summarily dispose of such frivolous complaints without undue waste of time.

7.21 REGISTRATION OF F ALSE CASES

7.21.1 According to crime in India Report 2000 false cases registered

constituted 6.55% of the total cases disposed of during 2000. False registration
of cases results in wastage of police resources, time and effort and also causes
harassment to the opposite party. This tendency needs to be curbed.

7.21.2 The Committee recommends that institution of a false case either

with the police or with a Court must be made an offence punishable with
imprisonment which may extend to 2 years.

7.22 CRIME SCÈNE VISITATION:

7.22.1 Investigation involves several stages and the crime scene visitation is
one of the most important of them, excluding perhaps, white-collar crimes.
Recognizing this need, the Police Manuals in most of the States have mandated
immediate despatch of an officer to the scene of crime for inspecting it, preserving
the evidence and preparing the site plan etc. Such inspection of scene crimes
should be done by a team consisting of forensic scientist, finger print experts,
crime photographer, legal advisor etc. and not just by a single investigating officer.

7.22.2 In the National Seminar on “Forensic Science”: Use and Application

in Investigation and Prosecution” held on 27 July, 2002, at Hyderabad held under
the auspicious of this Committee, in which Judges, senior police officers, senior
forensic scientists and Medical Jurists had participated, the forensic scientists
lamented that their services were not being utilized for crime scene visitation as a
result of which valuable forensic evidence is being lost.
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7.22.3 In this context, the Committee is of the opinion that:

i) The scene of crime must be visited by the investigating officer
with utmost dispatch;
ii) The IO must photograph/videograph the scene of crime from all
possible angles or get it done by an expert;
iii) He should preserve the scene of crime so that no evidence is lost
due to disturbance by the inmates of house or curious onlookers,
including VIPs;
iv) The Investigating Officer should either prepare the sketch or plan
of the scene of crime himself or get it done by a Patwari or an
expert, if deemed fit;
v) The investigating officer should take along-with him a Forensic
Scientist and Finger Print Expert or any expert of the relevant
discipline to collect physical evidence from the scene of crime. If
it is, somehow, not possible due to exigencies of the situation, the
Investigating Officer should preserve the scene of crime and
immediately requisition the services of forensic experts for the
above purpose.

7.23 RECORDING OF STATEMENTS OF WITNESSES – SECTION 161 & 162 OF

THE CODE

7.23.1 Section 161 deals with examination of witnesses by the police during
investigation and Section 162 provides that statements of witnesses recorded by the
police shall not be required to be signed by the witnesses and further that such
statement can be used by the accused and with the permission of the court only for the
purpose of contradicting the witness in accordance with Section 145 of the Evidence
Act. In other words such statement cannot be used as a previous statement for the
purpose of corroborating the maker. This flows from the distrust of the police about
their credibility. Several measures have been recommended in this report to remove
that distrust and to ensure credibility of the police. These measures include among
others, separation of the investigation wing from the law and order wing, insulating it
from political and other pressures so that the investigating officers can function
impartially, independently and fearlessly by constituting the State Security
Commission as recommended by the National Police Commission Volume VIII
Chapter III, improving professionalism and efficiency of the investigating officers,
etc. Once that is done it paves the way to repose trust and confidence in the
investigating officers. This would justify suitably amending Sections 161 and 162 of
the Code to enable the statements of witnesses recorded during investigation being
treated on par with any previous statements and used for corroborating and
contradicting the witness. Section 161(3) gives discretion to the police officer to
reduce the statement of the witness into writing. The Law Commission in its
14th Report has observed that if the statement of a witness is not
reduced in writing, the whole purpose of section 173 would be
defeated by a negligent or dis-interested police officer. The Commission, therefore,
recommended that the police officer should be obliged by law to
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reduce to writing the statement of every witness whom he has examined. This
view was emphasized in the 37th Report of the Law Commission. It went on
further to suggest that statement of every witness questioned by the police u/s
161 Cr.P.C. must be recorded, irrespective of whether he is proposed to be
examined at the trial or not.

7.23.2 The Committee is of the view that the investigating officer should
be mandated to reduce to writing the statements made to him in the narrative or
questions and answers form. Section 163(3) should be suitably amended.

7.23.3 As per section 161 Cr.P.C., a witness is not mandated to accord his
signatures on a statement made by him to the 10. This has often encouraged
witnesses to turn hostile at the trial due to threats, fear or greed and giving a
version different from the one given to the Investigating Officer. This happens
as the witness has not signed his statement before the police. In the 41st Report,
the Law Commission recommended that where the person can read the
statement recorded by the police, his signature can be obtained after he has read
the statement. The Law Commission also favoured sending the witnesses to the
Magistrate for recording his statement on oath under section 164 Cr.P.C.

7.23.4 In the circumstances, the Committee is of the opinion that:

i) Section 161 Cr.P.C. should be amended to make it obligatory to
record statements made by the witnesses during investigation in
the narrative or in the question and answer form. The statement
should be read over if admitted correct should be got signed by
the witness;
ii) a copy of the statement should be immediately given to the
witness.
iii) Section 162 of the Code should be amended so that the statement
can be used both for corroboration and contradiction.
7.24 VIDEO/AUDIO RECORDING OF STATEMENTS OF WITNESSES, D YING
DECLARATION AND CONFESSIONS

7.24.1 Frequent changes in statements by the witnesses during the course

of investigation and, more particularly, at the trial are really disturbing. This
results in miscarriage of justice. Hence, modern science and technology should
be harnessed in criminal investigation. Tape recording or video recording of
statements of witnesses, dying declarations and confessions would be a
meaningful and purposive step in this direction. Unfortunately, the existing law
does not provide for it. It is understandable as these facilities did not exist at the
time when the basic laws of the land were enacted. Now that these facilities are
available to the investigating agency, they should be optimally utilised.
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7.24.2 Section 32 of the Prevention of Terrorism Act, 2002, provides that

a police officer of the rank of Superintendent of Police may record a
confessional statement of an accused either in writing or on a mechanical or
electronic devices like cassettes, tapes or sound tracks from out of which sound
or images can be reproduced. Such evidence has been rendered admissible at the
trial. A similar provision exists in section 18 of the Maharashtra Control of
Organised Crime Act, 1999.

7.24.3 The Committee is of the view that the law should be amended to
provide for audio or video recording of statements of witnesses, dying
declarations and confessions etc. and about their admissibility in evidence. A
beginning may be made to use these modern techniques at least in serious cases

7.25 FACILITIES FOR INTERROGATION

It can hardly be over emphasized that interview of witnesses and

interrogation of suspects/accused should be done in a professional manner so as
to elicit the truth. This is possible only when the Investigating Officer possesses
professional competence, has adequate time at his disposal and the
interview/interrogation is conducted in a proper ambience. The police stations
in the country are generally small and located in crowded areas, particularly in
the urban centres. Some of them are even operating out of tents. Neither the
investigating officer nor the witnesses/suspects/accused have any privacy in this
atmosphere. The Committee, therefore, feels that a room equipped with proper
facilities such as video cameras, voice recorders etc. should be set apart in each
police station for the purposes of interrogation/interview.

7.26 ARREST OF ACCUSED

7.26.1 Chapter 5 of Criminal Procedure Code deals with the arrest of a

person. Section 41 of Cr.P.C. is the main section providing for situations when
the police may arrest without warrant. Section 42 empowers a police officer to
arrest a person who commits an offence in his presence or where such person
has been accused of committing a non-cognizable offence, and he refuses to
give his name and residence or gives false name or residence to the officer.
Section 43 speaks of a situation where an arrest can be made by a private
person. Section 44 deals with arrest by a Magistrate. Section 47 enables the
police officer to enter a place if he has reason to believe that the person to be
arrested has entered into that place or is within that place. Section 48 empowers
the police officer to pursue offenders into any place in India beyond his
jurisdiction. Section 50 creates an obligation upon the police officer to
communicate to the person arrested person full particulars of the offence for
which he has been arrested.
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Sections 53 and 54 provide for medical examination of the arrested person at the
request of the police officer or at the request of the arrested person, as the case
may be. Section 56 provides that the arrested person shall be produced before
the Magistrate within 24 hours, exclusive of the journey time.

7.26.2 Despite constitutional safeguards provided in Article 22 of the

Constitution, there are often allegations of misuse of power of arrest by the
police. At the same time, we are not unaware that crime rate is going up in the
country for various reasons. Terrorism, drugs and organised crime have become
so acute that special measures have become necessary to fight them not only at
the national level but also at the international level. A fine balance, therefore,
has to be struck between the interests of the society and the rights of the
accused.

7.26.3 The National Police Commission in its 3rd Report, referring to the
quality of arrest by the police in India had mentioned that power of arrest was
one of the chief sources of corruption in the police. The report suggested that by
and large nearly 60% of the arrests were either unnecessary or unjustified and
that such unjustified police action accounted for 43.2% of the expenditure of the
prison department.

7.26.4 Notwithstanding the above, the Commission took the view that the
arrest of a person may be justified during the investigation of a cognizable case in
one or other of the following circumstances:
(i) The case involves a grave offence like murder, dacoity, robbery,
rape etc. and it is necessary to arrest the accused and bring his
movements under restraint to infuse confidence among the terror
stricken victims.
(ii) The accused is likely to abscond and evade the processes of law.
(iii) The accused is given to violent behavior and is likely to commit
further offence, unless his movements are brought under restraint.
(iv) The accused is a habitual offender and unless kept in custody he is
likely to commit similar offences again.

7.26.5 In England, the Royal Commission suggested the following

criterion for arrests:
i) the person’s unwillingness to identify himself so that a summon
may be served upon him.
ii) the need to prevent the continuation or repetition of that offence.
iii) the need to protect the arrested person himself or other persons or
property.
iv) the need to secure or preserve evidence of or related to that offence
or to obtain such evidence from the suspect by questioning him.
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v) the likeli-hood of the person failing to appear at Court to answer

any charge made against him”.

7.26.6 The Royal Commission also recommended the Ontario Scheme

wherein the police officers issue ‘Appearance Notice’ to the accused,
whereupon the concerned persons are required to appear before the police,
thereby obliterating the need of their arrest.

7.26.7 The Indian Penal Code divides offences into four categories,
namely;
a) non-cognizable and bailable;
b) cognizable and bailable;
c) cognizable and non bailable;
d) non cognizable and non bailable.
A police officer is empowered to arrest in category (ii) i.e. cognizable
and bailable offences but this arrest is only a technical one and the
arrested person is required to be released on bail as soon as he furnishes
sureties. This power, therefore, is not open to much abuse. The real
power of arrest lies in category (iii) offences i.e. cognizable and non
bailable offences, which, it is alleged, is open to misuse. The number of
such offences in the IPC is 57. (offences relating to the Army, Navy
and Air Force), which are 23 in number and in which arrests are rarely
made, are excluded only 34 offences remain in which the police is
empowered to arrest and detain in custody. In view of the spiralling
crime graph in the country and the menace posed by terrorism, organised
crime and drug mafia, the Committee is of the view that power of arrest
is necessary for dealing with serious crimes.

7.26.8 Power of arrest is often misused. The person arrested apart from
suffering considerable inconvenience, also suffers by loss of his image in the
society. Even if ultimately he is found to be innocent that damage done to the
arrested person can not be undone. There is an erroneous impression in the
minds of the police that the first thing for him to do is to arrest the suspected
person even without making any inquiry. It may be necessary to arrest the
person when the offence involved is fairly serious and the accused is likely to
abscond or evade the process of law or there is reasonable apprehension of the
accused committing offences or when he would be a serious threat to the victim,
or witnesses, or is likely to tamper the evidence, or when it is necessary in the
circumstances to restore a sense of security in the locality and similar other
considerations as pointed out by the Law Commission in its 154th report.

7.26.9 In the opinion of the Committee no arrest shall be made by the

police if 1) the punishment is fine only or 2) fine is an alternative punishment to
imprisonment.
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7.26.10 However a person suspected of being involved in, or accused of

having committed an offence, shall be bound to give his name, address, and
such other particulars on demand by a Police Officer, and if so called upon,
shall be liable to appear in the Police Station on any date and time intimated to
him by the Police Officer, and on his failure to do so, he shall be liable to be
arrested by such officer, in order that his name, address or other particulars may
be ascertained. Section 42 of the Code be amended by substituting the word
“any” for the words “of non-cognizable”.

7.26.11 Bailable offences are now specified in the first schedule to the
Code. Now that the Committee has recommended that no arrest shall be made
in respect of certain offences consequential amendments shall be made in the
column relating bailability. No modification is suggested regarding bailability
of other offences specified in the schedule.

7.26.12 As the Committee has recommended removal of the distinction

between cognizable and non-cognizable offence consequential amendments
may be carried out. In the First Schedule, for the expression ‘Cognizable’ the
expression ‘arrestable without warrant’ and for the expression ‘non-cognizable’
the expression ‘arrestable’with warrant or order” shall be substituted.

7.26.13 In the light of the anomaly pointed out by the committee in first
schedule, the removal of the distinction between cognizable and non-cognizable
offences and amendments regarding arrestability of offences the Committee
suggests that the first schedule be amended providing columns for the
following: -

i. Section
ii. Offence
iii. Punishment
iv. No arrest / arrestable with warrant or order / arrestable without
warrant or order.
v. Bailable or non bailable
vi. Compoundable or non-compoundable
vii. By what court triable.
Consequential amendments shall be made to part-II of the first Schedule in
respect of offences against other laws.

7.27 MECHANISM FOR COLLECTION OF CRIMINAL INTELLIGENCE:

7.27.1 The present day crime situation in India is of alarming concern to

the police force and enforcement agencies of the Central Government. To tackle
the challenge of terrorism (including narco-terrorism anti terrorist-funding),
organised crime, drug trafficking,
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economic crimes such as bank-scams etc. and crimes having inter-State and
trans-national ramifications, new strategies are called for. What is of immediate
concern is to have accurate and real time intelligence on organised crime
activities so as to prevent major catastrophes in the future.

7.27.2 While a structured system for collection and dissemination of

political intelligence exists in the States and at the Central level, no such system,
however, is in place as far as the criminal intelligence is concerned. This
deficiency has definitely hampered the crime control effort and calls for
immediate remedial action.

7.27.3 The Committee feels that concrete steps ought to be taken to

institutionalize criminal intelligence system and recommends that:
i) An apex body at the national level headed by an officer the rank of
DGP/IGP to be called the National Bureau on Criminal Intelligence
should be set up. Its head office and permanent secretariat would be
at Delhi. It would consist of officers drawn from all parts of the
country and representing a cross- section of the police forces and
central investigating agencies. The main task of this body would be
to collect, collate and disseminate information about major criminal
gangs operating in the country involved in organised crime,
terrorism, narco terrorism, cyber crimes, wild life crimes and
environmental crimes, economic crimes etc. Its exact charter would
be determined by the Central Government. This body would
function as a Clearing House of the criminal information regarding
specified grave crimes and would have a computerised data base,
accessible to all State Police forces/central agencies.
ii) A similar body may be set up at the State level. It may be headed by
an IGP/DIGP level officer, responsible to the DGP through the head
of the State Crime Branch. This agency would also have a
computerised data base accessible to the national level body, its
counter-parts in other States and all Districts. within the respective
States.
iii) The State Governments/DGPs should set up Criminal Intelligence
Cells in each District. An Additional SP level officer may head this
Cell in each district on full time basis. The District MOB may be
merged into this Cell. This Cell will collect information through the
police stations as well as through its own staff and will have a
computerized data base.
iv) A Criminal Intelligence Unit should be set up in each police station.
It may consist of Core Intelligence Unit of 3 or 4 ASI/HC, well
trained and motivated for the work and equipped with adequate
transport and communication facilities.

7.27.4 The Committee feels that it would be useful to involve the public spirited and
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politically neutral NGOs with record of moral rectitude and the Community
Liaison Groups or other such organisations by whatever name called in the
collection of criminal intelligence at the police station and District. level.

7.28 CONSTITUTION OF SPECIALIZED UNITS AT THE STATE AND THE

DISTRICT LEVEL

7.28.1 In addition to the above, the Committee feels that specialised

squads are necessary for investigating cases of murder, burglary, economic
offences, forgery, robbery, dacoity, kidnapping for ransom and automobile
thefts etc. The National Police Commission vide para 49.82 of its report had
recommended constitution of such specialized teams. The Committee suggests
the constitution of the following specialized squads at the State level:
(i) Homicide Squads;
(ii) Burglary Squads;
(iii) Economic Offences and Forgery Squads;
(iv) Robbery/Dacoity Squads;
(v) Kidnappping/Missing Persons Squads;
(vi) Automobile Thefts Squads;
(vii) Squads for tracking criminals.

7.28.2 The State Govts. must make available adequate manpower,

mobility, equipment and other logistical support to these squads.

7.28.3 Teams of investigating officers should also be available with the

Addl.SP (Crime) in each district. This has been dealt with in detail earlier.

7.28.4 Besides, the Committee feels that for better management of crime
work, at least 2 Addl. Ss. P. should be exclusively ear-marked for this purpose
in a District. One Addl. SP would deal with crime prevention, criminal
intelligence, tracking of criminals, surveillance, collection of crime statistics
and empirical studies etc. He will also carry out investigations specially
entrusted to him. The second one would personally investigate heinous crimes
occurring in the District. The Committee feels that these measures would result
in improvement in detection percentage of the above class of cases, the quality
of investigation would improve and higher rate of conviction would be secured.

7.29 USE OF EXPERTS IN INVESTIGATION

7.29.1 Investigation of crime is a highly specialized and complex matter,

requiring a lot of expertise, patience and training.
Given the complexity of crime, it is not possible for the
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police officers themselves to understand various facets of crime and conduct

competent investigations all by themselves. They would need help of experts
from various disciplines such as Auditing, Computer Sciences, Banking,
Engineering, Revenue services and so on.

7.29.2 The Committee feels that a pool of competent officers from the
above disciplines should be created at each Police Headquarters to render
assistance in investigation of crimes all over the State. The State Governments
may either second these officers from their parent departments to the Police
Department; on a tenure basis or a cadre of such officers may be created in the
Police Departments themselves.

7.30 COORDINATION AMONGST INVESTIGATORS, FORENSIC EXPERTS AND

PROSECUTORS

7.32.2 No case can succeed at the trial unless it is properly investigated

and vigorously prosecuted. Forensic experts evidently play a key role both at the
investigation stage as also at the prosecution stage. The investigators, forensic
experts and prosecutors should act in cooperation with each other.

7.32.3 The mechanism of integration between the investigators and the

forensic experts can be implemented at the following stages:-

i) initial investigation i.e., at the crimes scene level;

ii) search of the suspects, suspects’ premises and collection of
physical evidence there-from;
iii) framing request for laboratory analysis;
iv) interpreting the analytical results of the laboratory;
v) evaluating the probative value of the result in accordance with
prosecution needs;
vi) pre-trial discussion with the prosecutors;
vii) offering the testimony before the Court;
viii) prosecutors’arguments on the case;
ix) review of effectiveness of forensic evidence as indicated in the
judgment.

7.31 NEED FOR NEW POLICE ACT

7.31.1 Law is an important instrument for prevention and control of crime. The
Committee feels that for effectiveness of the Criminal Justice System, not only
certain new laws need to be enacted but the deficiencies in the existing laws,
which adversely affect investigation and prosecution of cases, need to be
rectified. After a careful consideration of the matter, the Committee suggests
the enactment of the following new laws:
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7.31.2 The police system in the Country is functioning under the archaic Indian
Police Act which was enacted in 1861 for the perpetuation of the British
Empire. The police now have an obligation and duty to function according to
the requirements of the Constitution, law and democratic aspirations of the
people. Further, the police is required to be a professional and service-oriented
organisation, free from undue extraneous influences and yet be accountable to
the people. Besides, it is necessary to have the police force which is
professionally controlled and is politically neutral, non-authoritarian, people
friendly and professionally efficient. The National Police Commission had
recommended enactment of a new Police Act for achieving the above objectives
about two decades back. The Central Govt., however, has not taken any action.
The Committee strongly feels that a new Police Act may be enacted by the
Central Govt. on the pattern of the draft prepared by the National Police
Commission.

7.32 POLICE REMAND

7.32.1 (i) Section 167 (2) Cr. P. C., provides for a maximum of 15 days in
police custody. It is not possible to fully investigate serious crimes
having inter-state ramifications in this limited period. The law
should be amended to provide for a maximum police custody
remand of 30 days in respect of grave crimes where punishment is
more than five years.
(ii) As per section 167 Cr.P.C., the accused is liable to be released on
bail if the charge sheet is not filed against him within 90 days from
the date of his arrest. It is not always possible to investigate a case
comprehensively within this period particularly cases having inter-
State or trans-national ramifications. This results in accused
involved in grave crimes being enlarged on bail. It would be
desirable if the law is amended to provide another 90 days to the
investigating agencies in case of grave crimes if, on the report of
the investigating officer, the court is satisfied that there are
sufficient reasons for not filing the chargesheet within the initial
period of 90 days.
(iii) Under Section 167(2) an accused cannot be taken on police custody
remand after the expiry of first 15 days from the date of his arrest.
This has emerged as a serious handicap in sensitive investigations.
This issue was deliberated upon by the Law Commission of India
which recommended in their 154 report that the law should be
amended to enable the CBI to take the accused in the police custody
remand even after the expiry of the first 15 days so long as the total
police custody remand of the accused does not to exceed 15 days.
In our view, such discrimination between the State Police and CBI
would not be justified. The law, therefore, is required to be
amended to on the lines permitted to C.B.I.
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7.32.2 Many times accused are admitted in Hospitals during police

custody on health grounds and stay there for several days. During this period
interrogation of accused is not possible. Thus the police officer is handicapped
in investigation. To overcome this difficulty a suitable provision be made in
Section 167(2) to exclude the period of hospitalization or such other cause for
computing the period available for police custody.

7.33 ANTICIPATORY BAIL

A Session Court or High Court is empowered to grant anticipatory

bail u/s 438 Cr.P.C. irrespective of the fact whether it has the jurisdiction to
hear the matter or not. Further, the law does not require the Public Prosecutor
being heard, irrespective of the gravity of the offence. This provision has been
often mis-used by rich and influential people. The Govt. of Uttar Pradesh has
dispensed with this provision through a local amendment. After considering the
pros and cons of the matter, we are of the view that the provision may continue
subject to the following conditions:

(a) that the Public Prosecutor would be heard by the court; and
(b) that the petition for anticipatory bail should be heard only by the
court of competent jurisdiction.

7.34 MISCELLANEOUS

7.34.1 The police often have to take into police custody the accused
persons who are in the judicial custody of another judicial magistrate. The
standard practice is to request the Executive Magistrate to issue the Production
Warrant. Generally, the Executive Magistrate does issue the Production Warrant
to be executed by the Jail Authorities where the criminal is lodged. Some
Magistrates, however, decline to issue the Production Warrants on the ground
that there is no specific provision in the Cr.P.C.. It is a fact that there is no
express provision in the Cr.P.C. We, therefore, recommend that this ambiguity
be removed and a clear provision incorporated in the Cr.P.C.

7.34.2 The police have to arrange Test Identification Parade for the
identification of the accused by chance witnesses as also for the identification of
the stolen property. This practice has been going on far decades, without there
being an express statutory provision either in the Cr.P.C. or the Evidence Act.
At present, such T.I. Parades are being brought within the ambit of Section 9 of
the Evidence Act. But there is no prescribed procedure for holding the T.I.
Parade. We recommend that an express provision should be made in the Cr.P.C.
for arranging a T.I. Parade.

7.34.3 Several provisions in the Cr.PC., like Sections 93 to 95 and 100 deal
with searches and they enjoin the police officers to call for independent and
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respectable inhabitants of the locality or of another locality if no such inhabitant of

the said locality is available or willing to be a witness to search etc. There are also
other provisions where presence of such witnesses is required in documents
prepared by the police. Enactments like Prevention of Food Adulteration Act,
Excise Act which contain a minimum sentence of imprisonment do not provide for
the presence of witnesses from the locality or neighbourhood. The Committee
therefore suggests that the investigation agency should be able tog secure the
presence of independent witnesses in cases where such presence is required. This
will totally do away with the witnesses of the localities reluctance to give evidence
or becoming hostile etc. and the incorporation of the word “independent witnesses”
will exclude the presence of stock witnesses which is a charge generally leveled
against such witnesses by the defence.

THE INDIAN EVIDENCE ACT

7.35 Section 25 of the Indian Evidence Act provides that no confession

made to a Police Officer shall be proved against a person accused of any offence.
This bar applies to recording of confession by a police officer irrespective of his
rank. This provision deprives the Investigating agency of valuable piece of
valuable evidence in establishing the guilt of the accused. Confessions made
before the Police have been made admissible in different parts of the World.
Singapore, which virtually follows the same system as ours, has empowered the
Sergeant-level officers to record confessional statements.

7.35.1 In India, confessions made to certain law enforcement agencies under

the following provisions are admissible in evidence.-

1. Section l2 of the Railway Protection Force Act, 1957;

2. Section 8 and 9 of the Railway Property Unlawful Possession Act,
1996; and
3. Section 108 of Customs Act, 1962;
4. Section 18 of TADA of 1987 (the Constitutionality of the same is
upheld by the Supreme Court in KARTAR SINGH v STATE OF
PUNJAB: (1994) 3 SCC. 569. The Act has since lapsed.)
5. Section 18 of the Maharashtra Control of Organised Crime Act,
1999;
6. Section 32 of POTA, 2002.

7.35.2 We may also point out that the Law Commission in its 48th Report
had recommended that the confession recorded by a Superintendent of Police or a
higher ranking Officer should be admissible in evidence subject to the condition
that the accused is informed of his right to consult a legal practitioner.
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7.35.3 The Committee has made several recommendations in this Report

to improve the credibility of the investigating Police and to improve its
efficiency and professionalism and insulate it from external pressures. These
reforms would ensure that interrogation and criminal investigation would be
done on a scientific basis and not by use of impermissible means such as third
degree methods. Officers of the level of Superintendents of Police or higher
level officers are entrusted under the laws referred to above to record
confessions fairly and without subjecting the accused to duress or inducement.
If the confession is audio/video recorded, it would lend further assurance that
the accused was not subjected to any form of compulsion. It is not our case that
the conviction should be based only on a confession. The confession should be
considered by the courts along with other evidence.

7.35.4 Hence, we recommend that section 25 of the Evidence Act may be

suitably substituted by a provision rendering admissible, the confessions made
before a Police Officer of the rank of Superintendent of Police and above.
Provision should also be made to enable audio/video recording.

7.36 IDENTIFICATION OF PRISONERS ACT, 1920

7.36.1 Section 4 and 5 or the Identification of Prisoners Act, 1920,

empower a Magistrate to permit taking of finger prints, foot prints and
photographs of a convict or of an accused arrested for an offence punishable
with imprisonment of one year or more. There is no law binding the accused to
give his specimen writings or blood samples for DNA finger printing. Similarly,
under the existing law, an accused cannot be compelled to give the samples of
his hair, saliva or semen etc. Sections 45 and 73 of the Evidence Act, are not
comprehensive enough to admit of such samples being taken on Court orders.
Due to be above lacunae, it is difficult to build up a strong case, based on
forensic evidence, against the accused. In fact, section 27 of POTA, 2002
makes a specific provision in this regard. It is, therefore, essential that a
specific provision is incorporated in the Cr.P.C. and the Evidence Act
empowering a Magistrate to order an accused to give samples of hand writing,
fingerprints, footprints, photographs, blood, saliva, semen, hair, voice etc, for
purposes of scientific examination.

7.37 PHYSICAL SURVEILLANCE AND INTERCEPTION OF WIRE, ELECTRONIC

OR ORAL COMMUNICATION

7.35.6 Close watch over the movements of suspects/criminals by the police is an

effective means of prevention and detection of crime. The police have been
mounting surveillance over suspects/criminals for the above purpose.. The Apex
Court decision in Govind vs State of MP (AIR 1975 SC 1378) has observed that
considering the object for
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which surveillance is made, it cannot be said that surveillance by the police is an

unreasonable restriction on the right to privacy. It is now an established fact
that electronic devices are being used by the criminals to run their criminal
enterprises. Section 14 of the Maharashtra Control of Organised Crime Act,
1999, and sections 36 to 48 of the POTA, 2002 provide for such surveillance.

7.35.7 The provision in Maharashtra Act has been recently struck down on the
ground that the powers are vested only in the Centre. The Committee feels that
adequate statutory provisions be made providing for electronic surveillance and
interception in criminal cases.

7.38 SPREAD OF AWARENESS

7.38.1 Citizens who may have to participate in the Criminal Justice

System as complainants/informants, victims, accused or witnesses are often not
aware of their rights and obligations. They also do not know whom and how to
approach and what to expect from them. Awareness of these matters will help
the citizens to assert their rights and to protect themselves from unreasonable,
arbitrary and corrupt officials. Therefore, the Committee recommends that
rights and responsibilities of the complainants/informants, victims, accused and
witnesses and the duties of the concerned officials be incorporated and annexed
as Schedules to the Code. The Committee further recommends that leaflets
incorporating the same in the regional languages of the respective States should
be printed and made available free of cost to the citizens.
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P UBLIC P ROSECUTION _

8.1 The investigation of a criminal case, however good and painstaking

it may be, will be rendered fruitless, if the prosecution machinery is indifferent
or inefficient. One of the well-known causes for the failure of a large number
of prosecutions is the poor performance of the prosecution. In practice, the
accused on whom the burden is little---he is not to prove his innocence---
engages a very competent lawyer, while, the prosecution, on whom the burden
is heavy to prove the case beyond reasonable doubt, is very often represented by
persons of poor competence, and the natural outcome is that the defence
succeeds in creating the reasonable doubt on the mind of the court.

8.2 Another important factor for the success of the prosecution is

proper coordination between the prosecutor and the Investigating Officer
without in any manner undermining the independence of the Prosecutor by
making subordinate to the police hierarchy. It is to be pointed out that prior to
the Code was amended in 1973, the prosecutors appearing in the courts of
Magistrates were functioning under the control of the Police Department.
Eminent advocates of proven merit were being appointed by the Government
for a reasonable term, to function as Public Prosecutors in Sessions Courts. The
Prosecutors in those days were giving advice on legal matters wherever
necessary. The papers before
filing in Courts would be scrutinized Another important factor for the
by the Prosecutor, and advice given success of the prosecution is proper
wherever any deficiencies came to coordination between the prosecutor
be noticed. Only after the and the Investigating Officer without
rectification of the same, would the in any manner undermining the
papers filed in Court. The independence of the Prosecutor by
Prosecutor would keep a close making subordinate to the police
watch on the proceedings in the hierarchy.
case, inform the jurisdictional
police, and get the witnesses on dates of trial, refresh the memory of witnesses
where necessary with reference to their police statements, and examine the
witnesses, as far as possible at a stretch. In view of the close monitoring of the
progress of trial witnesses turned hostile in very few cases
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and when they turned hostile they would be effectively cross-examined and
exposed. This arrangement delivered reasonably good results.

8.3 The Law Commission of India in its 14th Report has observed that
it was not possible for the public prosecutors if they are members of the police
organization to exhibit that degree of ‘detachment’ which was necessary in
prosecution and suggested that a separate prosecution department may be
constituted and placed under a Director of Public Prosecutions. It appears that
based on the recommendations of the Law Commission, sections 24 and 25
were incorporated in the Cr.P.C. As a consequence, the Prosecution wing was
separated from the Police Department. Pursuant to these provisions, a Director
of Prosecution, who is functioning independently of the Prosecution, is heading
the Department of Prosecution, under whom, the encadred Assistant Public
Prosecutors, and Public Prosecutors, (latter being promotees from the former
cadre) have been functioning.

8.4 In this context, it is also apt to refer to the judgment of the Supreme
Court in S.B. Shahane and Ors Vs State of Maharashtra (AIR 1995 Supreme
Court 1628) wherein it directed the Govt. of Maharashtra to constitute a
separate Prosecution department having a cadre of Assistant Public Prosecutors
and making this department directly responsible to the State Govt. for
administrative and functional purposes, thereby totally severing the relationship
between the police department and the prosecution wing. The law laid down by
the apex court is applicable to other States also. The Law Commission of India
in its 154 Report has pointed out that the control of police department on
prosecutions is not permissible in view of the Supreme Court’ decision in S.B.
Shahane’s case.

8.5 It may be apt to refer to the British experience in this regard.

Pursuant to the enactment of Prosecution of Offences Act, 1985, the Crown
Prosecution Service (CPS) headed by the Director of Public Prosecutions was
constituted in England. Before that, except in certain cases reserved to the
Attorney General or the Director of Public Prosecutions, the conduct of the
prosecution in cases instituted by the police was the responsibility of the police
who either presented the prosecution case in the Magistrates’Courts themselves
or instructed lawyers to do so. After the new law came into force, the
prosecution is being conducted by the members of the CPS. In the Crown
Courts, the Prosecution was and still remains in the hands of members the
independent Bar. The prosecutors are now being briefed by the members of the
CPS. The concept of ‘Criminal Justice Unit’ has been introduced in England to
bring about greater coordination between the Police Department and the CPS.
The members of the CPS have been given offices in the police stations falling in
their jurisdiction and they are required to function from there.
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8.6 Separate Directorates of Prosecution have been functioning for

quite some time in several States. However, it is a common complaint of the
Police, particularly, those in charge of investigation, that there is no proper co-
ordination between the Police and the Prosecution. The Prosecutors, being no
longer under the control of the Police Department, are not taking sufficient
interest in their work. The ground position regarding the prosecution
arrangement varies from State to State. Presently, most of the States have a
separate Directorate of Prosecution. Some States like Bihar, Maharashtra,
Kerala, MP, Tamil Nadu, AP, Orissa, Rajasthan and NCT of Delhi have placed
this Directorate under the Home Department. In some other States like Haryana,
Himachal Pradesh, Karnataka and Goa, the Directorate is under the
administrative control of the Law Department. In some of the States, the
Director of Prosecution is an officer belonging to the higher judicial service in
the State. In Tamil Nadu and UP, the post of Director of Prosecution is held by
IPS officers of the rank of DGP/IG. In Gujarat, there is no separate
Directorate of Prosecutions.

8.7 A number of police officers represented to this Committee that the

present system has led to a state of total lack of coordination resulting in the
following consequences.
i. The conviction rate is falling;
ii. The disposal rate by the courts is falling;
iii. Legal advice at investigation stage is totally missing thereby
adversely affecting the quality of investigations;
iv. There is no structured mechanism for Investigating Officers’ to
interact with the Prosecutors in bail related matters and overall
trial management; and
v. There is lack of review mechanism of the performance of the
prosecution wing at the district level.

8.8 The issue was deliberated upon by the Committee on Police

Reforms, headed Shri K. Padmnabhaiah, the former Union Home Secretary,
which, inter alia, made the following two significant recommendations:

(i) In those States were there is no separate Directorate of

Prosecution, steps should the taken to constitute such
Directorate under the Stat Home Department and in posting a
suitable IPS officer as Director General.
(ii) Home Departments of States must play a more active role in
bringing about effective and continuous cooperation between
the police and prosecution wings. We commend the orders
issued by the Tamil Nadu Govt. constituting the Directorate of
Prosecution for adoption by other States as a model.
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8.9 The Administrative Reforms Commission, Rajasthan, headed by Shri

Shiv Charan Mathur, former Chief Minister of Rajasthan, in its Eighth Report on
the Police submitted in March, 2001, elaborately dealt with the issue and, inter
alia, made the following observations:

i. The post of Director of Prosecution may be occupied by an IPS

officer of IG rank. This will further strengthen
coordination between police and the prosecution.
ii. The control, guidance and supervision of Director should extend
to the prosecutors functioning at the Sessions Courts and
Executive Magistrates Courts, Additional Public Prosecutors
and Assistant Public Prosecutors Grade I and Grade II.
iii. It would be still better if the control of prosecution at the district
level is vested in the Superintendent of Police on the U.P.
pattern.
iv. If there is a legal hurdle in assigning this role to the SP, may be
a new nomenclature could be coined for the SP; say SP cum
Addl. Director (Prosecution), so as to facilitate transfer of the
suggested role to him in his additional new capacity”.
v. This would give the Superintendents of Police, a direct and
regular institutionalized mechanism to supervise and monitor
conviction in cases prepared by the police. Also the regular inter
action would give the police officer a much better insight into
the intricacies of laws and rules.

8.10 Several Police officers have suggested that on the above lines, a
Senior Police Officer of the rank of DGP/IGP should head the Department as
Director of Prosecution, who would be able to bring about proper co-ordination
between the two wings, without in any manner, affecting the independence of the
Prosecutors, which is essential for ensuring fairness in prosecution. The State
Governments of UP and Orissa, have inserted the following proviso in sub-section
(2) of section 25 Cr P C.
Provided that nothing in this sub-section shall be construed to prohibit
the State Govt. from excising its control over assistant public
prosecutor through police officers (UP Act No.16 of 1976).

8.11 It is pointed out that the above modifications have yielded good
results, and have brought about better co-ordination between the two wings. There
is no suggestion that these modifications have in any way eroded the independence
of the Prosecution. However, the Committee feels that in order to ensure the
independence of the Prosecution, the Director must function under the guidance of
the Advocate General.

8.12 The Committee therefore suggests that a Police Officer of the rank of
Director General may be appointed by the Govt. as the Director of Prosecution in
consultation with the Advocate General. This should become a cadre post.
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8.13 The duties of the Director inter alia, shall be to facilitate effective
coordination among the investigating and prosecuting officers, to review the
working of the Public Prosecutors, Additional Public Prosecutors and Assistant
Public Prosecutors and the work of the investigators.

8.14 PUBLIC P ROSECUTORS AND ASSISTANT PUBLIC P ROSECUTORS

8.14.1 Though this arrangement may contribute to better co-ordination, it

is not enough to improve the competence of the Prosecutors which needs special
attention. In this connection, it may be pointed out that earlier, the Public
Prosecutors appearing in serious cases before the Sessions Courts were being
appointed from among very senior and competent Advocates on the
recommendation of the District Judge and the District Magistrate, for a fixed
term, say, 3 or 4 years.

8.14.2 According to Section 24(6) of the Code, if a regular cadre of

‘Prosecuting Officer’ exists in the State, the appointment of Public Prosecutors
or Assistant Public Prosecutors (at District Level) can be made only among
persons constituting that cadre. However, where, in the opinion of the State
Govt. no suitable person is available in such a cadre, Govt. may appoint a
person as a Public Prosecutors or Assistant Public Prosecutors from the panel of
names prepared by the District Magistrate (in consultation with the District
Judge) of persons who in his opinion are fit to be appointed as Public
Prosecutors.

8.14.3 It is brought to the notice of the Committee that in several States

there is no cadre of Prosecuting Officers. Secondly Section 25 dealing with the
appointment of Assistant Public Prosecutors does not lay down any specific
guidelines. There is no specific reference to promotional opportunities
becoming available to APPs.

8.14.4 So far as Assistant Public Prosecutors who appear before the

Courts of Magistrates are concerned, they should be given intensive training,
both theoretical and practical to improve their professional skills as prosecutors.
Those already in service should be given periodical in-service training to update
their knowledge.

8.14.5 As already some States have their own Directorates of Prosecution,

which are not headed by Police Officers, the present recommendations relating
to the choice devolving on a Police Officer of the rank of DGP should be taken
up when the term of office of the existing incumbents is coming to an end.

8.14.6 When any cadre is constituted opportunities for promotion to some higher positions
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should be provided to give proper incentive. The experience of prosecutors

would be useful in other positions as well, such as in providing Training for
Prosecutors as well as Police Officers. Creation of such ex-cadre posts for
promotion in those departments will help to sustain the interest in work.

8.14.7 To ensure accountability, the Director may call for reports in any
case where the case ends in acquittal, from the Prosecutor who conducted the
case and the Superintendent of Police of the District to review the work of the
prosecutor and the investigation.

8.14.8 The Committee feels that the new set up would be able to
overcome the existing deficiencies in the working of the Prosecution wing, and
the Investigation Wing would be able to get legal advice from experienced
prosecutors, whenever such advice is necessary. The object is that technical
and procedural lapses should not lead to delays and other adverse consequences.
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PART - III

JUDICIARY
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COURTS AND JUDGES _

9.1 Huge pendency of cases and poor rate of convictions are the twin
problems of the judiciary. The major area that needs attention for improving the
situation is providing adequate number of Judges who are proficient in dealing
with criminal cases.

9.2 APPOINTMENT TO SUBORDINATE COURTS

The statistics reflect gross inadequacy of the Judge strength at all

levels. The Supreme Court has recently examined this issue and given
directions to increase the Judge strength from the existing Judge population
ratio of 10.5 or 13 Judges per million of people to 50 Judges per million people
in a phased manner within five years in its decision in (2002)4.S.C.247, All
India Judges Association and others Vs. Union of India. Right to speedy trial,
as held by the Supreme Court flows from Article 21 of the Constitution.
Therefore it is expected that the directions of the Supreme Court would be
implemented within a reasonable time. Once that happens, problem of
inadequacy of Judge strength will be solved. Hence it is not necessary for the
Committee to examine the question of inadequacy of Judge strength. However,
the Committee would like to observe that within the standard set for
determining the number of Judges required, it may be necessary for each State
to make an estimate of the number of Judges required to be appointed having
regard to pendency and the inflow of fresh cases and nature of litigation etc.

9.3 APPOINTMENT TO H IGH COURTS

It is unfortunate that large number of vacancies in the High Court

remain unfilled for a long time inspite of the formula given by the “Arrears
Committee” for determining the Judge strength and for expediting the
appointment process. Now that the appointment process is mainly under the
control of the judiciary the blame for this delay is largely on the judiciary. The
Chief Justice of India and the Chief Justices of the High Courts must take
immediate steps to curb this unconscionable delay in appointments.
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9.4 QUALITY OF APPOINTMENT

Quality of appointment has suffered enormously. Complaints are

heard everywhere that judicial arbitrariness has replaced executive arbitrariness.
Quality of Judges appointed, it is the general impression was much better before
the judgment of the Supreme Court in AIR 1994 S.C P.268, Supreme Court
Advocates on Record Association Vs. Union of India. Now a national debate is
going-on on constituting a National Judicial Commission for this purpose. The
Committee is more concerned in ensuring quality in appointment rather than
who makes the appointment. This can be achieved by laying down the
objective criteria for selection and the material needed to satisfy those criteria.
Honesty, integrity, good moral character are regarded as basic requirements to
discharge judicial functions. Similarly for assessing professional competence
several criteria may be identified, such as knowledge of substantive laws,
procedural laws, specialization in any branch of law, sound knowledge of
fundamental principles of law and jurisprudence. The candidate must have a
keen and analytical mind. He should have patience and must not easily lose
temper. He should not be vindictive. He should be patient and at the same time
must know when to stop waste of time. He should be above narrow
considerations, religious, regional, linguistic, political etc, so also experience in
conducting different types of cases. Fairness to the opponent, ability to concede
untenable propositions, good and pleasant manners, good command over the
language and power of expression have to be ascertained with reference to
credible evidence or material. A dossier has to be prepared in respect of each
candidate to help making an objective assessment. This will reduce
arbitrariness and helps making the process more transparent. The Committee
therefore recommends that a set of guidelines should be evolved prescribing the
relevant qualifications, qualities, attributes, character and integrity that are
necessary to be a good Judge and indicate the evidence or material from which
these can be inferred. This would eschew considerably irrelevant
considerations and favoritism playing a key role in appointment. The procedure
of selection must be so devised as to ensure the most competent persons of
highest level of integrity and character are appointed. It is only when we have
competent and upright Judges that the citizens is assured of quality justice. The
problem needs immediate attention at the highest level. It is the judiciary that
must take the initiative and come out with credible solutions.

9.5 NEED FOR IMPROVING THE QUALITY OF JUSTICE

9.5.1 Though induction of more Judges may help in reducing the arrears
it is the competence and proficiency of the Judges that contributes to better
quality of justice. Unfortunately adequate attention is not paid to look for
competent persons proficient to handle criminal cases.
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9.5.2 Anybody who sits and watches the proceedings in the Courts will
not fail to note that the level of competence of the Judges of the Subordinate
courts at different levels is not adequate possibly because the training did not
give emphasis on professional skills and case/court management. If the Judge is
not competent he will take longer time to understand the facts and the law and
to decide the case. This is one of the reasons which has contributed to enormous
delay and huge pendency of cases. Any lawyer with experience will be able to
tell you which Judge is competent and which Judge is not, which Judge is quick
and which Judge is slow, which Judge’s decisions are by and large sound and
which Judges decisions are not satisfactory. Even now there are many good
Judges in the subordinate Courts but that number is declining. The quality of
justice suffers when the Judge is not competent. People come to the Court
complaining about the denial of rights by other individuals, institutions or the
State itself. They expect the Judge to be experienced, knowing, competent,
upright and possessing all the attributes required to render justice to the parties.
It is a very onerous responsibility to sit in judgment over the conduct and affairs
of other citizens. Deciding cases is a very complex exercise. It needs good
knowledge of the substantive and procedural laws. It requires experience of men
and matters, abundant commonsense, intelligence, logical and analytical mind.
The Judge has to possess ability to do hard work and concentrate on the issues
involved. Above all he must be a man of character having abiding faith in the
values of life.

9.5.3 Two areas which need special attention for improving the quality
of justice are prescribing required qualifications for the judges and the quality of
training being imparted in the judicial academics.
1) Special attention should be paid in the matter of prescribing
qualifications for
Two areas which need special
recruitment of Judges at
attention for improving the quality
all levels and to improve
of justice are prescribing required
the methodology for
qualifications for the judges and
selecting the most
the quality of training being
competent persons with
imparted in the judicial academics.
proven integrity,
character, having regard
to the nature of functions which a Judge is required to discharge.
No other consideration other than merit and character should be
taken into consideration in choosing the Judge for the Courts.
2) Those selected are promoted to different levels of subordinate
judiciary should be given intensive training for reasonable period
to improve their skills in hearing cases, taking decisions, writing
judgments and in court management. There is a great need to
improve the quality of training that is being imparted in different
judicial academies.
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9.6 NEED FOR SPECIALISATION

9.6.1 Cases under various laws such as civil, criminal, constitutional law,
tax law, labour law, company law and service law come up for adjudication
before the High Courts and Supreme Court. So far as courts subordinate to the
High Courts are concerned they mainly deal with civil and criminal cases.
Courts of JMFC and courts of Sessions deal only with criminal cases. The
normal practice followed is to assign to the same Judge civil and criminal cases.
In the High Courts and the Supreme Court the same Judges deal with cases
under different laws by rotation. A Judge who deals with criminal cases for one
term may deal with Tax cases during the next term. The question for
consideration is whether this practice should continue or whether a Judge should
be assigned that type of work in which he has acquired expertise.

9.6.2 Over the years all the branches of law have grown enormously. The
laws have multiplied, judicial precedents have grown, and lot of literature and
information is available for study in each of these branches. It is not easy for
every Judge to be able to master all the branches. That is why in the legal
profession many leading lawyers specialize in one field of law or the other.
There are lawyers who specialize in labour laws, administrative laws, tax laws,
civil laws, criminal laws, company laws, or constitutional laws etc. Similarly in
the medical profession, the Doctors are required to specialise in different
branches such as Cardiology, Neurology, Nephrology, Ophthalmology,
Oncology, Urology etc. Scientific advances have thrown new challenges in the
field of law such as Environmental laws, Telecommunication laws, Cyber laws,
Space laws etc. There is therefore growing need for the lawyers, Judges to
specialise in these emerging fields of law. A citizen, who wants to avail the best
service, chooses a specialist in the particular branch. It is only when one
specializes that he can give the best possible service in that field. A generalist
may know all the branches but would not have deep knowledge or expertise in
any particular branch of law. Realizing the importance of specialization,
specialized tribunals have been established for dealing with tax matters, service
matters, labour matters etc. This is a growing trend. The future is of
specialisation. Some of the special features of criminal
law are presumption of innocence of the
9.6.3 Criminal law has accused, burden of proof on the
special features and is prosecution and higher standard of proof
different from the civil law in than in civil cases namely “proof beyond
many respects. Some of the reasonable doubt”. There are also special
special features of criminal rules of evidence governing criminal cases.
law are presumption of
innocence of the accused,
burden of proof on the prosecution and higher standard of proof than in civil
cases namely “proof beyond reasonable doubt”. There are also special rules of
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evidence governing criminal cases. A Judge who deals with criminal cases
consistently for a long time would acquire specialization in that branch. A
Judge who has specialized in a particular branch of law will take less time to
decide the case than a Judge who has not acquired such expertise.
Specialization contributes to better quality of decisions, consistency and
certainty. Speedy and quality justice being the need of the hour it is desirable
to assign criminal cases to Judges who are specialized in that branch.

9.6.4 Judges who never did any criminal work before their elevation to
the Supreme Court are often assigned criminal work. This does not contribute to
efficient management of the work. Therefore, a separate criminal division
should be constituted consisting of one or more criminal division benches as
may be required depending upon the work load, to deal exclusively with
criminal cases. Judges who have acquired good experience in criminal law and
known for quick disposal should be assigned to sit on the criminal division.
Once assigned to the criminal division they should sit in that division only. If
among them there are any Judges, who in addition to expertise in criminal law,
are proficient in any other branch of law may if necessary be assigned work in
that branch of law. A vacancy in the criminal division should be filled up by
appointing a High Court Judge or a lawyer who has specialized in criminal law.

9.6.5 On the same lines a criminal division should be constituted in the

High Court. Judges who have specialized in criminal law should be assigned to
sit on the criminal side till they demit office. Among them if there are any who
have expertise in any other field may if necessary be assigned to do that work.
Vacancies occurring in the criminal division should be filled up by appointing
Session Judges or lawyers who are proficient in criminal law.

9.6.6 District and Session Judges on their elevation to the High Court
often say that they have a right to sit on benches dealing with other branches of
law as their appointment is to the High Court and not to any particular division
like the criminal division. The practice now followed is to assign work in any
branch of law irrespective of whether the Judge has expertise or experience in
that branch of law or not. As District and Session Judges they would have
normally acquired experience in civil and criminal law and not in other
branches. They would not be very familiar with laws such as Constitutional,
Tax and Company matters etc. If the Judges are assigned work in a branch of
law in which they have enough experience they will be able to decide those case
more efficiently and speedily. Besides the possibility of errors would be very
low.

9.6.7 It must be remembered that the Supreme Court and the High Court have the
power to lay down the law and their decisions are binding on all the subordinate courts.
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Therefore, a higher level of

proficiency and expertise is . When a Judge is elevated to the superior
called for. When a Judge is courts it is not to give him an opportunity
elevated to the superior courts to learn and acquire expertise in new
it is not to give him an branches of law but to make use of the
opportunity to learn and acquire experience and expertise he has already
expertise in new branches of acquired before his elevation.
law but to make use of the
experience and expertise he has already acquired before his elevation. They are
expected to come to the higher courts as experts and not as apprentices. Public
time and money should be put to optimum use for providing speedy and quality
justice. The Chief Justice who has the right to constitute benches and assign
work among the Judges should constitute benches to deal with criminal cases
consisting of Judges who have specialized in criminal law. A healthy
convention should also be developed of making appointment of Judges
specialized in criminal law that are required to sit on benches to deal with
criminal matters.

9.6.8 So far as the subordinate courts are concerned in places where

there is more than one Judge, as far as possible and subject to availability of
work some Judges should be assigned only criminal work for a reasonable
period. The practice of allocating to the same Judge both criminal and civil
cases at the same time should be avoided. After a Judge sits continuously for a
period of about one year on the criminal side he may be assigned to work on the
civil side.

9.6.9 The above suggestions are not quite new or radical. Such practice
is prevalent in other countries. In France even in the Supreme Court some
Judges are assigned work only on the criminal side until their retirement.

9.7 VIEWS OF THE HIGH COURTS

The High Courts of Allahabad, Bombay, Chattisgarh, Delhi,
Kolkata, Madhya Pradesh, Madras, Punjab & Haryana, Gujarat, Himachal
Pradesh and Jarkhand are in favour of the criminal courts being presided over
by Judges who have specialized in criminal work and their working exclusively
on the criminal side. It is their view that disposal of cases by specialized Judges
can be better and faster. It is only the High Courts of Andhra Pradesh, Kerala,
Orissa and Uttaranchal that are not in favour specialization. Karnataka High
Court has not expressed any view in the matter. It is seen that majority of the
High Courts are in favour of specialization.

9.8 VIEWS OF THE STATE GOVERNMENTS

9.8.1 The State Governments of Arunachal Pradesh, Haryana, Jammu & Kashmir, Karnataka
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and Madhya Pradesh are in favour of criminal courts being presided over by
Judges who have specialized in criminal law. The State of Himachal Pradesh
however says that Judges specialized in criminal law may be assigned criminal
work only in bigger cities where the workload justifies. The State Government
of Kerala is not in favour of Judges specialized in criminal law being posted to
do criminal work. Other States have not responded. It is seen that majority of
the State Governments are in favour of specialization.

9.9 ACCOUNTABILITY

9.9.1 Judicial credibility is enhanced when it is transparent and

accountable. Sturdy independence is the basic virtue of the Judiciary. The
Judiciary is independent in the sense that it is not answerable to any one. This
does not give it license to function arbitrarily. It has to function in accordance
with the Constitution and the relevant laws. The Judiciary is as much subject to
rule of law as any one else. It has to discharge the judicial functions assigned to
it in accordance with the mandate of the Constitution. In that sense it is
accountable to fulfill the constitutional mandate.

9.9.2 The High Court is given power of control over subordinate courts
by Article 235 of the Constitution. By and large this power if properly
exercised is sufficient to ensure accountability of the subordinate courts. What
is needed is greater vigilance and effective exercise of this power.

9.9.3 So far as High Courts are concerned no similar power of control

has been conferred on any one and not even the Supreme Court. The High
Courts in that sense are independent though their judgments can be reviewed by
the Supreme Court. Under our Constitution, a Judge of a High Court or of the
Supreme Court of India can be removed from his office by the President only
for ‘proved misbehaviour’ or ‘incapacity’ and only in the manner provided for
in Article 124(4); that is by an affirmative vote of at least half the total
membership of each House of Parliament and a majority vote of two thirds of
the members of each House present and voting on the motion for the removal of
the Judge.

9.9.4 It is well known that impeachment motion against Justice Ramaswami

failed even though the Committee on enquiry had held that serious charges of
misconduct were proved warranting his removal. This indicates that impeachment
provisions cannot be easily pressed into service to discipline the earring Judge. The
recent incidents alleging serious aberrations in the conduct of Judges of some of
the High Courts have shaken the confidence of the people in the judiciary.
Common people feel very bad that if the Judges are guilty of serious misconduct
nothing can be done about it. The problem is serious and needs urgent attention
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at the highest level. It is imperative that the judiciary itself takes the initiative to
set its house in order and come forward with credible solutions without
undermining the independence of the judiciary. Constitution of a National
Judicial Commission and amending Article 124 to make impeachment less
difficult are some of the alternatives which are being discussed at the national
level.

9.9.5 The Committee however feels that the aberrations in the conduct of
Judges can be checked or even corrected if the problem is noticed at the earliest
and efforts made to correct them. In the High Court the Chief Justice is
regarded as only first among the equals. Except constituting benches and
assigning work he does not exercise any authority over his colleagues. This has
considerably eroded discipline which is so necessary for any institution. Some
Judges do not attend the court punctually; reserved judgments are not rendered
for long time, sometimes for years; many cases are kept as part-heard for long
period; complaints are received of some lawyers receiving favourable orders,
there are complaints that some Judges act vindictively against some lawyers;
there are complaints that lawyers are snubbed or insulted; sometimes complaints
are also received about corruption and immoral conduct of Judges etc. The
Chief Justices’ have no power to look into these problems and feel helpless. If
the Chief Justice has the power to look into these complaints and takes
immediate corrective action the problem can well be nipped in the bud. There is
therefore urgent need to confer power on the Chief Justice to look into such
grievances and take suitable corrective measures short of impeachment or
pending impeachment process such as:-
i) Advising the Judge suitably.
ii) Disabling the Judge from hearing particular class of cases or
cases in which a particular lawyer appears.
iii) Withdraw the judicial work from the Judge for a specified period.
iv) Censure the Judge.
v) Advise the Judge to seek transfer
vi) Advise the Judge to seek voluntary retirement.

9.9.6 There are other measures that can be taken to ensure accountability
so far as proper discharge of judicial functions is concerned.

9.10 DELAY IN P RONOUNCING/SIGNING JUDGMENT/ORDER

9.10.1 Some Judges do not deliver Judgements for years. If there is delay
the Judge may forget important aspects thereby contributing to failure of justice.
There is also a complaint that the Judgements are not promptly signed after they
are typed and read causing great hardship to the parties.
To correct these aberrations the High Court should issue a circular to
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enter immediately below the cause title of the judgment / order, the following:
(i) The date when the arguments concluded;
(ii) The date when the judgment was reserved;
(iii) The date when the judgment was pronounced;
(iv) At the bottom of the judgment / order, the stenographer should
enter the date on which he received the dictation, the date when
he completed the typing and placed before the Judge and the date
when the Judge signed it.
This will bring about transparency and contribute to accountability.

9.11 PUNCTUALITY

9.11.1 As regards punctuality, apart from the Chief Justice advising the
concerned Judge about his duty to be punctual and the adverse affect on the
image of the court and the rights of parties, the Chief Justice may issue a
circular requiring the court officer attached to every court to make a record of
the time when the Judge assembles and the time when he rises and send a copy
of the same at the end of each day to the Chief Justice and put it on the notice
board for information of the public.

9.11.2 There were similar problems in USA where also the Judge can be
removed only through impeachment process which is not easy to enforce.
Therefore Judicial Councils Reform and Judicial Conduct and Disability Act
1980 was enacted. Under the Act there is a judicial council for each circuit and
a National Judicial Conference at the Apex. They have been given power to
censure a Judge, request him to seek retirement or direct that no cases be
assigned to the Judge for a limited period. The Committee is in favour of
conferring similar power on the Chief Justice of the High Court. If these
corrective measures prove ineffective, the Chief Justice should have the power
to move the Chief Justice of India who should have the power to suitably advise
the erring Judge or transfer him or move for impeachment. This will go a long
way in bringing better discipline in the High Court.

9.11.3 These measures would bring about transparency and act as a

deterrent against such improper conduct of Judges.

9.12 COURT MANAGEMENT AND P RETRIAL HEARINGS

9.12.1 Public expects and deserves speedy trial and quick justice. Delay
is a denial of justice. The courts must realize that it is their responsibility to
take the initiative to eliminate delay. Delay is not inevitable and can be
curtailed by adopting imaginative court management techniques. Unfortunately
little attention has been paid to this.
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9.13 COURT MANAGEMENT

9.13.1 There are two problems about which every one complains. The
first is posting large number of cases which everyone knows cannot be dealt
with on that day for sheer want of time. This leads to the Court wasting
considerable time in calling the cases. The second problem relates to frequent
adjournments.

9.14 ADJOURNMENTS

9.14.1 A notorious problem in the functioning of the courts, particularly in

the trial courts is the granting of frequent adjournments, mostly on flimsy
grounds. This malady has considerably eroded the confidence of the people in
the judiciary. Adjournments contribute to delays in the disposal of cases. They
also contribute to hardship, inconvenience and expense to the parties and the
witnesses. The witness has no stake in the case and comes to assist the court to
dispense justice. He sacrifices his time and convenience for this. If the case is
adjourned he is required to go to the court repeatedly. He is bound to feel
unhappy and frustrated. This also gives an opportunity to the opposite party to
threaten or induce him not to speak the truth. The right to speedy trial is
thwarted by repeated adjournments. Adjournment is a curse of the courts.

9.14.2 Section 309 of the Code which regulates adjournments provides

that adjournment should be granted only when the court finds it necessary or
advisable for reasons to be recorded. It also gives discretion to the court to
grant adjournment subject to payment of costs. However these conditions are
not strictly followed and the bad practice continues.

9.14.3 The Judges act with unfettered discretion. Some Judges believe
that it is unreasonable and harsh to refuse an adjournment when the lawyers put
forward some ground or the other for adjournment. Judges must realize that the
arbitrary exercise of discretion causes delay and harms innocent persons like the
witnesses. To regulate the discretion the High Court must lay down the
exceptional circumstances when adjournment may be granted. Section 309
should be amended to make it obligatory toward costs against the party who
obtains adjournment. The quantum of costs should include the expenses
incurred by the opposite party as well as the Court, the expenses of the
witnesses that have come for giving evidence. Costs may be awarded to the
opposite party or to the State which may be credited to victim compensation
fund if one exists. The number of cases should depend upon the time the cases
are likely to take. Indiscriminate posting of a large number of cases should be
avoided.
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9.14.4 At the instance of the Supreme Court the Law Commission has
produced a comprehensive consultation paper on case management, which
appears to have been circulated to the High Courts for their response. This
indeed is a welcome initiative and the Committee recommends its immediate
implementation in its entirety. If this is done, the focus on key issues rather
than every minor issue will save the court’s time and costs. But at the same
time, to ensure that judicial time is not frittered away, resources should be made
available for the provision of IT/Management specialists – including the
equipment they require - to assist the court. If this is combined with the
restructuring of the court offices, creation of property management agencies and
redeploying of staff, the court can concentrate on and resolve even complex and
grave cases quickly.

9.14.5 The advantages of this initiative would be:-

i. Reduction in trial time and quick disposal of cases

ii. Optimal use of court time
iii. Establishment of trial standards
iv. Monitoring of case load which will help in future planning
v. Enhanced accessibility to courts
vi. Ensuring Public Accountability

9.14.6 With the introduction of case management and use of scheduling

techniques, unnecessary posting of too many cases and frequent adjournments
can be avoided.

9.15 PRE-TRIAL HEARING

9.15.1 In our Country the concept of pretrial hearing has not taken deep
roots. Sections 291 to 298 of Cr.P.C. provide for sorting out certain matters at
the pre-trial hearing. S. 294 envisages that the particulars of every document
filed by the prosecution or the accused shall be included in a list, and the other
party or its pleader “shall” be called upon to admit or deny the genuineness of
each such document. Where the genuineness of such document is not disputed,
the document may be treated as ‘proved’. This provision, unfortunately, is
rarely utilized.

9.15.2 Lord Auld in his “Review” has observed:

7… … ., where there is a need for a pre-trial hearing the court and the
parties should take full advantage of it to resolve all outstanding
issues as to the conduct of the trial and to deal with any preliminary
issues of law or fact that will assist that resolution.
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This calls for the court to adopt a more interventionist and

authoritative role than has been traditional in identifying the issues
for trial and in securing the proper preparation by both parties to
deal efficiently with them. This in turn requires adequate
preparation, not only by the parties and their advocates, but also by
the Judge with the benefit of sufficient time out of court in which to
do it.

9.15.3 Provisions for such pretrial sittings have been made in several
countries. The Committee feels that express provisions should be made for
holding pretrial sittings for dealing with, interalia the following matters: -

i. Exploring the scope for settlement without trial, such as

compounding
ii. Admission and denial of documents as provided in S.294;
iii. Calling for production of documents, if any, but not already filed.
iv. Scope for the use of affidavits (S.295 & 296)
v. Issues relating to proof and admissibility of documents
vi. Questions of law relating to maintainability and Jurisdiction.
vii. Probable duration of the trial,
viii. Issues relating to summoning and order of examination of
witnesses
ix. Outlining broadly the scope of evidence;
x. Settlement of issues
xi. Fixing the date/s for different stages, including examination of
witnesses and hearing of arguments.
xii. Such other matters that need to be attended to ensure speedy trial.

9.15.4 Once these issues are settled at the pretrial sitting the stage would
be set for trial without any hindrance or scope for adjournment. Court
Management and pre-trial can be regulated by the High Court by issuing
suitable instructions and ensuring compliance with it. This too should be
included in the training of Judges.
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TRIAL PROCEDURES _

10.1 Criminal cases are divided into two categories namely warrant
cases and summons cases. A warrant case is a case relating to an offence
punishable with death, imprisonment for life, or imprisonment for a term
exceeding two years. Other offences come under the category of summons
cases. By definition, a summons case is one where the upper limit of
imprisonment that can be awarded is two years and/or fine. Cases punishable
with death or imprisonment for life or imprisonment for 10 years and fine, are
exclusively triable by the Court of Session. Other cases are triable by
Magistrates.

10.2 In cases of conviction, the sentence that may be passed is limited

by (a) the procedure adopted for purposes of trial: and (b) the limits placed by
S.29 Cr.P.C. on different classes of Magistrates. If the case is tried by the Chief
Judicial Magistrate (or the Chief Metropolitan Magistrate), the upper limit of
sentencing would be any sentence authorized by law, “except a sentence of
imprisonment for life or of imprisonment for a term exceeding seven years”. A
Magistrate of the First Class (or a Metropolitan Magistrate) may pass a sentence
of imprisonment for a term not exceeding three years, or of fine not exceeding
Rs.5000 or of both.

10.3 All summons cases and a few enumerated warrant-cases are triable
summarily, by all classes of Magistrates including Metropolitan Magistrates,
(but not Magistrates of the First Class, unless they are duly empowered) as
provided under Section 260 Cr.P.C. But the sentencing power is restricted
under S.262 Cr.P.C to a term of imprisonment, not exceeding three months.

10.4 Section 355 which speaks of “Metropolitan Magistrate’s

Judgment” substitutes almost the same proforma of the judgment prescribed
under S.263 for summary trials, with the difference, that while under S.264, in
cases tried summarily, the Magistrate is enjoined with the duty to “record the
substance of the evidence and a judgment containing a brief statement of the
reasons for the finding,” whereas, S.355 (i) relating to regular trials by
Metropolitan Magistrates provides that in all cases in which an appeal lies from the
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final order under S.373 or 374(3), “a brief statement of the reasons for the
decision” shall also be recorded. The procedure that Metropolitan Magistrates
can follow under S.355 is akin to summary procedure.

10.5 Sub-Section (2) of S.260, provides that if in the course of the

summary trial, it appears to the Magistrate that the nature of the case is such that
it is undesirable to try it summarily, he shall recall any witnesses who may have
been examined and proceed to re-hear the case in the manner provided by the
Code.

10.6 The procedure for recording evidence varies according to the form
of trial. Section 274 Cr.P.C., prescribes that in summons cases and inquiries,
“the Magistrate shall, as the examination of each witness proceeds, make a
memorandum of the substance of the evidence in the language of the Court”.
The proviso enables the Magistrate to cause such memorandum to be made in
writing or from his dictation in open Court” where the Magistrate is unable to
make such memorandum himself and records reasons for his inability.

10.7 S.376 (d)., provides that no appeal from a convicted person shall
lie when a sentence of fine only is passed not exceeding Rs.200/- in a case tried
summarily by the Magistrate empowered under section 260.

10.8 But it is a matter of lament that in response to the Question

No.10.21 in the Questionnaire issued by the Committee, it has been brought out
that S.260 and 355 are either unutilized or under-utilized.

10.9 Only those Magistrates (Other than CJMs and MMs) who are duly
empowered, either by name, or by virtue of office, or under the statute creating
the offence can try the cases summarily. But most of the Magistrates are not
empowered. This is one among the many reasons why summary procedures is
not fully utilized. As the Judge of the same status can deal with the case
summarily when he is posted as a metropolitan Judge without any
empowerment there is no reason why such empowerment is needed for other
magistrates to deal with the cases summarily under Section 262 of the Code

10.10 Under Section 262 the maximum punishment that can be imposed
is 3 months. Under the negotiable instruments Act, Prevention of food
adulteration Act, the offences can be tried summarily under S.262 for which
imprisonment of one year can be imposed as a sentence. The Judge of the same
status sitting as Metropolitan Magistrate following the procedures similar to
summary procedure prescribed by S.355 can impose a sentence up to three years
imprisonment. There is therefore clear justification to enhance the limit
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prescribed by S.262 to three years, which is the same as the present limit of
three years for the Metropolitan Magistrate.

10.11 The Law Commission has in its 154th report also recommended
enhancement of the limit of Sentence prescribed in Section 262 of the Code to
three years. It has also recommended some incidental amendments to Sections
2(x) and 2(w). The Committee is in favour of these recommendations. The
Committee feels that Section 2(x) defining ‘warrant case’ be amended by
substituting the word ‘three’ for the word ‘two’. Consequently all cases which
are not warrant cases, relating to offences punishable with imprisonment lower
than three years shall become Summons cases which shall be tried by following
the summary procedure prescribed in Chapter XXI of the Code.

10.12 The ceiling of Rs.200/- fixed for the value of property under S.
262(1)(c)( i,ii,iii and iv) is also too low to and should be enhanced to Rs.5000/-
having regard to declining value of the rupee. No prejudice would be caused to
the accused by such enhancement.

10.13 Large number of cases which do not involve serious offences can
be disposed of expeditiously. As the Magistrate has power under S. 260(2) to
try the case regularly if he feels that it is desirable to do so in the interest of
justice no prejudice would be caused.

10.14 However, the

Committee is of the opinion that However, the Committee is of the
proper training should be given to opinion that proper training should be
all the Magistrates about trying the given to all the Magistrates about trying
cases following the summary the cases following the summary
procedure. The training should procedure. The training should include
include mock trails and writing of mock trails and writing of judgments in
judgments in summary trials by summary trials by the trainees.
the trainees.

10.15 PETTY OFFENCES

10.15.1 Section 206 of the Code which deals with “Petty Offence” reads as
follows:
(1) If, in the opinion of a Magistrate taking cognizance of a petty
offence, the case may be summarily disposed of under Section
260, the Magistrate shall, except where he is, for reasons to be
recorded in writing, of a contrary opinion, issue summons to
the accused requiring him either to appear in person or by
pleader before the Magistrate on a specified date, or if he
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desires to plead guilty to the charge without appearing before

the Magistrate, to transmit before the specified date, by post
or by messenger to the Magistrate, the said plea in writing and
the amount of fine specified in the summons or if he desires to
appear by pleader and to plead guilty to the charge through
such pleader, to authorize, in writing, the pleader to plead
guilty to the charge on his behalf and to pay the fine through
such pleader:
PROVIDED that the amount of the fine specified in such
summons shall not exceed one hundred rupees.
(2) For the purpose of this section “petty offence” means any
offence punishable only with fine not exceeding one thousand
rupees, but does not include any offence so punishable under
the Motor Vehicles Act, 1939 (4 of 1939), or under any other
law which provides for convicting the accused person in his
absence on a plea of guilty.
(3) The State Government, may, by notification, specially
empower any Magistrate to exercise the powers conferred by
sub-section (1) in relation to any offence which is
compoundable under section 320 or any offence punishable
with imprisonment for a term not exceeding three months, or
with fine, or with both where the Magistrate is of opinion that,
having regard to the facts and circumstances of the case, the
imposition of fine only would meet the ends of justice.

10.15.2 This is an enabling provision for dealing with petty offences

speedily and applies only to cases which can be tried summarily under Section
260 of the Code. ‘Petty Offence’ means offence punishable only with fine not
exceeding one thousand rupees. However under sub-section (3) the State
Government can specially empower the magistrate to exercise the power under
sub-section (1) to any offence which is compoundable under Section 320 or any
offence punishable with imprisonment not exceeding three months or with fine
or with both where the magistrate is of opinion that imposition of fine only
would meet the ends of justice.

10.15.3 In all such cases the magistrate can call upon the accused to exercise
the option of pleading guilty and paying fine fixed by him within the specified time
by money order or D.D or to appear before the court on the specified date if he
chooses to contest the case. This is a very quick, convenient and
speedy procedure prescribed for dealing with large number of petty offences. If
the allegations against the accused are true he can plead guilty and pay the
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fine through post. He need not engage a lawyer and incur expenditure. He can
save the time, trouble and expense of attending the court. Therefore it is good
to encourage the accused to avail of this facility. It is also necessary to enlarge
the limit prescribed particularly in the light of the amendments to Section 260
and 262 that the Committee has recommended. It would be convenient if the
reply which the accused has to give is also prescribed so that he can reply
without seeking assistance of the lawyer. Form 30 prescribed needs to be
simplified.

10.15.4 Summary trial procedure and procedure for trying petty cases
should be adopted with great advantage in dealing with offences under special
local laws.

10.16 SERVICES OF SUMMONS

One of the causes for delay even in the commencement of trial of a criminal
case is service of summons on the accused. The Code of Criminal Procedure
provides for various modes of service. Section 62 of the Code provides that
summons shall be served by a Police Officer, or subject to such rules being
framed by the State Government, by any officer of the Court or other public
servant. Unfortunately rules have not been framed by many State Govts. to
enable service otherwise than through police officers. Since the Criminal
Procedure Code itself provides for other means of service namely through
registered post in the case of witnesses, Section 62 should be amended to
provide for service on accused through registered post with acknowledgement
due and wherever facilities of courier service are available, the same should
also be adopted. If fax facilities are available the same should be used. Any
endorsement made by the postman that the summons has been “refused” should
be deemed as sufficient service and warrant can be issued. As in civil cases
service through court official can also be provided and in case of summons to
the accused who is absconding, the summons can be served on any adult
member of the family or affixed on a prominent place at his residence and the
same shall be treated as sufficient service and in case of non-appearance a
warrant can be issued.
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WITNESSES AND P ERJURY _

11.1 Witness is an important constituent of the administration of justice.

By giving evidence relating to the commission of the offence he performs a
sacred duty of assisting the court to discover truth. That is why before giving
evidence he either takes oath in the name of God or makes a solemn affirmation
that he will speak truth, the whole of truth and nothing but truth. The witness
has no stake in the decision of the criminal court when he is neither the accused
nor the victim. The witness performs an
important public duty of assisting the court in The witness should be
deciding on the guilt or otherwise of the accused treated with great respect
in the case. He sacrifices his time and takes the and consideration as a
trouble to travel all the way to the court to give guest of honour.
evidence. He submits himself to cross-
examination and can not refuse to answer questions on the ground that the
answer will criminate him. He will incur the displeasure of persons against
whom he gives evidence. He takes all this trouble and risk not for any personal
benefit but to advance the cause of justice. The witness should be treated with
great respect and consideration as a guest of honour. But unfortunately quite
the reverse is happening in the courts. When the witness goes to the court for
giving evidence there is hardly any officer of the court who will be there to
receive him, provide a seat and tell him where the court he is to give evidence is
located or to give him such other assistance as he may need. In most of the
courts there is no designated place with proper arrangements for seating and
resting while waiting for his turn to be examined as a witness in the court.
Toilet facility, drinking water and other amenities like food and refreshment are
not provided.

11.2 The witness is not adequately compensated for the amount of money
he spends for his traveling and staying in the town where the court is located.
Rates of allowance fixed long back are quite unrealistic and not adequate to meet
the minimum needs of the witness. Steps should therefore be taken to review the
scales of traveling and other allowances taking into account the prevailing cost
in the area where the court is located. What is worse is that even the
allowances fixed are not paid to the witness immediately on the ostensible ground
152

that funds are not available. There are also complaints of corrupt officials of the
administration who draw the allowances and do not pay them to the witnesses.
This is an un-pardonable crime against the witnesses. Therefore effective steps
have to be taken to ensure that payment of the allowances to the witness is
neither denied nor delayed. Fool proof arrangements should be made to see that
the allowances are paid immediately. An official should be designated to attend
to the witnesses and be responsible for paying the allowances promptly.

11.3 Another major problem is about safety of witnesses and their

family members who face danger at different stages. They are often threatened
and the seriousness of the threat depends
upon the type of the case and the If, however, the circumstances
background of the accused and his indicate that the life of any
family. Many times crucial witnesses are particular witness is in danger,
threatened or injured prior to their the court must take such measures
testifying in the court. If the witness is as are necessary to keep the
still not amenable he may even be identity of the witness secret and
murdered. In such situations the witness make arrangements to ensure
will not come forward to give evidence protection to the witness without
unless he is assured of protection or is affecting the right of the accused
guaranteed anonymity of some form of to cross-examine him.
physical disguise. Some times holding of
in-camera proceedings may be sufficient to protect the interest of the witness.
If, however, the circumstances indicate that the life of any particular witness is
in danger, the court must take such measures as are necessary to keep the
identity of the witness secret and make arrangements to ensure protection to the
witness without affecting the right of the accused to cross-examine him. The
threat from the accused side may be before he gives his statement before the
police officer or evidence before the court or after the conclusion of the trial.
There is a growing tendency of subjecting the witness and his family members
to serious threats to life, abduction or raping, or damaging the witnesses’
property or harming his image and interest in other ways. The witness has no
protection whatsoever. Many countries in the world have enacted laws for
witnesses’ protection. There is no such law in India. Time has come for a
comprehensive law being enacted for protection of the witness and members of
his family.

11.4 The witness also suffers in the court in various other ways. When he
comes to the court to give evidence he is often told that the case has been
adjourned and is asked to come back on another day. When a case is adjourned,
the witnesses in attendance are quite often not paid the allowances. The witnesses
should not be punished by denying him reimbursement of the expenses for no fault
of his. Steps should therefore be taken to ensure that the witnesses
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are paid allowances on the same day if the case is adjourned. Quite often more
than one witnesses is summoned to prove the same point, much of it being of a
formal character. The prosecutor may pay attention to reduce duplication of
evidence resulting in unnecessary waste of time of courts and expenses. The
evidence of Medical witnesses, Government scientific experts and Officers of
mint contemplated by Sections 291, 292 and 293 of the Code shall be tendered
as evidence in the form of Affidavits and the challenge to the same by the
opposite party shall be by means of a counter Affidavit. The Court may permit
an Affidavit in reply being filed by these experts. If the Court is satisfied that in
the interest of justice, examination of these witnesses is necessary, it shall as far
as possible be done through Video Conferencing. It is only if it is practicable
that the witnesses may be summoned for giving evidence before the Court.
Evidence of such witnesses should be recorded on priority basis and summoning
such experts again should be avoided. The DNA experts should be included in
sub section 4 of section 293 of the Code. This repeats again and again. No
concern is shown for the valuable time of the witness and the trouble he takes to
come to the court again and again to give evidence. Therefore there is need to
infuse sensitivity in the minds of the court and the lawyers about the hardship
and inconvenience which the witness suffers when the case is adjourned.
Therefore only such number of cases should be listed which can be taken on
that particular day so that the witness is not required to return only to come
again for giving evidence. The directions given from time to time that the trial
should proceed on day to day basis are not being followed. Time has now come
to hold the Judge accountable for such lapses. Appropriate remedial measures
through training and supervision may have to be taken in this behalf by the
respective High Courts.

11.5 The next aspect is about the way the witness is treated during trial.
As already stated the witness is entitled to be treated with courtesy when he
arrives for giving evidence. Similarly due courtesy should be shown to him
when he enters the court hall for giving evidence. The present practice is to
make the witness stand and give his
evidence from the place designated for It is high time the Judges are
that purpose. Comfort, convenience and sensitised about the responsibility
dignity of the witness should be the to regulate cross examination so
concern of the Judge. In the opinion of as to ensure that the witness is not
the Committee the present practice must ill-treated affecting his dignity
be changed. A chair should be provided and honour.
for the witness and requested to take his
seat for giving evidence. The lawyer for
the defence in order to demonstrate that the witness is not truthful or a reliable
person would ask all sorts of questions to him. When the questions are likely to
annoy, insult or threaten the witness, the Judge does not object and
often sits as a mute spectator. It is high time the Judges are sensitised about the
154

responsibility to regulate cross examination so as to ensure that the witness is

not ill-treated affecting his dignity and honour. Therefore the High Courts
should take measure through training and supervision to sensitize the Judges of
their responsibility to protect the rights of the witnesses.

11.6 So far as witness is concerned, it is his primary duty to give true

evidence of what he knows. Unfortunately this is not happening and the
problem of perjury is growing.

11.7 PROBLEM OF P ERJURY

11.7.1 One of the main reasons for the large percentage of acquittals in
criminal cases is of witnesses’ turning hostile and giving false testimony in
criminal cases. Several reasons are attributed to this malady such as inordinate
delay in the trial of cases, threats or inducement from the accused etc. As in
criminal cases the prosecution relies mainly on oral evidence the problem
assumes critical importance.
Witnesses give evidence in the Criminal Courts after they are
administered oath or affirmation under the Oaths Act, 1969. Section
8 of the Oaths Act provides that the witness is legally bound to state
the truth on the subject. The sanction behind the oath is supposed to
be the fear of God and the fear of eventual punishment by God, the
supernatural dispenser of justice. In practice however it is seen that
the witnesses make false statements without any regard for the
sanctity of the oath or affirmation that has been administered to
them. One gets an impression that administration of oath or
affirmation virtually gives license to the witness to make false
statements before the Court with impunity.

11.7.2 There is no doubt there is a statutory sanction against the witnesses

making false statements in the Court. Perjury is made a Penal offence under
Sections 193 to 195 of the Indian Penal Code for which adequate punishment is
prescribed.

11.7.3 Section 195 (1) (b) of the Code provides that no court shall take
cognizance inter-alia of the offence of perjury under Sections 193 to 195 except
on the complaint in writing of that court or of the court to which that court is
subordinate. Section 340 prescribes the procedure to be followed for making a
complaint contemplated by Section 195. It requires the Court to hold a
preliminary enquiry to record a finding that it is expedient in the interest of
justice that an enquiry should be made into any offence referred to in Section
195 (1) (b).
155

Thereafter it has to make a complaint in writing and send it to the Magistrate I

Class having jurisdiction. The order under Section 340 is appealable under
Section 341 of the Code. Section 343 prescribes the procedure to be followed in
dealing with the Case.

11.7.4 Section 344 however prescribes an alternate summary procedure.

It provides that if the Court of Session or Magistrate of first class if at
any time of delivery of judgment in the case expresses an opinion that the
witness appearing in such proceeding had knowingly or willfully given false
evidence or fabricated false evidence for use in the proceeding, the Court may if
satisfied that it is necessary and expedient in the interest of justice that the
witness should be tried summarily, take cognizance after giving reasonable
opportunity of showing cause, try such offender summarily and sentence him to
imprisonment which may extend upto to 3 months or to fine upto Rs.500/- or
with both. This provision is rarely resorted to. Thus it is seen that the courts
response to the serious problem of perjury is rather one of utter indifference.

11.7.5 Unfortunately these provisions are rarely resorted to and perjury

has become a routine feature in courts where truth and justice must prevail.

11.7.6 Sub-section (4) further provides that if, after such action is initiated
it appears that an appeal or revision has been preferred against the judgment or
order, further proceedings regarding perjury shall be stayed until the appeal or
revision is decided.

11.7.7 Perjury can contribute to the wrong person being convicted while
the true criminal and a perjurer walk on the streets in freedom. Offering false
testimony in a criminal trial is a serious offence that undermines the integrity of
the Criminal Justice System. For justice to be done truth must prevail. Witness
must be made to take his oath or solemn affirmation seriously. The sentence
prescribed for perjury is quite lenient. In the State of New York the sentence
for perjury was recently enhanced to 15 years. As the menace of perjury is
shaking the very foundation of the Criminal Justice System it is necessary to
curb this menace and the sentence prescribed should be enhanced.
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157

VACATIONS FOR COURTS _

12.1 None of the governmental organizations in the country have

vacations except the courts and the educational institutions. Educational
institutions where the children are educated stand altogether on a different
footing. Wherever the Committee has gone one question which the common
people have asked is as to why the courts should have such long vacations when
there is such huge pendency of cases in all the courts waiting for decades for
disposal. There are cases where the accused have been waiting for years for
their cases to reach the hearing stage. When we
told them that the Judges work very hard, that Why the courts should
their work involves great intellectual exercise, have such long vacations
that they have to study and research a lot, that when there is such huge
they do not get time to keep themselves well- pendency of cases in all the
informed about the new trends of law and courts?
jurisprudence in the world which they can do
during vacations, none of them carried any conviction to their minds. They said
that there are many persons discharging even more onerous responsibilities who
work day and night without any holidays or vacations. There is a great sense of
unease in the minds of the people why such great and learned people who are
charged with the responsibility of deciding the fate of others, whether it is
between man and man, between man or State, or between State and State are not
sensitive to the needs of the time to make as much time of theirs, available for
redressing the grievances of the suffering people? Whether it is the fear of the
law of contempt or the tradition of holding the Judges in great awe and respect
that has prevented the people from making a public issue, it is difficult to say.
In this context it is necessary to know that in most of the countries in the world
the courts do not have any vacations. The Judges from the courts in France and
USA who interacted with the Committee told us that their courts have no
vacations and that the Judges can take leave according to their convenience
without affecting the smooth functioning of the courts. What is the special
justification for the courts in India to have this unique privilege of vacations?
Even in India the subordinate criminal courts do not have any vacation. But the
subordinate civil courts, High Courts and the Supreme Court have vacations.
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12.2 It appears that vacation for the courts is a legacy of colonial rulers.
Most of the higher courts were presided by Judges hailing from England. That
was the time when the pressure of
work in courts was not so great. The committee feels that the time
Besides as rulers they were not very has come for introspection and to
much concerned about the problem of respond to the just expectations of
delay in disposal of cases. English the litigant public who clamor for
men coming from the cold country speedy justice and access to justice
were finding summer in India un- round the year.
bearable. Therefore the vacation was
evolved as an arrangement to enable
them to go to England during summer and spend their time comfortably there.
That was the time when travel was required to be made by sea which occupied
several weeks. This appears to be the real reason for the introduction of
vacations for courts in India. English men having gone we having become the
masters of our own country, is there any justification to continue the legacy of
vacations! Access to Justice and speedy trial being precious fundamental rights
of the citizen, the courts ought to remain open round the year. The committee
feels that the time has come for introspection and to respond to the just
expectations of the litigant public who clamor for speedy justice and access to
justice round the year.

12.3 The Committee would like to advert to the reasons given in the
report by the Arrears Committee constituted by the Government of India on the
recommendations of the Chief Justices’ Conference recommending not
abolition but reduction of the vacation for the High courts by 21 days:
When there is such tremendous pressure of work in all the High
Courts and the problem has become so acute, we should explore
every possible avenue of effectively tackling this problem. We are
conscious of the fact that the Judges work very hard not only during
court hours but outside the court hours, not only during working
days of the High Court but also during holidays and vacations. We
are also conscious of the fact that it is a highly taxing intellectual
work which requires adequate time for relaxation. The Judges have
to catch up with a lot of general reading, the progress and trends in
law and jurisprudence in other countries in the world. They may be
required to participate in seminars for updating their knowledge and
for mutual exchange of views. These being the special requirements
of the Judges, their working cannot be compared to the working of
other administrative and executive branches. These special
requirements of the Judges cannot be served without providing
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vacations for reasonable periods. At the same time, the Judges, who
should be vitally concerned with the problem of arrears, particularly
when the problem has reached such critical levels, should come
forward to make some sacrifice for achieving the larger goal at least
for the next couple of years, until the problem is brought under
control. It is against this background that we feel that we should
come forward to make some sacrifice in the larger interest.
… … .This undoubtedly calls for hard work and sacrifice on the part
of the Judges which we feel must be offered ungrudgingly and
graciously for achieving the noble cause. We trust that the Bar will
not be found wanting in making their own contribution by extending
their full co-operation.

12.4 Unfortunately the recommendations of the Arrears Committee to

reduce the vacations by 21 days have not been implemented so far.

12.5 Compared to the work load on courts in other countries in the

world the Judges in India carry a much heavier load. So far as High Courts and
Supreme Court are concerned apart from the large number of cases they have to
dispose of, their responsibility is quite onerous as they have the power to strike
down unconstitutional laws and to lay down the law that is binding on all
subordinate courts. Some of the heavy and complicated cases require the
Judges to do considerable research and reading. This, they may not be able to
do during the week ends. They would be looking for the vacations to do this
work. Besides they need time to participate in national and international
seminars, workshops and conferences to interact with Judges, lawyers and
scholars from other countries. They have also to catch up with lot of reading
the latest books. Besides, the lawyers practicing in the courts at the higher
levels need time for similar exercises. Therefore, the Committee feels that
instead of abolishing the vacations altogether, they may be reduced by a
reasonable period.

12.6 Sensitivity of the courts for the accused languishing in the jails for
long period of time awaiting the decision of court is waning. There was a far
greater sensitivity and concern about the accused who was affected by delay in
disposal of criminal cases in the 50s and earlier. In the High Court of Bombay
(may be in other High Courts also), there was a convention that before the court
went on vacation all the criminal cases pending in the High Court where the
accused were in custody should be disposed of. If all the cases were not
disposed of the Judges could not take the vacation. Therefore when the
vacation was approaching assessment of the criminal cases in which the accused
were under custody would be made and additional benches
constituted to ensure that all such cases are disposed before the commencement of
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the vacation. Another convention was that in serious cases involving offence of
murder etc, if the accused was not able to engage his own lawyer and a lawyer
was provided to him at the cost of the State, the High Court would request an
eminent senior lawyer to appear and argue the case for the accused assisted by
the lawyer provided at the cost of the State. The senior lawyer who argues the
case on the request of the High Court would not receive any payment. This
shows the sensitivity of the Judges to dispose of criminal cases expeditiously
and to provide quality legal assistance to indigent persons. That sensitivity in
the course of the years has dried up. It is time for introspection and for restoring
sensitivity towards the plight of the accused whose cases are pending in the
courts.

12.7 There is no vacation for subordinate criminal courts. In the High

Courts and the Supreme Court there is substantial criminal work. So far as
vacations of the High Court are concerned they have been fixed by each High
Court according to their own convenience, bearing in mind the order of the
President issued under Section 23(a) of the High Court Judges Conditions of
Service Act, which requires the High Court to work for 210 days a year. The
President has power to increase the number of working days which would
automatically lead to reduction of
vacations. All the High Courts have The total period of vacation of
summer vacations. Some High Courts each High Court varies from 48
have winter vacations or Deepavali to 63 days. However, during
vacations or Puja vacations or Christmas vacations some Judges sit on the
vacations or Dussera vacations or Onam vacations benches only to transact
vacations depending upon the customs urgent work.
prevailing in the respective states. The
total period of vacation of each High Court varies from 48 to 63 days. However,
during vacations some Judges sit on the vacations benches only to transact urgent
work.

12.8 There is a convention which enables the High Court Judges to take 14
days Casual Leave every year. In addition, there are more than two weeks of public
holidays every year. High Court Judges do not sit on Saturdays and Sundays.
Though the High Court is expected to work for 210 days, the Judges would be
working for a much lesser number of days when they avail of different kinds of
leave. The assessment of the reasonable period of reduction of period of vacation
has to be made taking into consideration the work load on the Judges, pendency of
cases for several years and the fresh inflow of cases everyday. Some amount of
reasonable adjustment is called for. Bearing all these aspects in mind and the need
to eradicate arrears and to provide speedy justice to the litigants, the Committee is
of the opinion that the working days of the High Courts should be increased from
210 days to 231 days. This would result in reduction of the vacation by 21 days
which is quite reasonable. This would contribute to substantial reduction of
arrears.
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12.9 The President has fixed 185 working days. The Supreme Court has
summer vacation, Holi holidays, Daseera holidays, Deepavali holidays and New
Year holidays. The working days of the Supreme Court are lesser than that of
the High Courts by 25 days. The Registrar General of the Supreme Court has
furnished the information to the Committee that the summer vacations for the
Supreme Court is for 8 weeks and that the court is closed for Christmas and
New Year holidays for 2 weeks. Few Judges sit during vacations to attend to
urgent work. The reasons discussed earlier for increasing the working days of
the High Courts by 3 weeks would apply equally to the Supreme Court. The
same period of increase of 21 working days for the Supreme Court appears
reasonable. In the circumstances the Committee recommends that the number of
working days for the Supreme Court may be increased from 185 days to 206
days. Consequently, the vacation of the Supreme Court would be reduced by 3
weeks which is quite reasonable. This would contribute to substantial increase
in disposal of cases and reduction of arrears.
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ARREARS ERADICATION SCHEME _

13.1 According to the Report on Crime in India, 2000 published by the

National Crime Record Bureau, Ministry of Home Affairs, 49,21,710 criminal
cases under the IPC were pending at the end of the year 2000. During the Year
2000 the number of cases under the IPC which were tried and disposed of were
9,33,181. So far as criminal cases under special local laws are concerned,
36,49,230 cases were pending at the end of 2000. Total of 25,18,475 cases were
disposed of after trial in the year 2000. It is thus seen that there is a huge
backlog of criminal cases in the country. Criminal cases including sessions’
cases have been pending in several States for more than 15 years. Many of the
reforms suggested by the Committee in this report would help in reducing the
arrears and improving the quality of justice. But so far as huge arrears of cases
is concerned, unless concerted effort are made on a war-footing, the position
will not improve and people will continue to suffer. Realizing the gravity of the
problem Hon. Sri Arun Jaitley, Minister of Law and Justice, Govt. of India
evolved Fast Track Courts scheme to deal with Sessions’ cases. The scheme
also made provision for providing funds. The scheme has worked very well in
some States and not too well in others. This is not due to any defects or
inadequacies in the scheme. The problem really was in the matter of
implementing the scheme. Under the scheme additional courts termed “fast
track courts” were established. Senior in-service Judges or retired Judges were
appointed to man such courts for a term of two years. Some courts have
performed very well where they were manned by experienced Judges known for
their ability for quick disposal. In many places suitable persons were not
available for appointment to these courts. In some places there were problems
of lack of accommodation and other infrastructural facilities. There were also
problems of securing public prosecutors etc. Lack of co-ordination was another
problem. The major problem undoubtedly was in the matter of finding suitable
persons to be appointed as Judges and securing accommodation for the courts.
This means that we should find ways and means for better and effective
implementation of the scheme.

13.2 In the opinion of the Committee a scheme like the

Fast Track Courts scheme with certain modifications is the
right answer to tackle the problem of arrears in all the criminal
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courts. As the object of the proposed scheme is to eradicate arrears it would

like to name the proposed scheme as “Arrears eradication scheme”.

13.3 The Arrears for the purpose of the scheme should mean cases
which are pending for more than two years as on the date of coming of coming
into force of the new scheme. Cases
pending for less than two years shall In the opinion of the Committee a
be current cases. This shall be a one scheme like the Fast Track Courts
time temporary scheme for clearing scheme with certain modifications is
the existing arrears of criminal cases the right answer to tackle the problem
in all the courts. of arrears in all the criminal courts.

13.4 Some of the measures recommended by the Committee in this

report would be useful in eradicating the back log of cases. The Committee has
recommended increase in the number of offences that can be compounded.
Benefit of this should be extended to the pending cases as well. Good many old
cases can be disposed of by settlement.

13.5 The Committee has recommended that all the ‘Summons’ cases
shall be tried summarily under section 262 of the Code. Pending cases falling
under this category can also be disposed of expeditiously by following the
summary procedure.

13.6 SCHEME FOR ERADICATING ARREARS

13.6.1 For the purpose of eradicating arrears a separate scheme shall be

prepared on the lines of the ‘Fast Track Courts Scheme’on the following lines:-
1. The scheme shall be called the ‘Arrears Eradication Scheme’.
2. The object of the scheme shall be to eradicate the arrears pending on
appointed day, in about five year’s time.
3. Appointed day shall be fixed by the Chief Justice of the High Court
for the Arrears Eradicating Scheme to come into force. That is the
day when the courts shall start hearing the cases under this Scheme.
Therefore all arrangements for that purpose should be completed
before that day.
4. Arrears for the purpose of this Scheme shall be the cases pending for
more than two years on the appointed day.
5. The Scheme will lapse once ‘Arrears’are disposed of.
6. Current criminal cases are those that are pending for less than two
years on the appointed day. Responsibility of disposing of these
current cases within two years shall be on the regular courts. This
scheme is recommended so that from here on at least the current
criminal cases can be disposed of within a maximum period of
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two years. The High Court shall take steps to have enough regular courts for
achieving this object.
7. Implementation of the Arrears eradication scheme requires co-
ordination between the High Courts and the Government in the matter
of finding suitable persons to be appointed as Judges and finding
suitable accommodation and other infrastructure for the courts. The
Committee recommends that a retired Judge of the High Court should
be appointed for implementation of the Arrears eradication scheme.
He should be appointed in consultation with the High Court. It is only
persons with considerable experience in criminal cases who are known
for quick disposal and ability to motivate others that should be selected
for implementing the Scheme. The choice of the Judge for this
purpose is of crucial importance. He should be given a free hand in the
matter of suggesting the names of persons to be appointed to these
courts, identifying accommodation and finding staff to do the work.
The success of the scheme would depend upon the vision and
dynamism of such person. Therefore great care should be taken in the
matter of selecting and appointing a person for this important job.
8. His overall responsibility shall be to implement the scheme in the
entire State. He shall co-ordinate with all the functionaries and take
necessary steps in consultation with the Chief Justice to implement the
Arrears Eradication Scheme. His services may also be utilized in the
matter of compounding or settlement of cases.
9. Quick decisions and prompt action are the key for the success of this
scheme. It is therefore suggested that at the State level there should be
a coordination committee consisting of the Chief Justices, Chief
Minister and Advocate General and at the Central level such
Committee may consist of the Chief Justice of India, Minister for Law
and Justice and the Attorney General of India.
10. The Judge appointed in each State for implementing the scheme should
at the end of every year prepare a report about the implementation of
the Scheme, giving all relevant information, about the problems if any
that need to be solved and send it to the Co-ordination Committee for
taking remedial measures. Copy of the report should be sent to the
Chief Justice of India and the Minister for Law and Justice, Govt. of
India. They may take such measures as are needed for smooth and
effective operation of the Scheme.
11. Such number of additional courts of Magistrates First Class, Chief
Judicial Magistrates and Session Judges as may be required to clear up
arrear of cases pending for more than two years be established.
12. Adhoc or contractual appointment of Judges shall be made for these
courts from among available retired Judges and members of the Bar.
13. Benefit of compounding of offences recommended by this Committee shall be
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extended to pending cases as well. A concerted effort should be

made to dispose of the cases by compounding or settlement
wherever that is permissible in law.
14. To meet the problem of accommodation, timings of the court may be
so modified so as to have two shifts of courts to be able to use the
same accommodation, say, from 9 am to 2 pm and 2.30 pm to 7.30
p.m.
15. It may also be examined if court can function on part time basis with
part time Judges at the same premises with some adjustment of
timing of the regular courts. The part time courts may also sit on
holidays. Part time courts can conveniently be assigned
compoundable cases for settlement. The Judge should make effort
to settle the cases failing which they may be sent to the court doing
regular hearing work.
16. Where there are large numbers of petty cases they may be posted
exclusively before one Judge so that they can be expeditiously
disposed of.
17. This scheme may mutatis mutandis be extended to the High Courts
and the Supreme Court. The Chief Justices of the respective courts
shall classify the criminal cases into two categories. Those which
are pending for more than two years shall be treated as arrears cases
and assigned to specially constituted benches for clearing the
arrears. If necessary ad hoc Judges should be appointed until the old
cases are disposed of. So far as cases pending for less than two
years are concerned they shall be disposed of by regular benches.
Such number of regular benches should be constituted as may be
necessary to dispose of current case within two years. It shall be the
responsibility of the concerned Governments to extend such
assistance as is necessary. It is advisable for the Chief Justices to
constitute special cells to be responsible for assisting the Chief
Justice in achieving these objectives.
18. The Committee urges the Governments concerned to provide the
funds required for successful implementation of the scheme. The
Government of India may extend the requisite financial support in a
generous way as it has done in respect of Fast Track Court scheme.
19. Commitment and aggressive pursuit at all levels is the key to solving
the problems. Requisite finance, manpower and infrastructure
should be made available without cringing. This is a very small
price to pay to mete out justice to the people. Time has come to act,
here and now.
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PART – IV

CRIME AND PUNISHMENT

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OFFENCES, SENTENCES, SENTENCING & C OMPOUNDING

14.1 Lord Denning appearing before the Royal Commission on ‘Capital

Punishment’expressed the following views:
Punishment is the way in which society expresses its denunciation of
wrong doing and in order to maintain respect for law, it is essential
that punishment inflicted for grave crimes should adequately reflect
the revulsion felt by the great majority of the citizens. For them it is
a mistake to consider the object of punishment as being deterrent or
reformative or preventive and nothing else. The truth is that some
crimes are so outrageous that society insists on adequate punishment
because wrong doer deserves it, irrespective of whether it is
deterrent or not.

14.2 Punishment must be severe enough to act as a deterrent but not too
severe to be brutal. Similarly punishments should be moderate enough to be
human but cannot be too moderate to be ineffective.

14.3 SENTENCING CONSIDERATIONS

14.3.1 Sentencing aspects that are relevant for consideration by courts are
more or less laid down by courts all over the world except where the statute
provides a minimum mandatory sentence. Factors that influence sentencing
process have been clearly settled by a series of court pronouncements. For
imposing substantial punishment many aspects are taken into account.
Similarly for reducing the quantum, factors which mitigate are also taken into
account. Therefore in the sentencing process both these factors are taken
together.

14.3.2 Emmins in his On Sentencing (Martin Vasik ed) lists out various
factors under the head of seriousness of offence which is the key concept.
Several sub-heads indicate when the
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seriousness of the offence is aggravated, where the victim is specially vulnerable

that is where the offender takes advantage of a helpless person; a very young or
very old or handicapped person. He also speaks of breach of trust. This arises in a
case where somebody takes advantage of a person who is interested in his career or
a person who abuses his office. A premeditated crime executed with
professionalism also is an aggravation. Excessive violence, offences by a group or
an offence committed by a person on bail for a particular crime which is prevalent
in an area and causes public concern are all cited as aggravating factors. He also
lists factors which mitigate the seriousness of the offence. Offence committed
under grave provocation, offender acting in circumstances though they may not
amount to a defence to decide culpability. Other factors listed by him are young
age of offender, old age of offender, offender’s previous character, clean record,
where the offender has performed meritorious service, where the offender shows
remorse, offender pleading guilty. Serious illness of the offender, effect of
sentence on the family, passage of time after he committed the offence and trial are
also germane and are extenuating factors. These are some of the criteria or
guidelines according to Emmins which will have to weigh with a Judge who passes
the sentence.

14.4 NEED FOR SENTENCING GUIDELINES

14.4.1 The Indian Penal Code prescribed offences and punishments for
the same. For many offences only the maximum punishment is prescribed and
for some offences the minimum may be prescribed. The Judge has wide
discretion in awarding the sentence within the statutory limits. There is now no
guidance to the Judge in regard to selecting the most appropriate sentence given
the circumstances of the case. Therefore each Judge exercises discretion
accordingly to his own judgment. There is therefore no uniformity. Some
Judges are lenient and some Judges are harsh. Exercise of unguided discretion
is not good even if it is the Judge that exercises the discretion. In some
countries guidance regarding sentencing option is given in the penal code and
sentencing guideline laws. There is need for such law in our country to
minimise uncertainty to the matter of awarding sentence. There are several
factors which are relevant in prescribing the alternative sentences. This requires
a thorough examination by an expert statutory body.

14.4.2 Although many countries have abolished death penalty in view of the
increasing violence and deterrence having failed organised crime, terrorism, bomb
blasts resulting in killing of innocent people etc., compel the retention of death
sentence. Law Commission also states that time is not ripe for abolition of death
sentence. Section 354 (3) Cr.P.C makes imprisonment for life the normal
punishment and the same section requires that in case a death
sentence is imposed, special reasons are to be given and the
Supreme Court in Bachaan Singh’s case held that in the rarest
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of the rare case the same can be given and enumerated circumstances in which it
should be granted and further in Macchi Singh’s case they laid down some more
requirements namely the manner of the murder, the motive for the commission of
offence, the anti-social nature of crime, the magnitude of the crime and the
personality of the victim such as innocent child and helpless woman or a victim
over whom the murderer is in a position to dominate or the victim is a public
figure.

14.4.3 The Law Commission in its 47th report says that a proper sentence is a
composite of many factors, the nature of offence, the circumstances extenuating or
aggravating the offence, the prior criminal record if any of the offender, the age of
the offender, the professional, social record of the offender, the background of the
offender with reference to education, home life, the mental condition of the
offender, the prospective rehabilitation of the offender, the possibility of treatment
or training of the offender, the sentence by serving as a deterrent in the community
for recurrence of the particular offence.

14.4.4 Offenders also have to be classified as a casual offender, an offender

who casually commits a crime, an offender who is a habitual, a professional
offender like gangsters, terrorist or one who belongs to Mafia. There should be
different kinds of punishments so far as the offenders are concerned. Similarly in
fixing a sentence many factors are relevant, the nature of offence, the mode of
commission of the offence, the utter brutality of the same, depravity of the mind of
the man. Sentences contemplated by Section 53 of IPC are death, imprisonment
for life, and forfeiture of property or fine.

14.4.5 Some times the courts are unduly harsh, sometimes they are liberal
and we have already adverted to aspects which Supreme Court said are relevant in
deciding as to what are the rarest of the rare cases for imposing death sentence and
even in such matters uniformity is lacking. In certain rape cases acquittals gave rise
to public protests. Therefore in order to bring about certain regulation and
predictability in the matter of sentencing, the Committee recommends a statutory
committee to lay guidelines on sentencing guidelines under the Chairmanship of a
former Judge of Supreme Court or a former Chief Justice of a High Court
experienced in criminal law with other members representing the prosecution, legal
profession, police, social scientist and women representative.

14.5 NEED FOR NEW KINDS OF OFFENCES AND NEW TYPES OF PUNISHMENTS

14.5.1 Different kinds of punishments are the need of the hour.

Disqualification from holding public office, removal from the community etc.
are some of the measures that should be introduced and not punishment in a
prison. These punishments are not custodial in nature. Far reaching reforms
have taken place in England and the year 2000 is a watershed and
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enactments like the Powers of the Criminal Court Sentencing Act, 2000
modifying earlier laws were enacted introducing a whole range of new and
novel punishments, postponement of sentencing, suspended sentence of
imprisonment, supervision during suspension, community sentences,
community rehabilitation order, financial penalties and reparation orders,
parenting orders for children, confiscation order, disqualification orders etc., are
many of the changes that have been brought out. Even in India under the Motor
Vehicle’s Act a disqualification for holding a license can be a part of
punishment. Dismissal of a public servant from service for criminal
misappropriation and breach of trust is an additional measure of punishment.
Under the Representation of the People’s Act there is disqualification in the
event of proved electoral mal practices or on account of conviction.

14.5.2 In other words instead of conventional punishments enumerated in

Sec.53 of the Penal Code which was enacted in 1860 nothing has been done to
reform the system of punishment. The U.K. Powers of Criminal Courts Sentencing
Act of 2000 contains general provisions regarding a community orders and
community sentences and a curfew order, community rehabilitation order, a
community punishment order, a community punishment rehabilitation order, a
drug treatment and testing order, attendance order, a supervision order, an action
plan order are all covered by the definition of community order and community
sentences and monitoring of orders. These orders have certain limitations. Curfew
orders are those by which a person convicted of an offence is required to remain at
a place specified or different places on different dates. It is not custodial in nature.
In a community rehabilitation order a convicted person may be kept under the
supervision of a named authority to secure his rehabilitation or protecting the
public from such an individual or to prevent further crime. In respect of sexual
offenders or persons who have a mental condition or those who are drug addicts or
addicted to alcohol various provisions have been enacted with a view to
rehabilitate the individual, take him off the drugs or alcohol and enable him to live
as a decent human being. Supervision orders and sentence orders are also treated
as forms of punishments in addition to fines. The Power of Criminal Courts
Sentencing Act, 2000 provides for a compensation order.

14.5.3 In Indian law, so far as the custodial punishments are concerned there
are certain offences for which maximum term is provided and also provisions for
mandatory minimum punishment Section 397, 398 IPC, PC Act, NDPS Act, PFA
Act provide for mandatory minimum punishments. Since some of these offences
are offences against society as a whole, against public health, against the safety or
well being of society at large, such punishment should be retained.

14.5.4 IPC Amendment Bill of 1978 was the first attempt made to bring about certain
changes in sentencing which remained static from the time IPC was enacted. Prior to this a
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bill had been enacted in 1972 which suggested 3 new forms of punishment
externment Section 17(A) compensation for victims-14(8) and Public Censure
74(C). However, in 1978 externment as a form of punishment was rejected.
Community service [74(A)], compensation to victims [74(B)] and Public
Censure [74(C)] and disqualification for holding office 74(D) were proposed.
Community Service is in vogue in many countries UK., USSR, Zimbabwe uses
it. Recently Government of Andhra Pradesh has initiated a move to introduce
the same. However, in community sentences certain restrictions regarding age
etc are suggested. The accused must be less than 18 years.

14.5.5 The offence must be one for which the punishment by way
imprisonment must be less than 3 years. It is an alternative to punishment and
there should be an upper and lower limit regarding duration of community
service. The court should be satisfied about the suitability of the accused for
carrying out the work.

14.5.6 Public censure under Section 74 (C) was provided for white-collar
crimes. This was suggested as being in addition to punishment.
Disqualification for holding office was proposed under Section 74(B). This is
also an additional punishment applicable to holders of office and it is limited
with respect to the position and also the period. Unfortunately after the abortive
attempt in 1978 no endeavour was made to re-introduce the same and the law
since 1870 remains static.

14.5.7 To ensure uniformity and to avoid and uncertainties legislation

such as Criminal Courts Sentencing Act of 2000 which is in force in UK can be
thought of so that predictability and uniformity in so far as “Sentencing” is
concerned is assured. Section 78 of
the English Act imposes limits on To ensure uniformity and to avoid
imprisonment and detention in young and uncertainties legislation such as
offenders institutions. Sections 79 & Criminal Courts Sentencing Act of
80 provide for general restrictions on 2000 which is in force in UK can be
description and custody of sentences thought of so that predictability and
and length of sentences. Presenter uniformity in so far as “Sentencing”
reports are also to be looked into is concerned is assured.
Section 83 imposes certain
restrictions on persons who are not legally represented.

14.5.8 Sections 89, 90, 91, 93 and 94 provide for restrictions, periods of
detention for persons below the age of 18 to 21 years. Suspended sentences,
suspension orders, special enactments like Sex Offenders Act of 1997, are the
changes brought out even in regard to a class of offences.
Community orders and community sentences are
applicable where there is no sentence fixed by law. They cover a wide range
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such as curfew order, community rehabilitation order, and community

punishment order. A Drug treatment order, an attendance centre order, a
suspension order are part of the statutory changes.

14.5.9 Financial penalties taking into account the offenders’ financial

circumstances, and fixing of fines, remission of fines, compensation orders are
provided. A review of compensation orders limits of fine to be imposed on the
young offender and a direction to the parent or guardian to pay fines, compensation
etc., are all fixed and statutorily regulated. Power to confiscate the property used
for Crime is covered by Section 143 of Criminal Courts Sentencing Act of 2000.
Forfeiture is also provided. We have Shrama-dan, or NSS work which can be
usefully introduced as part of sentencing. ‘Janman-Bhoomi concept in vogue in
Andhra Pradesh can be converted into a convicts wage to the community for the
crime committed. All these clearly show the changes and the emerging pattern in
sentencing and several other facts the aim of all of which is to bring about a
psychological change in the accused, to have an impact on the mind so that the
same may bring about certain reformation of the individual. It is time that with the
advancement of science, medicine and human psychology we try to find out the
etiology of the Crime in our country and to bring about legislation which
introduces a whole range of new and innovative punishments some of which are
enumerated in the preceding paragraphs.

14.6 PREPARING FOR EMERGING CHALLENGES

14.6.1 The last

century has seen amazing Terrorism has become global in nature, and the
change in the pattern of consequences of the same in terms of loss of life
crime and the intensity and are phenomenal. Organised crime and its
impact of the same on ramifications are global. Economic offences are
society. Terrorism has transnational in operations and cyber crimes
become global in nature, have no geographical limitation. Sexual
and the consequences of the offences, child abuse, drug trafficking,
same in terms of loss of life trafficking in women and child, pornography,
are phenomenal. Organised hijacking of aircrafts are all crimes which have
crime and its ramifications no limitations either in terms of space or
are global. Economic geographical boundaries and the impact of same
offences are transnational in affects the entire society and the nation itself.
operations and cyber crimes Therefore the need to combat these emerging
have no geographical crimes, which are bound to increase in number
limitation. Sexual offences, and in frequency, will have to be addressed and
child abuse, drug
tackled.
trafficking, trafficking in
women and child, pornography, hijacking of aircrafts are all crimes which
have no limitations either in terms of space or geographical boundaries and the
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impact of same affects the entire society and the nation itself. Therefore the need
to combat these emerging crimes, which are bound to increase in number and in
frequency, will have to be addressed and tackled. The existing laws are inadequate
and therefore legislation and new policies of sentencing are the desideratum.
Man’s depredation of nature resulting in ecological imbalance, the concern for
preservation of forests, wild life, compassion for the other living beings which are
part of the Constitutional obligations have all resulted in new legislations being
enacted. The increasing importance towards the end of the last century of human
rights requires that punishments and sentencing should be consistent with Human
Rights Jurisprudence. Rights of disadvantaged sections, gender bias, and sexual
harassment in work places are all great concerns and elimination of all forms of
discriminations are getting statutory protection and recognition.

14.6.2 While these are the challenges and the tasks that we face, the
sentencing criteria that in vogue till now requires to be remedied and rectified as
they are inadequate sometimes ineffective and do not take into account the
human rights angle and do not provide adequate preventive and deterrent
sentences to the new forms of crimes that have exploded consequent on the
advancement of science and technology and the use of the same by criminals
having ramifications which have cross-border implications. Though some new
legislations have been passed every endeavour should be made to tackle and
punish perpetrators of such crimes adequately. These are serious matters
involving policy considerations.

14.6.3 This Committee is not asked to undertake a general review of the

Indian Penal Code. That is a gigantic and time consuming task. The
Committee has therefore restricted its attention to suggesting a few amendments
in the context of the general reforms of the Criminal Justice System. The
Committee is convinced that a comprehensive review of the Indian Penal Code
is long over due and should be undertaken on a priority basis by a high power
Committee. This is not an exercise to be carried out by only lawyers and
Judges. Public men and women representing different walks of life and
different school of thought, social scientists, politicians etc should be on such a
Committee to recommend to the Parliament a better and progressive Penal Law
for the Country. Hence, it is recommended that a Committee should be
appointed to review the Indian Penal Code and to suggest creation of new kinds
of offences, prescribing new forms of punishments and reviewing the existing
offences and punishments.

14.7 ALTERNATIVE TO DEATH P ENALTY

14.7.1 Section 53 of the IPC enumerates various kinds of punishments that can be
awarded to the offenders, the highest being the death penalty and the second being the sentence of
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imprisonment for life. At present there is no sentence that can be awarded

higher than imprisonment for life and lower than death penalty. In USA a
higher punishment called “Imprisonment for life without commutation or
remission” is one of the punishments. As death penalty is harsh and irreversible
the Supreme Court has held that death penalty should be awarded only in the
rarest of rare cases, the Committee considers that it is desirable to prescribe a
punishment higher than that of imprisonment for life and lower than death
penalty. Section 53 be suitably amended to include “Imprisonment for life
without commutation or remission” as one of the punishments.

14.7.2 Wherever imprisonment for life is one of the penalties prescribed

under the IPC, the following alternative punishment be added namely
“Imprisonment for life without commutation or remission”. Wherever
punishment of imprisonment for life without commutation or remission is
awarded, the State Governments cannot commute or remit the sentence.
Therefore, suitable amendment may be made to make it clear that the State
Governments cannot exercise power of remission or commutation when
sentence of “Imprisonment for life without remission or commutation” is
awarded. This however cannot affect the Power of Pardon etc of the President
and the Governor under Articles 72 and 161 respectively.

14.8 CONCERN FOR MOTHER

14.8.1 The concern for the mother and the child and social issues like
female foeticide, domestic violence organs transplantation etc. needs a total new
approach in the matter of punishment. Pregnant women or women with child
less than seven years of age if incarcerated, the trauma and impact of the same
will have both on the mother and the child in life after prison cannot be ignored.
Hence such cases of convicted pregnant women or the mother having young
child below 7 years require human and humane approach and therefore house
detention with sufficient safe guards to prevent escape must be thought of.
There are modern gadgets used in U.S.A to ensure that House arrest orders are
not disobeyed. Any violation can be detected by means of such a gadget. They
can be used in India to respect the rights of the child.

14.9 NEED FOR REFORMS AND REVISION OF F INES

14.9.1 So far as sentences of fine are concerned, time has come to have a
fresh look on the amounts of fine mentioned in the IPC and the mode of
recovery. As the law stands we have two classes of offences for which only
fine can be imposed. Then there are offences for which fine can be imposed in
addition to imprisonment. Further for non-payment of fine, imprisonment
is also provided. So far as imprisonment in case of default of payment of
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fine is concerned it is time that the same is done away with. In view of the
acceptance that custodial sentences are only to be imposed in grave crimes there
are many areas where correctional approach or community sentences etc., will
have the desired effect.

14.9.2 Section 64 of the IPC should be amended and Sec. 65 which says that
where in addition to imprisonment, fine is imposed as also punishment in default of
the payment of fine imprisonment shall not exceed 1/4th of the sentence that may
be fixed should also be deleted. Sec. 66,67 should also be deleted as also 68 and
69 of the IPC and in all these crimes community services for specified periods
should be prescribed.

14.9.3 The amount of fine as

fixed in 1860 has not at all been The amount of fine as fixed in 1860
revised. We live in an age of galloping has not at all been revised. We live
inflation. Money value has gone down. in an age of galloping inflation.
Incomes have increased and crime has Money value has gone down.
become low risk and high return Incomes have increased and crime
adventure particularly in matters has become low risk and high return
relating to economic offences and adventure particularly in matters
offences like misappropriation breach relating to economic offences and
of trust and cheating. For all matters offences like misappropriation
involving in money or money related breach of trust and cheating.
crimes new legislations have also
created offences, a case in point is
Section 138 of the Negotiable Instruments Act where huge sums of money are
involved, fine extending to twice the cheque amount can be imposed / levied. In
matters of sentence of fine it is not desirable that the paying capacity of the rich
criminal and that of the poor is taken into account.

14.9.4 Further it is universally accepted that victims rights should not be

ignored for the victim, he or she, pays a heavy price. Therefore from out of the fine
imposed victim, is also to be compensated. Another aspect is the cost of living has to
be taken into account. The provisions of Minimum Wages Act are applicable to many
wage earners. Therefore in the organised sector or even in un-organised sector wages
have gone up and then even the earning capacity of individuals has increased. Hence
time has come when attention should be focussed on increasing the amount of fine in
many cases. There are certain sections where Penal Code authorises the imposition of
fine but the amount of fine is not mentioned. In such cases Sec.63 of the IPC says
where the sum is not indicated then the amount of fine may be unlimited but
should not be excessive. When a fine is imposed and is not paid the court can
prescribe default sentence of imprisonment. This may act harshly in some cases of
genuine incapacity to pay. Therefore the Committee suggests that community
service may be prescribed as an alternative to default sentence. In view of
the circumstances enumerated the fine amounts should be
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revised. Time has come when the The Committee suggests that
amount of fine statutorily fixed under community service may be prescribed
the Penal Code also should be revised as an alternative to default sentence. In
by 50 times. view of the circumstances enumerated
the fine amounts should be revised.
14.10 COMPOUNDING/SETTLE Time has come when the amount of
MENT WITHOUT TRIAL fine statutorily fixed under the Penal
Code also should be revised by 50
14.10.1 Plea-bargaining which times.
has been implemented with a great
deal of success in USA has to be seriously considered. The Supreme Court of
United States has upheld the Constitutional validity and also endorsed that plea-
bargaining plays a significant role in the disposal of criminal cases. The United
States experiment shows that plea-bargaining helps the disposal of the
accumulated cases and expedites delivery of Criminal Justice and the Law
Commission of India in its 154th and 142nd reports adverted to the same. The
Law Commission also observed that when an accused feels contrite and wants
to make amends or is honest and candid to plead guilty in the hope that the
community will enable him to pay the fine for the crime with a degree of
compassion, then he deserves to be treated differently from the accused who
seeks trial involving considerable time, cost and money and cost of the
community.

14.10.2 The Law Commission in its 142nd report stated that it is desirable to
infuse life into reformative provisions embodied in Sec.360 CrPC and the
Probation of Offenders Act which according to the Law Commission remained
unutilised. Law Commission noted the advantages of plea-bargaining which
ensures speedy trial with benefits such as end of uncertainty, saving of cost of
litigation, relieving of the anxiety that a prolonged trial might involve and
avoiding legal expenses. The Law Commission also noted that it would enable
the accused to start a fresh life after undergoing a lesser sentence. Law
Commission noted that about 75% of total convictions are the result of plea-
bargaining in USA and they contrasted it with 75% of the acquittals in India.
Law Commission also observed that certainly plea-bargaining is a viable
alternative to be explored to deal with huge arrears of criminal cases. The same
might involve pre-trail negotiations, and whether it is “charge bargaining” or
“sentence bargaining” it results in a reduced sentence and early disposal.

14.10.3 The Law Commission adverted to the views of the Indian Supreme
Court in this regard but however stated that plea-bargaining can be made one of
the components of the administration of the criminal justice and the
only caveat that they entered is that it should be properly administered
and they recommend that in cases where the imprisonment is less
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than seven years and / or fine may be brought into schemes of things where plea
bargaining should be there and they also stated that in respect of nature and
gravity of the punishment quantum of punishment could be brought down but
unlike in the United States, where plea bargaining is available for all the crimes
and offences plea-bargaining in India should not be extended to socio economic
offences or the offences against women and children.

14.10.4 As recommended by the Law Commission when the accused makes a

plea of guilty after hearing the public prosecutor or the de facto complainant the
accused can be given a suspended sentence and he can be released on probation or
the court may order him to pay compensation to the victim and impose a sentence
taking into account the plea bargaining or convict him for an offence of lesser
gravity may be considered. Taking into account the advantages of plea-bargaining,
the recommendations of the Law Commission contained in the 142nd report and the
154th report may be incorporated so that a large number of cases can be resolved
and early disposals can be achieved. By no stretch of imagination can the taint of
legalising a crime will attach to it. It should not be forgotten that already the
Probation of Offenders Act gives the court the power to pass a probation order.
Further the power of executive pardon, power of re-mission of sentences have
already an element of not condoning the crime but lessening the rigour or length of
imprisonment. In imposing a sentence for a lesser offence or a lesser period the
community interest is served and it will facilitate an earlier resolution of a criminal
case, thus reducing the burden of the court. Perhaps it would even reduce the
number of acquittals for after prolonged trial it is quite possible that the case may
end in acquittal. If the compounding offences is there in the statute even under old
Cr.P.C. there is no reason why, when the accused is not let off but he is sentenced
for a lesser sentence plea bargaining should not be included in the Criminal Justice
System, so that the object of securing conviction and also reducing the period of
trial can be achieved and reduced pendency can also be achieved in “one go”.

14.10.5 The Law Commission after thorough examination of the subject of

plea-bargaining/compounding/settlement without trial has in its 142nd and 154th
reports made detailed recommendations to promote settlement of criminal cases
without trial. As the Committee is substantially in agreement with the views and
recommendations of the Law Commission in the said reports it considers
unnecessary to examine this issue in detail.

14.10.6 However, the Committee is of the view that in addition to the

offences prescribed in the Code as compoundable with or without the order of
the court there are many other offences which deserve to be included in the list
of compoundable offences. Where the offences are not of a serious character
and the impact is mainly on the victim and not on the values of the
society, it is desirable to encourage settlement without trial. The Committee
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feels that many offences should be added to the table in 320(1) of the Code of
Criminal Procedure. The Committee further recommends offences which are
compoundable with the leave of the court, may be made compoundable without
the leave of the court. These are matters which should be entrusted to the
Committee.
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RECLASSIFICATION OF OFFENCES _

15.1 NEED FOR CLASSIFICATION

15.1.1 India inherited the present system of classification of offences from

its colonial rulers more than 140 years back, in which the police are the primary
enforcers of the law. Considering the nature of the impact of colonial law
making, suffice it to say that it is time to reexamine and reframe the laws as
appropriate to the twenty first century Indian society and its emerging
complexities.

15.1.2 Many countries in the world have started their own initiatives in
improving their domestic Criminal Justice Systems. England, USA and
Australia are all in the process of charting out reforms. As societies continue to
change, crimes become complex and new crimes emerge, it is imperative for
India to work out a comprehensive Criminal Justice System, suited to the ethos
of this country.

15.1.3 As the aim of the Committee is to make the Criminal Justice

System just, efficient, speedy and cost-efficient, time has come to re-examine
and re-define crime under the various laws in the Criminal Justice System to
ensure that appropriate procedures
will be available for different As the aim of the Committee is to make
infringement of penal laws so that the Criminal Justice System just,
cases will be dealt with at a speed efficient, speedy and cost-efficient, time
commensurate to the gravity of the has come to re-examine and re-define
infringement, with certainty in terms crime under the various laws in the
of time and punishment. For, what Criminal Justice System to ensure that
were considered serious crimes appropriate procedures will be available
yesterday may not be so considered for different infringement of penal laws
today. The matter is all the more so that cases will be dealt with at a
urgent as the Criminal Justice speed commensurate to the gravity of
System has virtually broken down the infringement, with certainty in terms
of time and punishment.
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under the weight of case burden and a thorough overhaul is essential to make it
speedy, efficient as well as cost-effective.

15.1.4 If the Criminal Justice System were to increase its efficiency in

rendering justice and become as quick as it is fair, it would restore the
confidence of the people in the system. Towards this, it is necessary to not only
re-classify crimes but re-classify them in such a manner that many of the
crimes- which today take up enormous time and expense- are dealt with
speedily at different levels by providing viable and easily carried out
alternatives to the present procedures and systems. In brief, many infractions of
the law which are classified as crimes today - and some considered serious, may
not be so considered tomorrow.

15.2 CLASSIFICATION OF CRIMES/OFFENCES

15.2.1 The basis for the classification of crime is that contained in the
Indian Penal Code (IPC) and the Criminal Procedure Code (Cr.P.C). But, over a
period of time, various statutes have been added with different provisions about
evidence, burden of proof etc., and often, the crimes themselves are not of the
kind covered in the IPC; in fact, many of the special laws relate to social
inequities. All these have only added to the burden of work on the Criminal
Justice System. Further, with the changing views of what constitutes crime all
over the world and not just in India, unless there is a re-look at the classification
also, it will be difficult to work out appropriate prevention and detention
strategies for different kinds of offences which are now clubbed together as
crime. Under the Code, offences are broadly classified into four categories as
indicated in the following paragraphs.

15.3 Cognizable Offences

15.3.1 Cognizable offences are offences for which a police officer may
arrest without warrant and without the orders of a magistrate. In non-cognizable
offences, a police officer cannot, in general, arrest a suspect without warrant or
without the orders of a magistrate. The police officer can entertain only
cognizable offences and the victim of a non-cognizable offence has to move the
court with a complaint. This distinction deserves to be done away with.

15.3.2 Offences are classified as bailable and non-bailable: A bailable

offence is one in which the accused has a right to be released on bail. In a non-
bailable offence, the court can refuse bail to the accused.
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15.4 Summons and Warrant Cases

15.4.1 Summons cases relate to offences punishable with either only a

fine or with imprisonment not exceeding two years. All other cases are called
warrant cases.

15.5 Compoundable and Non-compoundable offences

15.5.1 Compoundable offences are offences that can be compounded with

or without the permission of the court. Non-compoundable offences, naturally,
are those that cannot be compounded.

15.5.2 The source for determining the category under which an offence
falls is available in the First Schedule of the Code.

15.6 SENTENCING P OWERS OF COURTS

1. The High Court may pass any sentence authorised by law;

2. The Sessions Judge or the Addl. Sessions Judge may pass any
sentence authorized by law but a death sentence passed by the
Judge has to be confirmed by the High Court;
3. The Assistant Sessions Judge may pass any sentence except for
death sentence or life imprisonment or imprisonment of over 10
years;
4. The Chief Judicial magistrate and Chief Metropolitan Magistrate
can pass sentence under 7 years imprisonment;
5. Judicial Magistrates First Class and Metropolitan Magistrates can
pass sentence upto 3 years or a fine upto Rs 5000/- or both;
6. Judicial Magistrates II Class can sentence upto 1 year and a fine
of upto Rs 1000/- or both.

15.6.1 Thousands of cases are pending before different criminal courts.

Once the process is set into motion, the difference between serious offences and
petty offences is lost and undifferentiated. This in effect, is the problem.
Reclassifying of offences makes no sense in isolation; it has to be accompanied
by suitable change in procedures.

15.6.2 The concept or understanding of crime is changing with changes in our

Society. Under our existing system, all crimes are treated alike. This is inadequate and
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inappropriate for dealing with new emerging crimes like, for example, cyber
crimes, financial crimes or crimes of terror;

15.6.3 Clubbing all existing crimes together procedurally is not sound nor
does it work. Some crimes may be of a correctional nature, some petty and
many may really form part of social
welfare legislation. These need to be Clubbing all existing crimes
reclassified, put into separate categories so together procedurally is not
that the law enforcement systems can sound nor does it work. Some
attend to the more serious crimes, which it crimes may be of a correctional
is intended to handle; nature, some petty and many
may really form part of social
welfare legislation.
15.6.4 The only agency, which bears
the brunt of investigation of crimes, is the
police force. The police is understaffed, overworked, ill equipped and certainly
cannot meet the demands placed upon it. Reclassification and removal of legal
infractions from them so that they can be dealt with by other agencies, will
contribute to greater efficiency of the Criminal Justice System.

15.6.5 The nature of crimes and the way to deal with them calls for a
multi-disciplinary approach. Social, psychological and economic causes
contribute to the occurrence of crime and, therefore these causes must be borne
in one’s mind in dealing with crimes. The corrective/punitive measures
The nature of crimes and the way required to deal with them will need to
to deal with them calls for a multi- be worked out;
disciplinary approach. Social,
psychological and economic causes 15.6.6 Cost is an important reason
contribute to the occurrence of for re-classifying crime. Of course,
crime and, therefore these causes there is an economic cost, borne by the
must be borne in one’s mind in State ultimately and in many cases, by
dealing with crimes. the victim of the crime. There are also
other costs – time, efficiency and lastly,
social costs. An efficient
reclassification will automatically bring down all these costs.

15.6.7 In brief, reclassification will, to a large extent address and remedy

the lacunae of the present Criminal Justice System.

15.6.8 Thus the need to reclassify crime today is both urgent and
compelling. Offences range from the most heinous crime such as murders to a
minor offence of appearing in a public place in drunken state.
The result is that individuals once they are convicted for a
185

minor offence get labeled as criminals and this stigma makes it difficult for
them to get jobs and even a chance to reform and become useful members of
Society. Where such persons are sent to jail, they often come under the
influence of hardened criminals and gravitate towards a life of crime. This is
one of the reasons for suggesting fine and not imprisonment as the only
punishment in respect of large number of minor offences. This logic equally
applies to increasing the number of compoundable offences which while
satisfying the victim do not affect societal interests.

15.6.9 Relevant factors are the following: -

?? Nature of the offence;
?? Degree of violence;
?? Extent of injury to the victim
?? Extent of damage to property;
?? Impact on the society;
?? Any discernible behaviour pattern in commission of the offence;
?? Whether alternative methods of dispute resolution like
compounding or settlement would be adequate.
?? Whether the victim should be compensated monetarily;
?? The punishment prescribed by law for the offence and whether
that is appropriate to the act.

15.6.10 Taking into consideration the above factors, it should be decided

whether for each of the offences the accused should be inflicted punishment of
fine or imprisonment, whether the accused should be arrested or not, whether
the arrest should be with or without the order of the court, or whether the
offence should be bailable or not and whether the offence should be
compoundable or not and if compoundable, whether with or without the order of
the court.

15.6.11 As is done in some countries it may be considered to classify the

offences into three Codes namely (1) The Social Welfare Offence Code (2) The
Correctional Offence Code, (3) The Criminal Offences Code and (4) The
Economic and other Offences Code.

15.6.12 A Social welfare offences Code would include offences that are
social in origin or nature and cover offences that might be prevented through
awareness programmes. For such offences community service is preferred to
jail sentence.

15.6.13 The Correctional offences Code would include non-cognizable

offences that are punishable with less than 6 months imprisonment, which need
not be considered as crimes.
186

They are considered as “correctional” offences for which fine is the only
punishment to be paid to the victim or state as case may be, or through
counseling. All these offences are not arrestable.

15.6.14 The Criminal Offences Code would include all major/grave

offences involving violence. Basically, this would really be the “crime” part of
the offences. The enforcement agency would be the police and punishment will
be imprisonment and fine. All the offences that fall within this category will be
arrestable and mostly non-compoundable.

15.6.15 The Economic and other Offences Code would include all
economic offences, like tax fraud, money laundering, stock market scams and
also offences like cyber crimes, intellectual property violations etc. Although
these are all clubbed together here, they will still require specialized, separate
agencies that are responsible for dealing with them. Punishment will again have
to, perhaps, be a combination of punitive fines and jail and community service.
As reclassification into four codes discussed above is an important policy matter
that requires greater and in depth study.

15.6.16 The Committee has made several recommendations for

modification of some of the fundamental principles governing the Criminal
Justice System and for improving the performance of the functionaries of the
Criminal Justice System, namely the investigation, prosecution and the
judiciary. Over the years crime scenario has changed enormously. Terrorism,
Organised crimes, Economic crimes and several other new kinds of crimes have
thrown serious challenges to the system. The law breakers appear to be
emerging stronger than the law
The Committee recommends a
enforcing agency. The Indian Penal
comprehensive review of the Indian
Code was enacted in the year 1860,
Penal Code, the Evidence Act and
the Evidence Act was enacted in the
the Criminal Procedure Code by a
year 1872 and the Code of Criminal
broad based Committee representing
Procedure which was enacted in the
the functionaries of the Criminal
year 1898 was replaced by the new
Justice System, eminent men and
Code in the year 1973. These laws
women representing different
enacted long back are now found to
schools of thought, social scientists
be inadequate to meet the new
and vulnerable sections of the
challenges. People are losing faith
society to make recommendations to
and are rightly demanding stronger
the Parliament for stronger and
laws and greater functional
progressive laws for the Country.
efficiency of the System. Hence
there is a need of review all these
laws. This is not an exercise to be carried out only by lawyers
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and judges. They involve important policy considerations such as Problems of

National Security and interests of different sections of the society more
particularly of Women, Children and other weaker sections of the Society.
Hence the Committee recommends a comprehensive review of the Indian Penal
Code, the Evidence Act and the Criminal Procedure Code by a broad based
Committee representing the functionaries of the Criminal Justice System,
eminent men and women representing different schools of thought, social
scientists and vulnerable sections of the society to make recommendations to the
Parliament for stronger and progressive laws for the country.
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189

OFFENCES AGAINST WOMEN _

16.1 MAINTENANCE OF WIVES, CHILDREN AND PARENTS: SECTION 125 CR.P.C

16.1.1 Section 125 of the Code provides for giving maintenance to the
neglected wife, child etc. The object is to prevent starvation and vagrancy by
compelling the person to perform the obligation which he owes in respect of his
wife, child, father or mother who are unable to support themselves.

16.1.2 A woman in a second marriage is not entitled to claim maintenance

as in law a second marriage during the subsistence of the first marriage is not
legal and valid. Such a woman though she is de facto the wife of the man in law
she is not his wife. Quite often the man marries the second wife suppressing the
earlier marriage. In such a situation the second wife can’t claim the benefit of
Section 125 for no fault of hers. The
husband is absolved of his The definition of the word ‘wife’ in
responsibility of maintaining his Section 125 should be amended so as
second wife. This is manifestly unfair to include a woman who was living
and unreasonable. The man should with the man as his wife for a
not be allowed to take advantage of reasonably long period, during the
his own illegal acts. Law should not subsistence of the first marriage.
be insensitive to the suffering of such
women. Therefore the Committee suggests that the definition of the word
‘wife’ in Section 125 should be amended so as to include a woman who was
living with the man as his wife for a reasonably long period, during the
subsistence of the first marriage.

16.2 MARRYING AGAIN DURING LIFE TIME OF HUSBAND OR WIFE- SECTION 494 IPC

16.2.1 Bigamy is made an offence under Section 494 IPC. The second
marriage is void by reason of it taking place during the subsistence of the first
marriage. In other words it would be bigamy only when the
marriage is otherwise valid. In AIR 1965 S.C. 1564 Bhan Rao
190

Shankar Lokhande vs. State of Maharashtra and AIR 1966 S.C. 619 Kunwal
Ram Vs. State of Himachal Pradesh, the Supreme Court has held that in order to
attract Section 494 IPC the prosecution has to prove that the second marriage
was validly performed as per the customary rights of either party under their
personal laws. If there is any lapse in following the customary rules, the second
marriage would be regarded as void. It is not always easy to prove long after
the marriage that all the rituals were duly performed. Thus the second wife will
be denied the right to receive maintenance. To overcome these practical
difficulties a suitable provision be incorporated to the effect that if the man and
the wife were living as husband and wife for a reasonably long period they shall
be deemed to have married in accordance with customary rites of either party
thereto. This shall be rebuttable presumption and the finding shall not be
binding in civil proceedings.

16.3 ADULTERY: SECTION 497 IPC

16.3.1 A man commits the offence of adultery if he has sexual intercourse

with the wife of another man without the consent or connivance of the husband.
The object of this Section is to preserve the sanctity of the marriage. The
society abhors marital infidelity. Therefore there is no good reason for not
meeting out similar treatment to wife who has sexual intercourse with a married
man.

16.3.2 The Committee therefore suggests that Section 497 I.P.C should be
suitably amended to the effect that “whosoever has sexual intercourse with the
spouse of any other person is guilty of adultery… … ..”.

16.4 CRUELTY BY H USBAND OR RELATIVE OF H USBAND – SECTION 498 OF IPC

16.4.1 This provision is intended to protect the wife from being subjected
by the husband or his relatives to cruelty. Cruelty for the purpose of this
Section means willful conduct that is likely to drive the woman to commit
suicide or cause grave injury or damage to life, limb or health, mental or
physical. It also includes harassment by coercing to meet unlawful demands.
This is a very welcome measure. But what has bothered the Committee are the
provisions which make this offence non-bailable and non-compoundable.

16.4.2 The woman who lives with the husband and his family after
marriage is expected to receive affection and caring and not cruelty and
harassment. True to the Indian tradition the woman quietly suffers without
complaining, many inconveniences, hardships and even insults with the sole
object of making the marriage a success. She even tolerates a husband with bad
habits. But then, when her suffering crosses the limit of tolerance she may even
191

commit suicide. For the Indian woman marriage is a sacred bond and she tries
her best not to break it. As this offence is made non-bailable and not
compoundable it make reconciliation and returning to marital home almost
impossible.

16.4.3 If the woman victim lodges an F.I.R alleging commission of

offence under Section 498A, her husband, in-laws and other relatives of the
husband would be arrested immediately. If she has no independent source of
income she has to return to her natal family where also support may not be
forthcoming. Her claim for maintenance would be honoured more in default
than in payment especially if the husband has lost his job or suspended from his
job due to the arrest. Where maintenance is given, it is often a paltry sum.
(Thus the woman is neither here nor there. She has just fallen from the frying
pan into the fire.) Even when there is a divorce, or reconciliation, the criminal
case continues as Section 498A is non compoundable.

16.4.4 In less tolerant impulsive woman may lodge an FIR even on a

trivial act. The result is that the husband and his family may be immediately
arrested and there may be a suspension or loss of job. The offence alleged
being non-bailable, innocent persons languish in custody. There may be a claim
for maintenance adding fuel to fire, if the husband cannot pay. She may change
her mind and get into the mood to forget and forgive. The husband may realize
the mistakes committed and come forward to turn a new leaf for a loving and
cordial relationship. The woman may like to seek reconciliation. But this may
not be possible due to the legal obstacles. Even if she wishes to make amends
by withdrawing the complaint, she can not do so as the offence is non
compoundable. The doors for returning to family life stand closed. She is thus
left at the mercy of her natal family.

16.4.5 This section, therefore, helps neither the wife nor the husband. The
offence being non-bailable and non-compoundable makes an innocent person
undergo stigmatization and hardship. Heartless provisions that make the offence
non-bailable and non-compoundable operate against reconciliations. It is
therefore necessary to make this offence (a) bailable and (b) compoundable to
give a chance to the spouses to come together.

16.5 RAPE: SECTION 375 OF IPC

16.5.1 Offence of Rape is defined in Section 375 of the I.P.Code in the

following terms:
A man is said to commit “rape” who, except in the case hereinafter
excepted, has sexual intercourse with a woman under circumstances
falling under any of the six following descriptions: -
Firstly – Against her will.
192

Secondly – Without her consent.

Thirdly – With her consent, when her consent has been obtained
by putting her or any person in whom she is interested
in fear of death or of hurt.
Fourthly – With her consent, when the man knows that he is not
her husband, and that her consent is given because she
believes that he is another man to whom she is or
believes herself to be lawfully married.
Fifthly – With her consent, when, at the time of giving such
consent, by reason of unsoundness of mind or
intoxication or the administration by him personally or
through another of any stupefying or unwholesome
substance, she is unable to understand the nature and
consequences of that to which she gives consent.
Sixthly – With or without her consent, when she is under sixteen
years of age’.
Explanation:Penetration is sufficient to constitute the sexual
intercourse necessary to the offence of rape.
Exception: Sexual intercourse by a man with his own wife, the
wife not being under fifteen years of age, is not rape.

16.5.2 It is clear from this provision that it is sexual intercourse with a

woman under circumstances falling under any of the six of the descriptions
given in the Section that constitutes an offence of rape. Normal sexual
intercourse with voluntary consent of the woman above sixteen years of age is
not an offence. The explanation to the Section says that penetration is sufficient
to constitute the sexual intercourse. There is no definition of rape or sexual
intercourse. The explanation only indicates the point of time or stage in the
sexual act that is sufficient to make the sexual act an offence of rape.

16.5.3 ‘Sakshi’ a leading women’s N.G.O. has filed W.P.Criminal 33 of

1997 against the Union of India praying that the offence of Rape defined under
Section 375 of the I.P.Code should be interpreted to include all other forms of
forcible penetration including penile/oral, object or finger/vaginal and object or
finger/anal. On that question the Supreme Court has sought the views of this
Committee. The considered opinion of the Committee to the Supreme Court is
that such an interpretation is not reasonable. As the opinion has to be sent to the
193

Supreme Court the same is not discussed here. However the Committee is
convinced that such acts constitute serious invasion of the precious rights of the
woman and should be punishable with adequate sentence.

16.5.4 The Committee therefore recommends that other forms of forcible

penetration including penile/oral, penile/anal, object or finger/vaginal and object
or finger/anal should be made a separate offence prescribing punishment
broadly on the lines of Section 376 of IPC.

16.6 RAPE AND DEATH PENALTY

16.6.1 There have been several shocking instances of rape that have given
rise to the feeling that death penalty should be prescribed as a punishment for the
offence of rape so that it acts as an effective deterrent. However international
opinion is steadily emerging in favour of abolition of death penalty. The Supreme
Court of India has ruled that in respect of serious offences of murder imprisonment
for life should be the normal punishment and that it is only in rarest of rare cases
that death penalty should be imposed. Those who are pleading for death penalty
for the offence of rape feel that the punishment now prescribed has failed to have a
deterrent effect. The view to the contrary is that the remedy should not be worse
than the disease. Death penalty is irreversible. Any erroneous decision would lead
to disastrous consequences. Judges are therefore likely to expect a much higher
standard of proof. This may result in further lowering the rate of conviction.
Besides if the rapist knows that rape carries death penalty he may be tempted to
kill the victim so that she will not be available to give evidence against him. After
giving its anxious consideration to all aspects and in particular the interest of the
victim, the Committee is not persuaded to recommend death penalty for the
offence of rape. Instead the Committee recommends sentence of imprisonment for
life without commutation or remission.

16.6.2 What really acts as a deterrent is certainty of conviction and not the
quantum of punishment that can be imposed. Unfortunately, large number of cases
relating to offences of rape end in acquittals. Besides they take a long time for
disposal. Therefore what is necessary is to expedite investigation and trial of cases
involving offences of rape and other sexual offences against women. In
Bangladesh, Prevention of Atrocities against women and Children Act 18 of 1995
has been enacted which provides that investigation and trial of rape cases should be
completed within 90 days. The Committee therefore recommends that so far as
offences of rape and other sexual offences against women are concerned, a suitable
provision should be made requiring the investigation agency to complete the
investigation within the prescribed time and for the court to dispose of such cases
on priority basis within a period of four months.
194

16.6.3 Many rape victims do not take steps for prosecution of the victim
because of the humiliating and agonizing treatment they are subject to when they
give evidence in the court. Lawyers go on asking questions about the character,
antecedents, behaviour and reputation of the victim and about sexual acts related to
rape which is a dreadful and shameful experience to the woman. Many Judges do
not regulate the cross-examination being utterly insensitive to the feelings,
reputation and image of the victim. The Committee welcomes the recent
amendment to section 146 of the Evidence Act by which cross-examination of the
prosecutrix as to her general immoral character in a case for prosecution for rape or
attempt to commit rape is prohibited. There is therefore need for specialized
training of Judges trying rape cases and to instill in them sensitivity to the feelings
of the victims.

16.7 FIRST INFORMATION REPORT

16.7.1 It is a matter of common knowledge that women in India are quite

reluctant to disclose even to their dear and near ones that they were victims of rape
partly because of the shame, apprehension of being misunderstood and fear of
consequences besides her deeply traumatized and confused state of mind. This
often contributes to delay in lodging FIR. Unexplained delay in submitting the FIR
often proves fatal to the prosecution. The Committee therefore suggests that a
suitable provision be incorporated in the Code fixing a reasonable period for
presenting FIR in such cases.
195

ORGANISED CRIME _

17.1 The Encyclopaedic Law Dictionary defines crime as "an act or

omission which is prohibited by law as injurious to the public and punished by
the State".? Certain kinds of wrongs are considered as of a public character
because they possess elements of evil which affect the public as a whole and not
merely the person whose rights of property or person have been invaded. Such
a wrong is called a crime. It can best be defined as any act of omission which is
forbidden by law, to which the punishment is annexed, and which the State
prosecutes in its own name.

17.2 Crime, in social or non-legal terms, is that "it is behaviour or an

activity that offends the social code"? . It has also been defined as an "anti-
social act".?

17.3 Organised crime, in the backdrop of the legal and non-legal

definitions, is far graver in nature as it is a "non-ideological enterprise"? which
functions as a "continuing enterprise that rationally works to make a profit through
illegal activities"? and is marked by a "distinguishing component" "within the
term itself, mainly, organization"? . Alan Block suggests that "organised crime is
part of a social system in which reciprocal services are performed by criminals,
their clients and politicians."? Thus organised crime is not just a manifestation of
deadly gangsterism but a "manifestation of criminals consolidated to commit
several crimes in pursuance of conspiratorial deliberations".? The California
Control of Profits of OC Act finds it of "conspiratorial nature and which seeks to
supply illegal goods and services such as narcotics, prostitution, loan sharking,
gambling and pornography, or that, through planning and coordination of
individual efforts, seeks to conduct the illegal activities of arson from profit,
hijacking, insurance fraud, smuggling, operating vehicle theft ring". It maximises
profits by and through illegal services. It is also not to be equated with
professional crime as it may encompass a series of inter-twined and inter-
dependant professional crimes. The concept of organised crime as a myriad of
mostly clandestine, diverse and complex activities, in the historical perspective
focuses on "equating organised crime with ethnically homogenous" groups which
was not accepted by the Federal Bureau of Investigation but, in
contrast, the Federal Bureau of Narcotics stirred the American nation
196

by their testimony that led the Kefauver Committee to assert the existence of
Mafia in the U.S.A.

17.4 On the perception of organised crime during the last 80 years,

Klaus Von Lampe perceives that "organised crime has evolved from an integral
facet of big-city life to an assortment of global criminal player who challenge
even the most powerful countries like the United States".

17.5 The United Nations recognised the adverse effect of the organised
crime as a serious social pathology and its impact on economy of any nation and
resultantly on the global economy. It underscored the social pathologies
flowing from it and, accordingly, deliberated on the issue of the Trans-Border
organised crime and has concluded a convention under which strict measures
have been suggested. The definition of organised crime in the convention is as
follows:
Organised Criminal group shall mean a structured group of three or
more persons existing for a period of time and acting in concert with
the aim of committing one or more serious crimes or offences
established pursuant to this Convention, in order to obtain, directly,
or indirectly, a financial or other material benefit.

17.6 By resolution 53/111, of 9th December 1998, the General

Assembly established an Ad Hoc Committee open to all States, for the purpose
of elaborating an international convention against transnational organised crime
and three additional international legal protocols. The Convention was
adopted after considerable debate in 1999 and 2000.

17.7 The Convention represents a major step forward in the fight against
transnational organised crime, and signified the recognition of U.N. member
states that this is a "serious and growing problem" which can only be solved
through close international cooperation. The Convention, concluded at the 10th
session of the Ad Hoc Committee established by the General Assembly to deal
with this problem, is a legally-binding instrument committing States which ratify it
to taking a series of measures against transnational organised crime. These include
the creation of domestic criminal offences to combat the frameworks for mutual
legal assistance, extradition, law-enforcement cooperation and technical
assistance and training. In its fight against organised crime with international
ramifications, the States rely on one another in investigating, prosecuting and
punishing crimes committed by organised criminal groups.
The Convention makes difficult for offenders and organised criminal
groups to take advantage of gaps in national law, jurisdictional problems or a lack
197

of accurate information about

the full scope of their activities. In its fight against organised crime with
international ramifications, the States rely
17.8 The Convention on one another in investigating, prosecuting
deals with the fight against and punishing crimes committed by
organised crime in general and organised criminal groups.
some of the major activities The Convention makes difficult for offenders
that transnational organised and organised criminal groups to take
crime is commonly involved in, advantage of gaps in national law,
such as money-laundering, jurisdictional problems or a lack of accurate
corruption and the obstruction information about the full scope of their
of investigations or prosecutors. activities.
To supplement this, two
Protocols also tackle specific areas of transnational organised crime which are
of particular concern to U.N. member states.

17.9 The Protocol against the Smuggling of Migrants deals with the
growing problem of organised criminal groups which smuggle migrants, often
at high risk to the migrants and at great profit for the offenders.

17.10 The Protocol against Trafficking in Persons deals with the problem
of modern slavery, in which the desire of people to seek a better life is taken
advantage of by organised criminal groups. Migrants are often confined or
coerced into exploitative or oppressive forms of employment, often in the sex
trade or dangerous occupations, with the illicit incomes generated going to
organised crime. The Protocols also commit countries which ratify them to
making the basic subject of the Protocol a criminal offence, and to adopting
other specific measures, such as controls on travel documents, to combat the
problem. These supplement the more general measures found in the
Convention, and countries must become parties to the Convention itself before
they can become parties to any of the Protocols. A third Protocol, dealing with
the illicit manufacturing of and trafficking in firearms, parts and components,
and ammunition, remains under discussion.

17.11 U NITED NATIONS CONVENTION AGAINST TRANSNATIONAL

ORGANISED CRIME AND SUPPLEMENTARY PROTOCOLS
Protocol to Prevent, Suppress and Punish Trafficking in Persons,
Especially Women and Children, supplementing the United Nations
Convention against Transnational Organised Crime.
Protocol against the Smuggling of Migrants by Land, Air and Sea,
supplementing the United Nations Convention against Transnational
Organised Crime.
198

Protocol against the Illicit Manufacturing of and Trafficking in

Firearms, their Parts and Components and Ammunition,
supplementing the United Nations Convention against Transnational
Organised Crime.

17.12 The Convention also aims to tackle the root cause of transnational
crime-profit and includes strong measures that will allow law enforcers to
confiscate criminal assets and hit money laundering network. Protection of
witnesses will be the prime tool for dealing with organised crime promoters and
beneficiaries.

17.13 India became a signatory to the U.N. Convention against

Transnational Organised Crime and its three supplementary Protocols referred
to above on December 12, 2002.

17.14 BRITAIN

17.14.1 In Britain, the law enforcement agencies are of the view that the
battle against organised crime has been lost. For this, Sir David Phillips, Chief
Constable of Kent and a leading member of the Association of Chief Police
Officers blames Britain's archaic Criminal Justice System and "the culture of
modern lawyers who do not fight cases on the evidence, but on legal
technicalities." Radical changes in law have been demanded or crime would
continue to rise. The Police in Britain have been advocating changes in law
which would force the defence to reveal as much of its case before trial as the
prosecution must reveal the other way. It has been acknowledged in Britain that
the present law is wholly inadequate in dealing with organised crime. It takes
massive Police resources to bring a case only to find that people escape not "on
the balance of evidence, but on technicalities". There has been an apprehension
that the British Government have no real response to organised crime.

17.15 GERMANY

17.15.1 Germany on account of its geographical location in the heart of

Europe, was significantly affected by organised crime. The free movement of
people across the border of Germany with France, Belgium, Luxembourg,
Netherlands and Austria, organised crime presenting its own challenges to the
German States and Society. The German Government responded by taking
measures to combat organised crime at both national and international level.

17.15.2 They concluded that organised crime is most prevalent in areas of

criminal activity
199

with a guarantee of large criminal profits and, at the same time, a lower risk of
discovery due to two reasons:
(i) there are no direct victims; and
(ii) the victims are unwilling to testify in court.

17.15.3 For the resolute suppression of organised crime, Germany enacted

legislations for suppression of drug, trafficking and other manifestations of
organised crime Money Laundering Act, Aliens Act with telephone monitoring
for the purposes of criminal proceedings and strengthened other criminal laws.

17.16 ORGANISED CRIME IN INDIA

17.16.1 Contrary to popular belief, Organised Crime as continuing illegal

activity of the members of a highly organised, disciplined association, engaged
in supplying illegal goods and services, is not a recent phenomenon in India.
The private ‘senas’in some parts of the country are reminiscent of private army
of lathaits and paiks maintained by the landlords of yore. With their help,
revenue rents were collected and land of the poor grabbed. Untold atrocities
were the order of the day and retribution visited upon those hapless have-nots of
society who did not fall in line. Gangs of robbers and dacoits, some of whom
acquired a Robinhood like image, have also existed for centuries. In the
erstwhile Bombay, Governor Aungier raised a militia of local Bhandari youths
to deal with organised street-level gangs that robbed sailors in 1669.

17.16.2 Thugee as an organised illegal activity on the G.T. Road flourished

in Central India till the 19th century with armed gangs of thugs, masquerading
as pilgrims or wayfarers, winning the confidence of unsuspecting travellers,
before looting and murdering them. The British Government deputed Sir
William Sleeman to eradicate the menace. Sleeman launched his legendary
campaign between 1831 and 1837 and crushed the thugee forever.

17.16.3 Organise
d Crime in its present Organised Crime in its present avatar began at
avatar began at Mumbai after independence with the introduction
Mumbai after of prohibition, which gave rise to a thriving and
independence with lucrative clandestine trade in illicit liquor.
the introduction of Bootlegging not only attracted the covetous
prohibition, which attention of hitherto loosely organised street level
gave rise to a gangs but also gave rise to syndicate type of illicit
activity.
200

thriving and lucrative clandestine trade in illicit liquor. Bootlegging not only
attracted the covetous attention of hitherto loosely organised street level gangs
but also gave rise to syndicate type of illicit activity. Slums are generally
regarded as the breeding ground of anti-social elements. These elements, in
organization with like minded people, started drug related offences, grabbing of
land in towns, cities and Government land in rural areas, boot-legging, immoral
trafficking etc. With the passage of time, the anti-social elements could strike
terror in an organised manner anywhere, any time, at their own sweet will. The
problem was first felt by the Government of Maharashtra, particularly, in and
around Mumbai. In order to tackle the feeling of insecurity created by them
among the general public, the Government of Maharashtra, in 1981, enacted the
Maharashtra Prevention of Dangerous Activities of Slumlords, Bootleggers,
Drug-offenders and Dangerous Persons Act, 1981to deal with slumlords who
have been taking illegal possession of public or private lands and constructing
illegal structures, selling and leasing them out at exorbitant prices, rents,
compensation and other charges. Criminal intimidation was the key to their
activities and often evicted or threatened to evict the occupiers by force, without
resorting to lawful means.

17.16.4 The bootleggers, directly or through their agents, illegally distil,

manufacture, transport, sell or distribute liquor, intoxicating drugs and other
intoxicants, which have injurious effect on public health and pose a grave
danger to the Society. Bootlegging has become a lucrative business and an
important source of acquiring tremendous money power, enabling them to hold
the community to ransom.

17.16.5 The drug-offenders manufacture, import, export, sell or distribute

drugs and cultivate plants for preparing intoxicants in contravention of the
provisions of the Narcotic Drugs and Psychotropic Substances Act, 1985.
These drug-offenders have been a serious threat to public health and a grave
danger to life, as well as adversely affecting the public order.

17.16.6 Further, notorious criminals in illegal possession of arms, including

fire arms, ammunitions, explosives and explosive substances, have formed into
organised gangs and have been indulging in killings, arson, looting, extortion and
other heinous crimes. These gangs have been creating serious problems of public
disorder in the country through gangsterism and terrorism. These gangsters
operate in nexus with anti-national elements and, with their money power, fund
terrorism in the country. It was only a matter of time before the gangs, which took
to bootlegging, became larger, more powerful and affluent, as well as influential.
The seeds of organised criminal activity sown in Mumbai city, was emulated in
different parts of the country. Today, Organised Crime is extensive in its network,
often transcending national boundaries, and using the most high-tech
communication systems, transport, arms and so on.
201

17.16.7 The fact that Organised Crime in India is rampant and is on the rise
does not require much debate. Extortions, kidnappings for ransom, gun
running, illicit trade in women and children, narcotic trade, money laundering,
using the hawala network, every conceivable kind of cheating and fraud, bank
scams and other forms of organised economic crime not only spreads a sense of
insecurity in the mind of a common man but also drains the country of
thousands of crores of rupees. What gets reported and investigated by the Law
Enforcement Agencies is only
a minuscule percentage of the The fact that organised crime in India is
overall quantum of organised rampant and is on the rise does not require
criminal activity. Though much debate. What gets reported and
Organised Crime has investigated by the Law Enforcement
originated at Mumbai, its Agencies is only a minuscule percentage of
tentacles have spread to other the overall quantum of organised criminal
parts of the country. Their activity. Though organised crime has
vice-like grip over illegal and originated at Mumbai, its tentacles have
evil activities of mafia in coal, spread to other parts of the country. Their
timber, sandalwood, lottery, vice-like grip over illegal and evil activities
real estate, tender, have not of mafia in coal, timber, sandalwood, lottery,
received media attention they real estate, tender, have not received media
deserved. However, what has attention they deserved. However, what has
been most disturbing is the been most disturbing is the inroad organised
inroad Organised Crime has crime has made into the political sphere in
made into the political sphere the country.
in the country. Over a period
of time, the political ambitions of persons with known criminal background
started seeking public and elective offices where once they would hesitated to
ask for a ticket for elections from any party. Indian political parties, irrespective
of ideological hue and complexion cannot disclaim responsibility for induction
of criminals into the election processes. The criminals’ support the political
parties in all possible ways to either continue in or to assume power.
Politicians not only hire anti-social elements to assist them in elections by
booth-capturing or any other subversive means but also to eliminate their rivals.
Murders of political workers, activists etc. by political rivals are assuring
serious propositions. The bonding between political parties and Organised
Crime is complete.

17.16.8 The nexus between crime and politics has permeated so far and
wide that the Government established a Committee "to take stock of all
available information about the activities of crime syndicates/ Mafia
organizations which had developed links with and were being protected by
Government functionaries and political parties." (Vohra Committee Report).
The concern by the country over the nexus between criminals, politicians and
202

bureaucrats, visible since 1986 in particular, was activated by the serial bomb
blasts of Bombay. The Vohra Committee observed:
An organised crime Syndicate/Mafia generally commences its
activities by indulging in petty crime at the local level, mostly
relating to illicit distillation/gambling/organised satta prostitution in
the larger towns. In port towns, their activities involve smuggling
and sale of imported goods and progressively graduate to narcotics
and drug trafficking. In the bigger cities, the main source of income
relates to real estate – forcibly occupying lands/buildings, procuring
such properties at cheap rates by forcing out the existing
occupants/tenants etc. Over time, the money power thus acquired is
used for building up contacts with bureaucrats and politicians and
expansion of activities with impunity. The money power is used to
develop a network of muscle-power which is also used by the
politicians during elections.
CBI has reported that all over India crime Syndicates have become a
law unto themselves. Even in the smaller towns and rural areas,
muscle-men have become the order of the day. Hired assassins have
become a part of these organizations. The nexus between the
criminal gangs, police, bureaucracy and politicians has come out
clearly in various parts of the country. The existing Criminal Justice
System, which was essentially designed to deal with the individual
offences/crimes, is unable to deal with the activities of the Mafia;
the provisions of law in regard to economic offences are weak; there
are insurmountable legal difficulties in attaching/confiscation of the
property acquired through Mafia activities.

17.17 LEGISLATION TO COMBAT ORGANISED CRIME

17.17.1 The National Security Act, 1980 was enacted by the Parliament to
provide for preventive definition, inter alia, for preventing persons from acting
in any manner prejudicial to the maintenance of public order. The provisions of
the Act are so general in character that it is difficult to bring effectively
mobsters engaged in organised crime and their activities within its purview. It
is difficult to establish nexus between the activities of these elements and the
public order within the meaning of the expression "activities prejudicial to the
maintenance of public order". National Security Act uses the expression
"public order" but does not define it.
203

17.17.2 The Government has referred the question of legislation for

confiscation of properties and assets of criminal and mafia elements to the
Committee. Affiliate to crime syndicate/mafia gangs grab a large number of
properties of helpless individuals by not only deceitful and fraudulent means but
also arm-twisting, extortion and threat to life. The uniform pattern is that a
criminal, with enormous financial and political clout, intimidates old aged persons,
single women and helpless individuals and makes them execute transfer documents
of their properties, under duress, after grabbing their premises. Because of
wrongful confinement, assault and criminal intimidation, fear and terror is created
among victims by using underworld connections resulting in the genuine owners of
properties feeling insecure in lodging complaints with law enforcing agencies.

17.17.3 While investigating the cases connected with the properties

usurped by a gangster or underworld criminal, the investigation gets hamstrung
as it is observed that the existing legal framework (i.e. procedural laws
including section 102 of the Code of Criminal Procedure, 1973) is inadequate
for seizing/ attaching properties gained under duress or intimidation or
fraudulent means. There is no express legal provision akin to Criminal Law
(Amendment) Ordinance, 1944 which provides for attachment of illegally
acquired properties of public servants. The forefuture of properties of the
persons convicted of any offence under that TADA and/or POTA 2002 is
provided while NDPS Act provides forfeiture of properties in certain cases. The
Special Courts (Trial of Offence Relating to Transactions in Securities) Act,
1992 empowers the Central Government to appoint one or more "custodian"
who is authorized to notify any person in the official gazette involved in any
offences relating to transactions in securities and any property – movable or
immovable or both – belonging to any person so notified stands attached
simultaneously with the issue of the notification.

17.17.4 The existing provision in the Code of Criminal Procedure, 1973

empowers a police officer to seize any property which may be alleged or
suspected to have been stolen or which may be found under circumstances
which create suspicion of the commission of any offence. The expression
"property" in the section is without any specificity of being either movable or
immovable. Most of the State Governments who have gone in for legislation to
deal with situations arising out of the organised crimes have provided for
seizure of property thereunder for want of deficiencies in the procedural law.
The scope of Sections 102 of the Cr.P.C. empowers a police officer to seize
certain properties by taking of actual physical possession of some movable
property. The Rajasthan High Court has observed:
On a careful reading of Section 102 of the Criminal Procedure Code,
it is difficult to hold that this Section empowers a police officer to
seize immovable property like plots of lands, residential houses,
mountains, rivers, streets or similar properties.
204

17.17.5 The court arrived at this conclusion due to several reasons. One of
the reasons being that no useful purpose was going to be served by the seizure
of the immovable properties of the above so far as the pace of the investigation
was concerned. It further said that so far as the title to the immovable property
was concerned, it was a competent civil or revenue court which was empowered
by the law to adjudicate the disputed questions relating to title and that the
investigation by the police had nothing to do with the disputes relating to the
title to any immovable properties.

17.17.6 The reasons given by the Rajasthan High Court for arriving at the
above conclusions are clearly inconsistent with the ground reality in the
maintenance of law & order in general. If the police is not competent to seize
immovable property during an investigation, it may thwart a just and fair
investigation in as much as the investigation may be subverted by the person (s)
suspected to be involved in the crime.

17.17.7 Since the Code of Criminal Procedure, 1973 does not contain a
specific provision prescribing the procedure for the restraint and confiscation of
the proceeds of crime and instruments of crime, absence of law for attachment
and confiscation of illegally acquired properties on the same lines as in the
TADA, NDPS Act or Special Courts (Trial of Offences Relating to Securities
Act), 1992 does hinder investigating agencies. A specific provision in the basic
law would be more helpful and effective in dealing with criminals. Therefore, it
is recommended that a section may be inserted after section 102 of the Cr.P.C.,
1973 and numbered as section 102(A) be introduced in the Code of Criminal
Procedure, 1973 broadly providing the following: (i) restraints and confiscation
of the procees of crime: definition of instruments of crime, proceeds of crime,
seizure/confiscation/attachment etc.); (ii) provision for prescribing powers and
the procedures for restraint of the proceeds and instruments of crime; (iii)
provision prescribing the procedure for confiscation/seizure/attachment of
property; (iv) attachment / confiscation/ seizure of the property and all
instruments used for the offence or the proceeds derived from the commission
of offences; (v) an application being made to the Court clearly indicating as to
why the property is sought to be seized/confiscated/attached. The Code may
also provide that a property seized/attached/confiscated would be administered
in such manner as a Court may decide pending completion of trial for this
purpose and that the District Magistrate or Deputy Commissioner of the area in
which the property is located or an officer authorized by him may be designated
as Administrator.

1 Dr. Ayyar, Encyclopedic Law Dictionary

2 Ram Ahuja, Criminology
205

3 Ibid
4 Howard Abadinsky, The Mafia in America: An Oral History (NY).
5 Albanese Jay, Organised Crime in America (Ohis).
6 Albim Joseph, The American Mafia : Genesis of Legend (NY).
7 Block Alan, East Side-West Side Story: Organising Crime in New York
(1930-50).
8 Nair P.M., Combating Organised Crime.
206
207

FEDERAL LAW AND CRIMES _

18.1 One of the 'terms of reference' of this Committee is to examine the

feasibility of introducing the concept of “federal crime” which can be put on
List I in the Seventh Schedule to the Constitution. The suggestion to declare
certain crimes as federal crimes to enable a Central Agency to undertake
investigation, without any loss of time, was also referred to the Committee on
Police Reforms under the chairmanship of Shri K. Padmanabhaiya. The
Committee dealt with this matter in Chapter 17 of their Report.

18.2 The Committee on Police Reforms felt that there was a case for
declaring a very few selected categories of cases as federal offences and
cautioned that great care and restraint needed to be exercised in identifying
those crimes. It suggested the following criteria for the selection of crimes:
1. They have international implications;
2. They relate to the security of the nation (Treason);
3. They relate to the activities of the Union Government;
4. They relate to corruption in All-India Services;
5. Protecting Government currency;
6. Controlling national borders

18.3 The Committee stated that the following categories of crime can be
declared as federal crime:
(i) Terrorism and organised crime having inter-State and
international ramifications;
(ii) Crimes in special maritime and territorial jurisdiction of India;
(iii) Murder of Head of State, Central Government Minister, Judge of
the Supreme Court and internationally-protected persons;
(iv) Frauds, embezzlement and cheating in nationalized banks/Central
PSUs; Financial institutions;
(v) Tax offences involving Union taxes like Income Tax, Customs,
Central Excise, etc;
(vi) Counterfeit currency; money laundering;
208

(vii) Offences relating to art, treasures and antiquities;

(viii) Offences relating to hijacking of aircraft/ships;
(ix) Piracy on the high seas;
(x) Offences of the Central Government employees under the
Prevention of Corruption Act and related sections of the IPC;
(xi) Offences by officers of All-India Services under the Prevention
of Corruption Act, and related sections of the IPC.

18.4 In examining the concept of Federal offences/crimes and

establishment of a Federal Agency investigating those offences/crimes suo moto
needs to be examined with reference to the Constitutional Scheme on Relations
between the Union and the States. In The Framing of India's Constitution, it
has been observed that "The federal concept in India was not the product of a
gradual process of evolution but represented a decision which was somewhat
abruptly taken in 1930, as a result of the necessity of including the Indian States
within the Indian polity".

18.5 It also observed that till the commencement of the Government of

India Act, 1935, the Government of India was "subject to general and detailed
control by Secretary of State for India in responsibility to the British
Government and Parliament" (ibid). The distribution of legislative powers and
development of Seventh Schedule to the Constitution was discussed by the
framers of the Constitution at considerable length. The Government of India
Act, 1935 which was culmination of the discussions of the Round Table
Conference set up a federal polity in India, with a Central Government and
Provinces deriving their jurisdiction and powers by direct devolution for the
Crown. However, because of section 126 of the Act the powers of the Central
Government were circumscribed by the Governor General "acting in his
discretion".

18.6 The founding fathers of the Constitution listed the various subjects
for governance under three Lists, i.e. List I (Union List), List II (State List) and
List III (Concurrent List). Under the Union List only the Union Government
and under the State List only the State Governments have exclusive powers for
legislation. Under the Concurrent List, both the Union as well as the State
Governments have jurisdiction to legislate. The principle of Union supremacy
in the legislative sphere which underlines articles 246(1) and 254(2) is
recognized by most Constitutions which are admittedly "federal". The
Constitution of India, which is sue generis, harnesses the federal principles to
the needs of a strong Centre.

18.7 The National Commission to Review the

Working of the Constitution examined the Constitutional provisions
regarding Concurrent powers of legislation, analysing the
209

constitutional amendments enacted from time to time and judicial

pronouncements on major issues arising from concurrency. The Commission
observed that, on the whole, the framework of legislative relations between the
Union and the States, contained in articles 245 to 254 of the Constitution of
India has stood the test of time. In particular, the Commission felt that the
Concurrent List, List III in the Seventh Schedule under article 246(2) of the
Constitution of India has to be regarded as a valuable instrument for promoting
creative federalism that has made a major contribution to nation building. It
came to the conclusion that in the Commission's view there was no ground for
change in the existing Constitutional provisions.

18.8 As public order and crime control are the responsibilities of the State
Governments, they have to take action maintain tranquility in their respective
State. It has been the experience that the local law enforcement agencies, quite
often tend to look at the crimes from their own perception and with an objective of
crime control in their jurisdiction. In the process, the linkages between ordinary-
looking crimes and crimes against the State escape scrutiny or even attention.
Further, in majority of cases a full picture is not available to the State law
enforcement agencies. Even if the larger ramifications are understood, they are
evidently not shared with the Central Government and other affected States.

18.9 It has now become necessary to deal with crimes that will
undermine the national integrity within overall national security strategy.

18.10 In appreciation of the prevailing situation, suggestions have been

made in various fora that the Central Government should play a larger role in
internal security matters, particularly investigation of crimes against the State. At
present there is no Central Agency which can take up the investigation of crimes
having internal security dimensions. The Central Bureau of Investigation does take
up important cases on the request of the concerned State Governments. The fact,
however, remains that he primary charter of CBI is to deal with corruption cases
involving Central Government employees. The CBI has, however, tried to manage
criminal cases by creating a separate cell but the pointed attention that is required
to be given to this aspect is not feasible in the present structure. Secondly, the CBI
does not have original jurisdiction and cannot take up investigation of all cases due
to organizational inadequacies. In appreciation of the situation that stares us in the
face, there is an imperative need to have a Central Investigating Agency,
empowered to take cognizance of crimes against the Indian State. Maharashtra did
well to enact legislation exclusively to deal with Organised Crime, which has
proved to be extremely effective during the last four years. Andhra Pradesh,
Arunachal Pradesh and Karnataka adopted their own legislations on Organised
Crime. However, the question remains whether the States be left to have their
own legislation or a Central Act be promulgated on the subject.
With a view to combating a transnational phenomenon where
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the likes of Dawood Ibrahim, Tiger Menon, Iqbal Mirchi, all based in foreign
countries or operating from international lane of high seas, have to be
neutralized. They also quickly capitalize on estranged or hostile diplomatic
relations between countries to their advantage to escape the dragnets of law. In
this background, a unified framework to deal with Organised Crime, there
should be a Central legislation. Also, if it is left to the States to enact their own
laws, some of them would do it according to their time-frame and some others
may not do so at all. Even if they
To deal with organised crime
enact such a law, its efficiency
effectively, investigation has to be
could remain questionable because
conducted with Interpol, letters of
of the nature of crime being
request for extradition / deportation of
transnational or inter-state or both.
criminals to India have to be processed
To deal with organised crime
by Ministry of External Affairs with
effectively, investigation has to be
Foreign Embassies. It would, therefore,
conducted with Interpol, letters of
be prudent to have a Central legislation,
request for extradition /
which should provide a uniform legal
deportation of criminals to India
framework to deal with the problem on
have to be processed by Ministry
a national level keeping in view the
of External Affairs with Foreign
national interest. The power of
Embassies. Barring some States,
registration and investigation of cases
other States of the Union have yet
under a Central Act should be conferred
to legislate upon such a sensitive
on the State Police.
matter. It would, therefore, be
prudent to have a Central legislation, which should provide a uniform legal
framework to deal with the problem on a national level keeping in view the
national interest. The power of registration and investigation of cases under a
Central Act should be conferred on the State Police and follow the legislation
only when the States desire will they transfer investigation of cases to Central
Investigating Agencies, after due process of law, like giving formal consent u/s
6 of the Delhi Special Police Establishment Act by the State Government and
obtaining consent of the Central Government u/s 5 of the Act. Central
legislation should also provide adequate platform for international cooperation
in consonance with international treaties and conventions.

18.11 Such a system exists in other countries where Federal Governments

have a corresponding responsibility in prevention of crimes against the country.
In the United States, the Federal Bureau of Investigation (FBI) is entrusted with
the responsibility to take cognizance of offences affecting the security of that
country and investigate them. The FBI is the Federal Law Enforcement Agency
of the United States of America, authorized under law to investigate federal
crimes. About 200 crimes are listed in the Charter of FBI. Such a system is not
available in this country when the problems facing us are more complicated
than those in the United States of America.
211

18.12 Time has come when the country has to give deep thought for a
system of Federal Law and Federal Investigating Agency with an all-India
Charter. It would have within its ambit crimes that affect national security and
activities aimed at destabilising the country politically and economically. The
creation of the Federal Agency would not preclude the State Enforcement
Agencies from taking cognizance of such crimes. The State Enforcement
Agencies and the Federal Agency can have concurrent jurisdiction. However, if
the Federal Agency takes up the case for investigation, the State agencies' role
in the investigation would automatically abate. The State agencies may also
refer complicated cases to the proposed Federal Agency.

18.13 The Federal Agency may have concurrent jurisdiction over the
following categories of crimes:
i) Terrorist activities/war against the State
ii) Arms and drug trafficking
iii) Hijacking
iv) Money laundering
v) Crimes related to counterfeit currency
vi) Espionage
vii) Crimes targeting the national infrastructure.

18.14 It has been the experience that the cases relating to underworld
crimes/criminals are complex and there have been serious problems in gathering
evidence and getting witnesses. Further these criminals always hire the best
legal defence available who exploit every available technical weakness and ploy
to secure acquittal. Therefore, it is necessary that cases of terrorism are dealt
with in specially constituted federal courts.

18.15 Having agreed on the need for a Central legislation, the next step is
to emulate an available ready-made ideal model, like the Maharashtra Control
of Organised Crime (MCOC) Act, 1999. It is the result of diligent comparative
study of International legislations and has already been tried and tested with
adequate success. Special features of the Act are speedy trial by constituting
Special Courts and appointing special Public Prosecutors. The Act has adequate
safeguards to prevent its misuse, which are as under:
i. The Act can be applied only to criminals habitually committing
unlawful activities on behalf of or being the members of Organised
Crime syndicates, against whom minimum of 2 charge-sheets must
have been filed during the preceding 10 years, for offences
punishable with imprisonment for 3 years or more, and the courts
should have taken cognizance of the said charge-sheets;
ii. No offence can be registered, nor any information recorded
without prior approval of an officer not below the rank of Deputy
Inspector General of Police;
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iii. Officers not below the rank of Deputy Sp/ACP can only
investigate such offences;
iv. For filing charge-sheets, prior sanction of an officer not below the
rank of Additional DG (Commissioner of Police in Mumbai) is
essential
v. Punishment is also prescribed for public servants failing to
discharge their duties under the Act.

18.16 Since its enactment in 1999, 43 cases have been registered under
MCOC Act, of which 33 have been charge-sheeted. Of these, 6 cases have
already ended in conviction. The first, and one of the most important cases,
which ended in conviction, related to an incident in which the gangsters of
Chhota Shakeel gang made an unsuccessful attempt on the life of Shri Milind
Vaidya, ex-Mayor of Mumbai and sitting Corporator of Shiv Sena, by
indiscriminately firing from sophisticated fire arms, including AK-56 rifle. Of 9
gangsters arrested, 8 were chargesheeted and 1 was discharged for want of
evidence. Trial of the case concluded within 1 1/2 year from the date of its
registration and ended in conviction. Three accused were sentenced to death, 1
was imprisoned for life and 2 others sentenced to undergo 10 years’ rigorous
imprisonment. In addition, the accused were imposed a collective fine to the
tune of Rs. 1.5 crore.

18.17 However, going by the experience of the Maharashtra Police in

enforcing MCOC, 1999, the proposed Central Act could be made more effective
by the amendments to section 2(1) (e) and 2(1)(d) to specify that those who
commit offences like extortion, abduction and kidnapping for ransom, contract
killing, smuggling of contraband goods, collection of protection money, hawala
transactions, are liable to attract the provisions of the Act and in the case of
acquittal for want of proof a lack of evidence in the charge sheet filed earlier,
such a chage sheet should be taken into account to make a base under section
2(d). Section 3(4) needs amendment to define to identify a member of any gang
to prove as to who is the member and who is not. Provisions relating to
authorisation of interception of wire, electronic or oral communication needs to
be re-examined in the light of the Bombay High Court judgment of 5 March
2003.
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TERRORISM _

19.1 The genesis of terrorism, as a global problem, is attributed to

development of political situation in the World in late 60s. However, it is not a
modern phenomenon as it has been in existence since the days of ancient
Greece, in medieval Italy and in the 20th Century. The origin of the present day
terrorism can be traced to the Sinai War of June 1967 when in a few days Israel
decimated the armed forces of some of the Middle East countries and occupied
large tract of their land. The Arab world has since then been simmering with
anger and rage leading to the beginning of "contemporary wave of terrorism" in
the Middle East in 1968. The first manifestation of moving away from the
conventional war and confrontation between the Israeli and the Arab was the
seizure of an American Airline by a Palestinian sympathizer. Terrorism is no
longer a technique of protest but has become a global apparatus to challenge the
number one superpower in the unipolar world. What had not been reckoned
earlier was the way in which religion was to become enmeshed with the
political aspiration.

19.2 DEFINITION OF TERRORISM

19.2.1 It stands to reason that in order to combat an evil, its nature must
be explained in an acceptable definition. It is extremely difficult to offer a
precise and objective definition of terrorism which can be universally
acceptable. There are several reasons for this, namely:
(i) Terrorism takes different forms: although it is usually equated
with political subversion;
(ii) The criteria for defining the term 'terrorism' is generally
subjective since it is mainly based on political considerations and
is often employed by Governments;
(iii) It is used as an instrument of syndicated crime;
(iv) Above all, terrorism is prompted by a wide range of motives,
depending on the point in time and the prevailing political
ideology.

19.2.2 While discussing terrorism, it is difficult to define

"terrorism", as, during the last 40 years the forms of terrorism
have undergone metamorphose. However, one of the earliest
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definitions in the 20th century which comes to mind is the one given in Article 1
of the League of Nations Convention on Terrorism, 1937 which defined it as
"criminal acts" directed against a State and intended or calculated to create a
state of terror in the minds of particular persons, or a group of persons or the
general public. {UN Secretariat Study on Terrorism, UN Doc A/C.6/418,
Annexe I }. This definition has also undergone a change as terrorism is seen to
be about power – as a means to political power with full control of State
authority. There has been a good deal of debate on the desirability of having a
comprehensive definition as new trends and dangers have been revealed. This
definition could be general or enumerative or mixed or whether it should be
confined to individual and group terrorism or cover State terrorism as well and
whether it should exempt the struggles for self-determination from its scope or
embrace all situations alike

19.2.3 Dr. Justice A.S. Anand (as he was then) delivering the judgment in
H.V. Thakur vs. State of Maharashtra has perceptively dealt with the definition
of terrorism. He observed that:
Terrorism is one of the manifestations of increased lawlessness and
cult of violence. Violence and crime constitute a threat to an
established order and are a revolt against a civilized society.
"Terrorism" has not been defined under TADA nor is it possible to
give a precise definition of "terrorism" or lay down what constitutes
"terrorism". It may be possible to describe it as use of violence
when its most important result is not merely the physical and mental
damage of the victim but the prolonged psychological effect it
produces or has the potential of producing on the society as a whole.
There may be death, injury, or destruction of property or even
deprivation of individual liberty in the process but the extent and
reach of the intended terrorist activity travel beyond the effect of an
ordinary crime capable of being punished under the ordinary penal
law of the land and its main objective is to overawe the Government
or disturb harmony of the society or "terrorise" people and the
society and not only those directly assaulted, with a view to disturb
even tempo, peace and tranquility of the society and create a sense
of fear and insecurity. A 'terrorist' activity does not merely arise by
causing disturbance of law and order or of public order. The fall out
of the intended activity must be such that it travels beyond
the capacity of the ordinary law enforcement agencies to tackle
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it under the ordinary penal law. Experience has shown us that

"terrorism" is generally an attempt to acquire or maintain power or
control by intimidation and causing fear and helplessness in the
minds of the people at large or any section thereof and is a totally
abnormal phenomenon. What distinguishes 'terrorism' from other
forms of violence, therefore, appears to be the deliberate and
systematic use of coercive intimidation. More often than not, a
hardened criminal today takes advantage of the situation and by
wearing the cloak of "terrorism", aims to achieve for himself
acceptability and respectability in the society because unfortunately
in the States affected by military, a 'terrorist' is projected as a hero
by his group and often even by the misguided youth.

19.2.4 From the above, it is seen that the definition (of terrorism) has
eluded and has haunted countries for decades. The first attempt to arrive at an
acceptable definition under the League of Nations was stillborn.

19.2.5 If "terrorism" by nature is difficult to define, acts of terrorism

conjure emotional responses in those affected by it or after its effects. The old
adage, "one man's terrorist is another man's freedom freedom fighter" is being
practiced by Pakistan and other countries. The Federal Bureau of Investigation
has been using several definitions of terrorism which have been quoted in Arijit
Pasayat, J. in his judgement in Devender Pal Singh vs. State of N.C.T. of Delhi
& Anr. The definitions quoted therein are road-maps to understanding
"terrorism" and terrorist activities:
Terrorism is the use or threatened use of force designed to
bring about political change.
Brian Jenkins
Terrorism constitutes the illegitimate use of force to achieve
a political objective when innocent people are targeted.
Walter Laqueur.
Terrorism is the premeditated, deliberate, systematic murder,
mayhem, and threatening of the innocent to create fear and
intimidation in order to gain a political or tactical advantage,
usually to influence an audience.
James M. Poland

Terrorism is the unlawful use or threat of violence against

216

persons or property to further political or social objectives.

It is usually intended to intimidate or coerce a Government,
individuals or groups or to modify their behaviour or
polities.
Vice-President's Task Force
Terrorism is the unlawful use of force or violence against
persons or property to intimidate or coerce a Government,
the civilian population, or any segment thereof, in
furtherance of political or social objectives.
FBI
19.2.6 Notwithstanding the difficulties which militate against providing a
universally acceptable definition of the term, terrorism encompasses use of
violence of threat for acts directed against a country or its inhabitants or violation
of law and calculated to create a state of terror in the minds of the Government
officials, an individual or a group of persons, or the general public at large. This
process could be an individual-oriented but more than often it is organised groups
which embark on a journey of violence and quite occasionally mayhem. The
International Law Commission concluded that the following categories constitute
terrorist acts:
(i) Any act causing death or grievous bodily harm or loss of liberty
to a Head of State, persons exercising the prerogatives of the
Head of State, their hereditary or designated successors, the
spouse of such persons, or persons charged with public functions
or holding public positions when the act is directed against them
in their public capacity.
(ii) Acts calculated to destroy or damage public property or property
devoted to a public purpose.
(iii) Any act likely to imperil human lives through the creation of a
public danger, in particular the seizure of aircraft, the taking of
hostages and any form of violence directed against persons who
enjoy international protection or diplomatic immunity.
(iv) The manufacture, obtaining, possession or supplying of arms,
ammunition, explosives or harmful substances with a view to the
commission of a terrorist act.

19.2.7 The acceptability of violence in a society is key to whether terrorism

is perceived to be a valid form of protest and thus closely linked to the level of
support a group can hope to receive from their society at large. This does not
necessarily suggest that, if support is lacking, terrorists will renounce violence
because it is counter-productive. Part of their problem is that terrorist
organisations often have difficulties in moving away from violence.

19.2.8 Terrorism, as an effective weapon, has since appeared as a

serious challenge to the world order and cannot be overlooked
or washed away. In the words of Dr. R. Venkatraman,
217

the former President of India, the response to this "spectrum of challenges" has
to be "multi-dimensional". In his inaugural address at the 21st Annual
Conference of the Indian Society of International Law, he underlined the "need
to mobilize the processes of ratiocination that have taken the shape of legal
enquiry". He said that "lego-philosophic minds can arrest the world in so
arranging or ordering human affairs as to make them consistent with the
evolution of collective human thought. What is involved in the process is not
just the maintenance of the powers of the States or "order" but "order" with
"law". Within the boundaries of a State the balance is not so difficult to
maintain. But in trans-national affairs, the task becomes difficult".

19.2.9 The globalisation of terrorism, or organised violence, in contrast to

conventional war, is the one which
Acts of terrorism are well orchestrated
concerns the world. The acts of
by motley group of persons because of
terrorism, whatever be the
their perceived grievances or their anger
purpose, are aimed at creating an
against "targets chosen for their power
atmosphere of fear, apprehension
and importance aimed at paralysing
and destabilize the security
Government concerns". Terrorism has
systems apart from disturbing the
also been described as a proxy war, both
existing social order. The very
stealthy and clandestine.
fact that acts of terrorism are well
orchestrated by motley group of
persons because of their perceived grievances or their anger against "targets
chosen for their power and importance aimed at paralysing Government
concerns". Terrorism has also been described as a proxy war, both stealthy and
clandestine.

19.3 PAKISTANI LINK WITH INTERNATIONAL TERRORISM

19.3.1 During the period post September 11, 2001 investigations by

American authorities have unravelled the intricate network of terrorists. They
have once again revealed, how Pakistan and its proxies, had emerged as a center
for terrorist training for diverse groups and the inter-linkages between these groups
facilitated by availability of Pakistani territory. The main revelations have come
primarily from investigations into terrorist modules in South East Asia with direct
or indirect links to Al Qaida and with the participation of Pakistanis or the use of
the territory of Pakistan. One of the most dangerous "minds" and terrorists is
Khalid Shaikh Mohammed, a Pakistani, a radical Jihadist on a mission to destroy
America. He was as “architect" of the September 11 attacks [Newsweek: 22.9.02].
There was a colossal failure of intelligence agencies in the North
America and Europe as the terrorists used resources and facilities
to plan and execute acts of unprecedented violence by using airlines. Some key
conspirators in the Al Qaida attacks are still missing. The long shadow
war has just begun irrespective of whether Osama Bin Laden is alive or dead
218

while the powerful collaborator Saad Bin Laden [Osama's son] with Khalid
Shaikh Mohammad is pursuing the family business of real estate.

19.4 PAKISTAN'S P ROXY WAR AGAINST INDIA

19.4.1 Paksitan has always considered the partition of 1947 incomplete

as, according to the Muslim League concept of two-nation theory, Jammu &
Kashmir State was the main focus. It has made repeated attempts, though in
vain, to annex the State – first by pushing in "Kabailis" with the active support
of regulars, followed by three wars and an impudent intrusion in Kargil in 1999.
Each time the Indian nation has given them a befitting response.

19.4.2 Pakistan has not given up on Kashmir because its very existence
depends on keeping up a confrontation with India. It has, accordingly,
continued with the dispute one way or the other. The late Zulfiquar Ali Bhutto
first led Indira Gandhi into signing the Shimla Agreement in the way he wanted
it and reneged on it soon after the return to Pakistan. Not only he resiled from
the bi-lateral Shimla Agreement but threatened "thousand year war" against
India. From 1973 till the time he was deposed from political power, Bhutto
encouraged ISI to foment trouble in India from Punjab to the North East.

19.4.3 Since Pakistan found that it was making no headway in military

confrontation or cover war, it launched a proxy war against India. It was
discovered when the first batch of Pak-trained youth was arrested in September
1986 and the first Pak-trained militant, Aijaz Dar, was killed in an encounter on
18 September of that year.

19.4.4 The sentiments of disgruntled youth in J&K have been exploited. As

a consequence, Pakistan trained youth in subversive activities and equipped them
with sophisticated weapons. They were infiltrated in J&K to foment trouble. With
the fall in initial local support and pressure mounted by the security forces during
the early nineties, a new feature was introduced. This was systematic induction of
foreign mercenaries to prop-up the so-called 'jehad'. Pakistan embarked on a
virtual war by pushing in Pakistani and foreign mercenaries into the State. Today
what India facing in Jammu & Kashmir is not insurgency or indigenous militancy
but a clandestine or proxy war by Pakistan which is the epicenter of terrorism.
Pakistan was desperate to keep the military pressure on when it found number of
incidents and civilian killings reducing and, therefore, the overall security scenario
in 1999 assumed a new dimension when Pakistan attacked India across
Kargil. It was, however, counter-productive as Pakistan's reverses in
Kargil, made it more desperate. ISI through the pro-Pakistani terrorist
outfits have since then been desperately trying to step up violence with a focus
on demonstrative actions to destabilize the security forces and create communal
219

divide and by inducting more

foreign mercenaries. Usages of Today what India facing in Jammu &
suicide squads for stepping up Kashmir is not insurgency or indigenous
violence were also resorted by militancy but a clandestine or proxy war by
the terrorists' outfits. The Pakistan which is the epicenter of
militants, aided and abetted by terrorism. Pakistan was desperate to keep
Pakistan ISI, have caused the military pressure on when it found
number of incidents and civilian killings
enormous damage to the
reducing and, therefore, the overall security
Kashmiri people and its
scenario in 1999 assumed a new dimension
economy. The Kargil intrusion
when Pakistan attacked India across
changed the complexion of the
Kargil. It was, however, counter-
low intensity war by the Pakistan
productive as Pakistan's reverses in
and its official agency ISI. They
Kargil, made it more desperate.
embarked upon a well-planned
operation using a mix of
hardened and well-trained foreign mercenaries.

19.5 CROSS B ORDER TERRORISM – INVOLVEMENT OF P AKISTAN

19.5.1 It is estimated that a large number of foreign mercenaries has been

operating in J&K, at any given point of time, who have been pushed in by
Pakistan to sustain and retain control on the flagging militancy in the State.
These mercenaries belong mainly to Pakistan, POK and Afghanistan. However,
there are instances of terrorists from countries like Lebanon, Bahrain,
Bangladesh, Sudan, Egypt, Alergia, Uzbekistan and Nigeria operating in J&K,
which highlight the alarming role being played by Pakistan as an epicenter of
global terrorism. They train them as terrorists not only for infiltration into
Kashmir and other parts of the India but also for export of terrorism to other
parts of the world in the name of "jehad".

19.5.2 The terrorists continue to attack vulnerable targets including

members of minority Hindu community and political activists. Some
reprehensible attacks by terrorists were witnessed during 2001-2002. They
kidnapped, indulged in indiscriminate killing, bombed Stated Legislative
Assembly in Srinagar, killing Army personnel, including women and children,
and attacking at the Raghunath temple in Jammu city.

19.6 ANTI-TERRORISM LAW

19.6.1 In the background of need to combat escalating and disruptive

activities posing a serious threat to the integrity of the country, the Terrorist and
Disruptive Activities (Prevention) Act, 1985 was enacted on 23 May
1985 initially for a period of two years applicable to Punjab only.
However, in the context of continued terrorist violence and
220

disruption in the country, a fresh legislation was enacted with special provisions
for prevention of, and for coping with, terrorist and disruptive activities and
matters connected therewith and incidental threats. The Act was extended through
amendments in 1989, 1991, 1993 and finally expired on May 23, 1995. In the
overall view of security environment in the country, a replacement legislation was
considered necessary. The spread of tentacles of terrorism to other parts of the
country, on one hand, the acquisition of men and material [ranging from
sophisticated weapons, remote central devices, rocket-launchers etc.] on the other,
the new dimension called for a new legislation to deal with the situation. Before
the expiry of the said Act, the Criminal Law Amendment Bill, 1995 was
introduced in the Rajya Sabha on 18 May 1995.

19.6.2 Terrorist and Disruptive Activities (Prevention) Act, 1987

contained the following features:-
1. Section 3 (1) of the Act provides for definition of a terrorist act.
This section provides that whoever with intent to overawe the
Government as by law established or to strike terror in the people or
any section of the people or to alienate any section of the people or
to adversely affect the harmony amongst different sections of the
people does any act or thing by using bombs, dynamite or other
explosive substances or inflammable substances or fire-arms or
other lethal weapons or poisons or noxious gases or other chemicals
or by any other substances of a hazardous nature in such a manner
as to cause, or as is likely to cause, death of, or injuries to, any
person or persons or loss of, or damage to, or destruction of,
property or disruption of any supplies or services essential to the
life of the community, or detains any persons and threatens to kill
or injure such person in order to compel the Government or any
other person to do or abstain from doing any act, commits a terrorist
act.
2. Whoever commits a terrorist act if such act is resulted in death of
any person be punishable with death or imprisonment for life and
shall also be liable to fine. In any other case, the punishment is
imprisonment for a term which shall not be less than five years but
which may extend to imprisonment for life and shall also be liable
to fine.
3. TADA provides for minimum punishment of five years and
maximum of imprisonment of life for conspiring to commit or
knowingly facilitating the commission of terrorist act.
4. Whoever harbours or conceals any terrorist was to be punished with
imprisonment for a term which shall not be less than five years but
which may extend to imprisonment for life and shall also be liable
to fine.
5. Punishment for disruptive activities was imprisonment for a term
which shall not be less than five years but which may extend to
imprisonment for life.
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6. Disruptive activities mean any action taken whether by act or by

speech or through any other media which intent to disrupt
sovereignty and territorial integrity in India.
7. TADA also provided for minimum punishment of five years and
maximum of imprisonment for life for possession of certain
unauthorized arms.
8. It provided for forfeiture of property persons convicted of any
offence punishable under the Act. The Act enabled the Central
Government or a State Government to constitute one or more
designated court for particular area or for such cases or group of
cases.
9. The Act also gave power to the designated court try any other
offence with which the accused may be charged at the same trial if
the offence is connected with such other offence.
10. Under the TADA a designated court was to take cognizance of any
offence without the accused being committed to it for trial upon
receiving the complaint for a police report.
11. There was a special provision for summary trial of offences
punishable with imprisonment for a term not exceeding three years.
12. TADA provided that a confession made by a person before a police
officer not lower in rank than a Superintendent of Police was to be
admissible for the trial of such person for an offence under the Act.
13. It provided that trial of any offence by a designated court should
have precedents over the trial of any other case against the accused
in any other court.

19.6.3 There was considerable criticism against the misuse of the

provisions of the Act by the National Human Rights Commission, Minorities
Commission, International Human Rights Organisations like Amnesty
International and International Natural of Jurists on basically the following
charges:
i. Innocent persons being proceeded against or arrested under the
Act;
ii. Confession to the Police being admissible under the Act which
was odious to the established procedures of criminal justice;
iii. Minorities being targeted under the Act;
iv. Bail was not easily obtainable as the provisions of Bill in the Act
were illusory; and
v. Burden of proof was on the accused.

19.6.4 While deciding the constitutional validity of the provisions of the

Terrorist and Disruptive Activities (Prevention) Act, 1987, the Supreme Court
has, in its judgment in Kartar Singh Vs. State of Punjab, Judgments
Today 1994 (2) SC 423 at 494, laid down the following guidelines
so as to ensure that the confession obtained in the pre-indictment interrogation
222

by a police officer not lower in rank than a Superintendent of Police is not

tainted with any vice but is in strict conformity of the well recognised and
accepted aesthetic principles and fundamental fairness-
i. The confession should be recorded in a free atmosphere in the
same language in which the person is examined and as
narrated by him;
ii. The person from whom a confession has been recorded under
section 15(1) of the Act, should be produced before the Chief
Metropolitan Magistrate or the Chief Judicial Magistrate to
whom the confession is required to be sent under Rule 15(5)
along with the original statement of confession, written or
recorded on mechanical device without unreasonable delay;
iii. The Chief Metropolitan Magistrate or the Chief Judicial
Magistrate should scrupulously record the statement, if any,
made by the accused so produced and get his signature and in
case of any complaint of torture, the person should be directed to
be produced for medical examination before a Medical Officer
not lower in rank than of an Assistant Civil Surgeon;
iv. Notwithstanding anything contained in the Code of Criminal
Procedure, 1973, no police officer below the rank of an
Assistant Commissioner of Police in the Metropolitan cities and
elsewhere of a Deputy Superintendent of Police or a Police
Officer of equivalent rank, should investigate any offence
punishable under this Act of 1987;
v. The Police Officer if he is seeking the custody of any person for
pre-indictment or pre-trial interrogation from the judicial
custody, must file an affidavit sworn by him explaining the
reason not only for such custody but also for the delay, if any, in
seeking the police custody;
vi. In case, the person, taken for interrogation, on receipt of the
statutory warning that he is not bound to make a confession and
that if he does so, the said statement may be used against him as
evidence, asserts his right to silence, the police must respect his
right of assertion without making any compulsion to give a
statement of disclosure.

19.6.5 Besides, while upholding the validity of sections 16, 19 and 20(3) of
the Act, the Supreme Court made certain observations, emphasizing the desirability
of supplementing the law by making provisions therein.

19.6.6 Section 16(2) and (3) empowering the Designated Court to take
measures for keeping the identity and address of witnesses secret, was
assailed on the ground that these provisions turn a trial under the
provisions of TADA into a farce. In reply, it was contended that the
Legislature merely regulated the right to fair trial and the right of the accused to
223

effectively defend himself keeping in view the requirements of the situation

prevailing in terrorists affected areas where the witnesses were living in a reign of
terror and were unwilling to depose against the terrorists in courts for fear of
retribution or reprisal. While upholding these provisions in view of the
extraordinary circumstances, the Supreme Court observed:-
Therefore, in order to ensure the purpose and object of the cross-
examination, we feel that as suggested by the full Bench of the
Punjab and Haryana High Court in Bimal Kaur, the identity, names
and addresses of the commences; but we would like to qualify it
exception that it should be subject to an exception that the Court for
weighty reasons in identity and addresses of the witnesses especially
of the potential witnesses whose life may be in danger.

19.6.7 As regards section 19 of the Act, the Supreme Court adverted to some
of the practical difficulties based on which the validity of this section was assailed
and how these could be removed so that the Parliament may take note of them and
devise a suitable mode of redress by making the necessary amendments in the
appeal provisions. In this regard, the following observation made by the Supreme
Court can be referred to.
This predicament and practical difficulty, an aggrieved person has to
suffer can be avoided if a person who is tried by the Designated
Court for offences under the TADA but convicted only under other
penal provisions, is given the right of preferring an appeal before the
next appellate court as provided under the Code of Criminal
Procedure and if the State prefers an appeal against the acquittal of
the offence under the provisions of TADA than it may approach the
Supreme Court for withdrawal of the appeal or revision, as the case
may, preferred by such person to the Supreme Court so that both the
cases may be heard together.

19.6.8 As regards section 20(3) and 4(a) empowering the Executive

Magistrate and Special Executive Magistrate to record confessions or statements
and authorizing the detention of accused, it was contended that it was against
the very principle of separation of judiciary from the executive enunciated in
article 50 of the Constitution and therefore bad under articles 14 and 21 of the
Constitution. Negating this contention, the Supreme Court observed as follows:
Though we are holding that this Section is constitutionally
valid, we, in order to remove the apprehension expressed by
the learned Counsel that the Executive Magistrates and the Special
224

Magistrates who are under the control of the State may not be
having judicial integrity and independence as possessed by the
Judicial Magistrates and the recording of confessions and statements
by those Executive Magistrates may not be free from any possible
oblique motive, are of the opinion that it would be always desirable
and appreciable that a confession or statement of a person is
recorded by the Judicial Magistrate whenever the Magistrate is
available in preference to the Executive Magistrates unless there is
compelling and justifiable reason to get the confession or statement,
recorded by the Executive or Special Executive Magistrates."

19.7 CHALLENGE TO TADA: SHAHEEN WELFARE ASSOCIATION VS. U NION

OF INDIA

19.7.1 In a Writ Petition on TADA - Shaheen Welfare Association vs.

Union of India and others, the Supreme Court observed as follows :-
(i) Deprivation of the personal liberty without ensuring speedy trial
would not be in-consonance with the right guaranteed by article 21
of the Constitution. Of course, some amount of deprivation of
personal liberty cannot be avoided in terrorist cases, but if the
period of deprivation, pending trial, becomes unduly long, the
fairness assured by article 21 would receive a jolt. The Court also
observed that after the accused persons have suffered
imprisonment which is half of the maximum punishment provided
for the offence, any further deprivation of personal liberty would
be violative of the fundamental right visualized by article 21.
(ii) The Court observed that while it is essential that innocent people
should be protected from terrorists, it is equally necessary that
terrorists are speedily tried and punished. It also causes irreparable
damage to innocent persons who may have been wrongly accused
of the crime and are ultimately acquitted but to remain in jail for a
long period pending trial because of the stringent provisions
regarding bail under TADA.

(iii) The proper course is, therefore, to identify from the nature
of the role played by each accused person, the real hardcore
terrorists or criminals from others who do not belong to that
225

category and apply the bail provision strictly in so far as the

former class is concerned and liberally in respect of the later
classes.
(iv) When stringent provisions have been prescribed under an Act
such as TADA for grant of bail and a conscious decision has
been taken by the legislature to sacrifice to some extent the
personal liberty of an under trial accused for the sake of
protecting the community and the nation against terrorists and
disruptive activities or other activities harmful to society. It is
also necessary that investigation of such crimes is done
efficiently and adequate number of designated courts are set up to
book persons accused of such serious crimes. This is the only
way in which society can be protected against harmful activities.
This would also ensure that persons ultimately found innocent are
not unnecessarily kept in jail for long periods.

19.8 PREVENTION OF TERRORISM ACT, 2002

19.8.1 TADA lapsed on 23 May, 1995. However, taking into account the
terrorist activities of various groups in several parts of the country and the fact
that some of these groups are sponsored by foreign elements. The Government
came to the conclusion that alternative law to effectively deal with terrorism is
necessary. Pursuant to this, the Government enacted another Act namely, the
Prevention of Terrorism Act (POTA).

19.8.2 The essential points of difference between TADA and POTA are:
(i) Provisions allegedly misused / likely to be misused, are deleted
from the new legislation;
(ii) Section 5 of TADA Act, which had made unauthorized
possession of arms in a notified area, an offence, is deleted. The
Arms Act, amended already, provides for a deterrent punishment
for possession of certain classes of unauthorized arms.
Therefore, the need to repeat the provisions in the new legislation
was not felt. Further, this section is the one which is alleged to
have been most misused;
(iii) Section 15 of the TADA Act, which had provided that
confessions made to a Police Officer was admissible in evidence.
This was against the grain of the normal provision of the
Evidence Act where statements made to the police are not
admissible as evidence. In the new Act certain safeguards have
been incorporated;

(iv) Section 21(1)(c) and (d)of the old TADA Act had laid down
certain presumptions
226

relating to confessions. This section had provided that if it was

proved that one of the accused had made a confession that the
other had committed the offence, it was to be presumed that the
other (accused) had committed the offence. It also provided
that if it was proved that an accused had made a confession to
any person even other than a police officer, it was to be
presumed that he had committed such an offence. Since there
were allegations that these provisions had been misused, these
are not reflected in the new law.
(v) Section 20(8)(b) had provided that a Court shall not grant bail
unless it was satisfied that there are reasonable grounds for
believing that the accused was not guilty of an offence under
TADA. This provision had made it extremely difficult to obtain
bail in TADA cases. No such provision has been made in the
new law.

19.9 SAFEGUARDS

19.10.1 Under TADA Act, an appeal from the designated court/lay to the
Supreme Court. It was argued that under Indian conditions, with prevailing
poverty, it is difficult for people to approach straightaway the Supreme Court.
In the new legislation, an appeal is being provided to the High Court.

19.10.2 As suggested by the Supreme Court, a provision has been made

that investigation in the cases relating to terrorism and disruptive activities
should be done by an officer not lower in rank than that of an Assistant
Superintendent of Police or equivalent officer. This would reduce the misuse
substantially.

19.10 SALIENT FEATURES OF POTA

19.10.1 (i) Instead of being made a permanent feature under law, a time
limit of 3 years has been prescribed for the proposed Bill.
(ii) To have a sharper focus, the word “disruptive activity” was
substituted by “disruptive act”.
(iii) Keeping in view the possibility of misuse of the provisions even
for petty communal disturbances” or to alienate any section of
the people or to adversely affect the harmony amongst different
sections of the people” have been deleted.
(iv) The concept of knowledge was brought in for culpability
relating to “Whoever harbours or conceals, or attempt to harbour
or conceal any person knowingly that such person is a terrorist”.
(v) Similarly the concept of knowledge was brought in for offences relating to
227

disruptive activities and it was incorporated “Whoever harbours

or conceals, or attempts to harbour or conceal any person
knowingly that such person is disruptionist”. Further, clause
4(3)(b) relating to “Whoever predicts, prophesies or pronounces
or otherwise expresses in such a manner as to incite, advise,
suggest or prompt, the killing of” has been deleted as it was felt
that the construction is much too wide, and, could be misused.
(vi) The Review Committees both for the Centre as well as the
States have been provided with a statutory base and it has been
provided that a Judge of the High Court should be its Chairman.
(vii) Apart from reviewing the cases pending under POTA these
Review Committees will also review the cases under old TADA
Act.

19.10.2 From a comparative analysis of POTA and the American Law, it is

seen that POTA is in some way less stringent than the American Act. While the
“Terrorist Act” defined under section 3 of POTA prescribes punishment for an
over an act with a specific intention for a terrorist activity as a punishable
offence where as American Act on terrorism act on counter terrorism provides
punishment to a person even when he is likely to engage in terrorist activities.

19.10.3 The American definition of terrorism is far more comprehensive in

as much as (i) hijacking or sabotage, (ii) seizing or detaining, (iii) threatening to
kill or injure or to continue to detain another individual to compel a third person
including the Government organizations to do or abstain from doing any act as
conditions of release of the individual detained; and (iv) use of biological or
nuclear agent, is expressly included in the definition of terrorism.

19.10.4 Information on potential targets is included as terrorist’s activity in

American law. Transportation or communication of false documents or
identification or of weapons is expressly included as terrorist activity.

19.10.5 Soliciting, funding for terrorism or even soliciting the membership

of terrorist organizations is amongst terrorist’s activity regardless of its other
legitimate activity.

19.10.6 Terrorists Organisation is defined as an organisation, which by

itself or through a group engages in terrorist’s activity regardless of its other
legitimate activity.

19.10.7 U.S. Statute makes it an offence to carry weapons or explosives on

board on aircraft an offence punishable by 15 years. (section 104)
228

19.10.8 U.S. Statute makes the act of transfer of explosive material,

knowing or having reason to believe that such explosive material will be used to
commit a crime of violence punishable by 10 years.

19.10.9 The U.S. Act provides for removal of aliens on an application

made before the Special Curt designated with the certification of the Attorney
General that the aliens would pose a risk to national security. The Special Court
has been permitted under section 503(B) and (C) of Title (V) to consider the
classified information submitted in camera and ex parte make the determination
with regard to the release of the aliens pending hearing. The conditions for
release are similar to section 20(8) of TADA Act 1987 which has been
considerably diluted under POTA.

19.10.10 The U.S. Statute makes specific provision for funding for terrorist
related cases for various agencies like the FBI, Customs Services, Drug
Enforcement, Department of Justice, Department of Treasury (Sections 521-
527). Such provision for additional funding for creation of additional
infrastructure for investigation and trial of terrorist cases does not pose an
unplanned additional burden on the over burdened judiciary and other related
agencies, which have to deal with the problem of terrorism.

19.10.11 The U.S. Act makes comprehensive provision for assistance and
compensation to the victims of terrorism and designates funds for the purpose.
Such a provision in the Bill will standardize and streamline machinery for
compensation of victims of terrorist crimes.

19.10.12 The penalties prescribed for various terrorists’ offences are similar
or more stringent in the American Law compared to the Indian Act.

19.10.13 Prior to 1990, India had had put in strong measures, in separate
legislations to deal with smuggling, narcotics, foreign trade violation, foreign
exchange manipulations, as also legal provisions for preventive detention and
forfeiture of property to tackle such serious crimes. However, the draconian
Foreign Exchange Regulation Act, 1973 (FERA), was repealed, the
Government contemplated making a law to prevent money laundering but the
Prevention of Money Laundering Bill, 1998 did not materialize with FEMA and
there has been much laundering of money in the last 3 years. The new
legislation defines the offence of money laundering, as underlines with
international practices, as crime which in turn is considered to be in property or
value of such property derived as a result of criminal activity relating to a
schedule offence. The act has two parts and deals with sections 121 and 121A
of the Indian Penal Code and several offences under the narcotics, drugs and
229

Psychotropic Substances Act, 1985. The monetary limit has been prescribed
which was not provided for in the original 1998 money laundering Bill. This
offence now include murder, extortion, kidnapping, robbery and dacoity,
forgery of security, counterfeiting currency and bank notes, Prevention of Arms
Act, Wild Life Protection Act, 1972, trafficking of women and offences under
the Prevention of
Corruption Act, 1988. The The new legislation defines the offence of
illegal practices in money laundering, as underlines with
international trade are the international practices, as crime which in turn is
first and foremost sources considered to be in property or value of such
of illegal money which is property derived as a result of criminal activity
manipulated through relating to a schedule offence. This offence
value, quantity and now include murder, extortion, kidnapping,
description of traded robbery and dacoity, forgery of security,
consignments. Though counterfeiting currency and bank notes,
there has been criticism Prevention of Arms Act, Wild Life Protection
about the strength of the Act, 1972, trafficking of women and offences
Prevention of Money under the Prevention of Corruption Act, 1988.
Laundering Act, it still The illegal practices in international trade are
falls short of similar laws the first and foremost sources of illegal money
in the western world, which is manipulated through value, quantity
particularly United States and description of traded consignments.
and the European Union.
What is required is that the new law, in the present shape must be enforced with
greater rigour. Clearly the prevention of money laundering is essential for
safeguarding internal security. Given the close nexus between drug trafficking,
organised crime and terrorism it is essential to improve the effectiveness of the
law by providing sufficient resources on military and paramilitary forces and to
create and to strengthen the existing cadre, or better create a new cadre of
experts to deal with groups of crime which finance terrorism. An effective
coordination agency with wide powers would be necessary on the lines
suggested by the Vohra Committee in the Report on Criminalisation of Politics.

19.11 MONEY LAUNDERING, DRUG TRAFFICKING, NARCO-TERRORISM

AND F LOW OF F OREIGN F UNDS

19.11.1 The role of money laundering in promoting both terrorism and the
organised crime was recognized in recent years but adequate attention to
eliminate it was not given. While the western world has become wiser after
several terrorist attacks, the developing countries have been the arena for the
"game" for long time. The debilitating and far reaching effect of
turning a Nelsons eye to it has acted as a multiplier effect for promoting fraud,
230

corruption, the seepage of organised crime and acts of terrorism which have
taken their toll on economic development. The operators' vice-like grip on the
system of money laundering has to be dealt with firmly with stringent and
deterrent punishments.

19.11.2 The prevention of money laundering is essential for safeguarding

internal security. Given the close nexus between drug trafficking, organised
crime and terrorism, it is also necessary to improve the effectiveness of the
Narcotics Control Bureau.

19.11.3 The funds generated through illegal means may sometimes find
their way into the country through legal channels, for ostensibly supporting
activities covered under the Foreign Contributions Regulation Act (FCRA).
The end use of these funds be watched with diligence. Although it may be
desirable to check the donee accounts under the FCRA thoroughly cent percent
check of these accounts may be unmanageable and expensive exercise. A
proposal has been mooted to replace the FCRA with a new Act, under which
registration and monitoring of the recipients of foreign contributions would be
done at the district level. It is also proposed to involve the banks as an
independent channel of data collection and monitoring. Police on the receipt of
foreign contribution in border and coastal areas, as well as by religious
organizations be strengthened in such a way that funds are not misutilised for
anti-national activities. The new law must arm the Government with power for
control over the recipients of foreign contribution without compromising with
human rights or civil liberties.

19.12 STRENGTHENING THE STATE P OLICE

19.12.1 It is also necessary to take steps, in consultation with the State

Governments to identify factors responsible for weakening the functioning of
the State police forces. The morale of the Police Forces must be raised by
professional support in operational matters as also policies in regard to
promotions, transfers and tenures of police officers. The existing Police Act
must be replaced expeditiously by a new Police Act.
_____________________________________________

BIBLOGRAPHY

1. Christographer C. Harmon, Terrorism Today.

2. Gavin Cameron, Nuclear Terrorism A Threat Assessment for the 21st Century.
3. K. P. S. Gill, Terror and Containment Perspectives of India’s Internal Security.
4. K. R. Gupta, Anti-Terrorism Laws India, The United States, The United Kingdom and
Israel (Vol.I & II).
231

5. K. Santhanam Sudhir Sreedhar, Manish Saxena, Jihadis in Jammu and Kashmir.

6. Ram Ahuja, Criminology.
7. Rohan Gunaratna, Inside Al Qaida, Global Network of Terror.
8. Omer Yousif Elagab, International Law, Documents Relating to Terrorism.
9. S. Malik, Encyclopaedia of Terrorist Law.
10. Sunil Sondhi, Global Terror.
11. Annual Reports of Ministry of Home Affairs (From1998-99 to 2002-03).
12. Aakrosh: Vol.6. No.18.
232
233

ECONOMIC CRIMES _

20.1 In the earlier centuries, economies were simple and so were

economic crimes. In the last century, with the emergence and complexity of
industry and modern capitalism, economic crimes have increased in number and
complexity. More recently with the far-reaching recent changes in technology
and the emergence and change in the institutions and in the organisation of the
economic system, there has been a dramatic increase in the numbers and the
cost of economic crime. There has always been a public tendency to focus on
conventional crimes, especially violent ones, and except for occasional cases
such as the Harshad Mehta, Ketan Parekh and the Indian Bank scam (of over
Rs.800 crores), most economic crimes go insufficiently noticed, though their
impact in terms of financial loss to the Society and in terms of eroding the
credibility as well as the stability of the economic system is significant. With
the fast pace of advances in technology (and the Internet), that are changing the
way in which Government and Businesses operate and with quicker decision-
making, the impact is increasing. Though reliable statistics are hard to come by,
there have been major frauds, particularly in banking and the stock market
(often together) and in a lesser way, in credit card and computer crime, as well
as in some other areas. Apart from the
well known ones, there have been others Though reliable statistics are
such as the forged Kissan Vikas Patras, hard to come by, there have
Indira Vikas Patras and National Savings been major frauds, particularly
Certificates, the Gold scam case of in banking and the stock market
Ahmedabad, Cyberspace case of Unit (often together) and in a lesser
Trust of India and the Century Consultants way, in credit card and
Limited case of Lucknow. Further, the vast computer crime, as well as in
erosion in the value of Unit Trust of India some other areas.
(UTI) stocks which cannot be attributed
just to changes in the market is yet another example. There was also the case of
the failure of Non-Banking Financial Companies (NBFC), but, that was partly
the creation of regulatory agencies, which did not handle the matter properly.
The list is illustrative and is not exhaustive.
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20.2 DEFINITION

20.2.1 Earlier definitions of economic crimes would be inaccurate today

as generally, economic crimes are seen as newer versions (more technology
driven) of conventional crimes. The result is, the lack of accurate information
An economic crime could possibly be on these crimes, especially as
defined in a broad way keeping in mind there is no definition or proper
that it will need to be an ‘umbrella’ to classification. An economic
cover future offences too. Thus an crime could possibly be defined
economic crime is an illegal act (or set of in a broad way keeping in mind
acts) generally committed through that it will need to be an
misrepresentation or outright deception ‘umbrella’ to cover future
by an individual or a group with offences too. Thus an economic
specialised skills, whether professional or crime is an illegal act (or set of
technical with a view to achieve illegal, acts) generally committed
financial gain, individually or through misrepresentation or
collectively. outright deception by an
individual or a group with
specialised skills, whether
professional or technical with a view to achieve illegal, financial gain, individually
or collectively. A transaction of the value exceeding Rupees five crores involving
an illegal act or acts could be deemed to be a serious economic offence.

20.2.2 Such a definition would include all contemporary economic crimes,

would cover persons who are outside an organisation and would not be confined to
just non-violent white-collar crimes. This would also include Corporations and
members of professions such as the Law, Accounting, Management etc., and
would cover both Banking, non-Banking financial frauds, violations of the Stock
Market, Smuggling, Money Laundering, Intellectual Property Rights (IPR) related
offences, Insurance and Health frauds, IT related offences (cyber-crimes), Tele-
communication, Theft and misuse of Credit card & identity and Corruption.

20.2.3 There are over seventy Central Laws covering many offences apart
from those in the Indian Penal Code. To prevent and punish violations under
economic offences, there are large numbers of agencies with investigative and
quasi-judicial powers. As the magnitude of economic offences is enormous, it is
essential to make rigorous laws and strengthen the regulatory, investigation and
enforcement systems adequately.

20.3 THE LAWS

20.3.1 In the past few decades, attempts have been made to change both
the laws and procedures, which included:
235

i. Definition of new economic offences with enactment of special laws

and appropriate authorities with powers to prevent, investigate and
prosecute;
ii. The elimination or modification of mens rea in defining economic
offences;
iii. The shifting of the burden of proof or the power to Courts to make
presumptions under certain conditions;
iv. The extension of offences to preparation and attempt to commit
offences; and
v. Introduction of stringent measures such as Special Courts, denial of
bail/probation/privileges and civil rights, summary trial,
confiscation/forfeiture of property and even preventive detention.

20.3.2 The Legislature has responded by making new laws to tackle

economic crimes and the Courts have not been far behind. Yet, the Courts have –
being somewhat conservative in nature – stuck to the Constitutional guarantees of
fair trial though somewhat expansively. This combined with the delay inherent in
our judicial processes has assisted economic criminals immeasurably. This has
been worsened by judicial interpretation, which has distorted the legislative
intention of the special criminal laws. Interventions of the Court even at an early
stage of investigation have also thwarted administrative action and enforcement.

20.3.3 Recently there have been some encouraging judicial decisions of the
Apex Court reversing the earlier interpretations and tightening the system making
it more difficult for economic criminals to escape justice. It began with the
decision in Vineet Narain V. Union of India (1988 | SCC 266) where in the Court
attempted to save the investigating agency from unjustified political interference
by invoking what is called “continuing mandamus”. This action of the Supreme
Court resulted in giving some degree of professionalism and independence to CBI
and the central Vigilance Commission. It brought out the corruption and unfairness
involved in the so-called “single line directive” protecting corrupt senior officers
which the Court struck down. Deterrent punishment for economic offender is now
canvassed by the Supreme Court itself. It is difficult to predict whether these
decisions on economic crime will have the desired impact on the mindset and
practices prevailing in the Criminal Courts; even if it does, major problems still
remain, as will be seen later. However, public perception is that in the economic
sphere the enforcement of the laws is lax. Inspite of several agencies, there is an
impression that the State and its agencies are incompetent to deal with those who
commit major economic crimes.

20.4 VOHRA COMMITTEE REPORT, 1993:

20.4.1 In 1993, Government of India appointed a

Committee under the Union Home Secretary, which reported
on the activities of organized crime and the links between organised
236

crime and politics. The report revealed – not that it was unknown – the powerful
nexus between those who broke the laws especially economic laws, the
politicians and some of the functionaries of the Government especially in the
police, customs and direct and indirect taxes, all of which resulted in protection
of large scale economic crime and in those cases which became public, nominal
action was taken against the offenders which bore no relationship to the benefits
from crime.

20.5 THE MITRA COMMITTEE REPORT, 2001

20.5.1 The Report given to the Reserve Bank of India prefaced its report
by admitting the fact that criminal jurisprudence in the country based on “proof
beyond doubt” was too weak an instrument to control bank frauds. The
Committee contended that “Financial fraud is not an offence in spite of the fact
that the banks and financial institutions suffer heavily in frauds committed by
the borrowers, more often than not, in collusion with the employees of the banks
and financial insitutions… . the situation is becoming explosive and can lead to
anarchy at any time unless the scams are legally contained.”.

20.5.2 The Committee recommended a two-fold approach to tackle bank and

financial frauds. It suggested a preventive strategy by system reform through strict
implementation of Regulator’s Guidelines and insisting on obtaining compliance
certificates. Secondly, a punitive approach by defining “Scams” (financial frauds)
as a serious offence with burden of proof shifting to the accused and with a
separate investigating authority for serious frauds, and special Courts and
prosecutors for trying such cases and with increased powers to the investigating
agency of search, seizure and attachment of illegally obtained funds and properties.
The Committee suggested a Statutory Fraud Committee under the Reserve Bank of
India.

20.5.3 As it stands, the Criminal Justice System is ineffective in handling

major economic crimes. UK set up a Serious Frauds Office under the Criminal
Justice Act 1987 to deal with investigation and prosecution of serious economic
crimes with extensive powers including search and seizure. Similar arrangements
have been made in the European Union and in the U.S. In our Country too, we
need to put in place better legislation, improved Criminal Justice System and a
strong Regulatory enforcement system to prevent, investigate and prosecute major
economic crimes.

20.5.4 It will be useful to have a quick look at the various types of major
economic crimes (including cyber crimes), that have to be tackled so that we
can appreciate the extent and complexity of these crimes. This does not include
the conventional and organised crimes, which have been dealt with in the Penal
Code.
237

20.6 Banking and financial crimes: The traditional crimes in this area are
taking loans from banks with fraudulent project documents combined with under
invoicing and over invoicing to benefit the loanee, sometimes with the collusion of
bank officials. Some of the non-banking financial institutions have taken deposits
under false pretences promising all kinds of returns and cheating the depositors,
including the plantation type offers. There are also various types of cheques’
frauds. With the growth of online banking, traditional methods of embezzlement of
funds have fallen by the wayside as funds can be embezzled through wire transfer
or by taking over the accounts or loans can be taken with fraudulent applications
online, new accounts can be taken over by taking over the identity of the account
holder or one could hack into a bank’s payment system and take money. This is
often combined with bank fraud and includes stock manipulations, fraudulent
offering. The traditional pyramid schemes, which are not uncommon in our
Country, can now be done through the Internet. There is also the increasingly
common Internet fraud with on and off websites, fraudulent recommendations on
securities with several variations of these. The problems of insider trading, price
rigging, floating companies by fly-by-night operators with false prospectus etc., are
also yet to be seriously tackled; with the Internet the matter becomes somewhat
more complicated. It is interesting to note that in 1997 forging of cheques in the
U.S was well over $ 512 million. It was using by over 20% per year. Securities the
world over also runs to billions of dollars.

20.7 Money laundering: Another major problem, which is proposed to be

solved through a bill, is Money laundering. In 1998, the world wide money
laundering was estimated to be about $ 2.85 trillion. While legislation would
certainly help in prosecution, it will not be of much value unless proper preventive
arrangements are put in place. As filing of charge and prosecution takes time, there
should be scope for interim attachment of all properties including bank accounts
with the Court getting into investigating the nexus between crime and property.
There should be a lower monetary ceiling and insisting on all transactions through
cheques (unless in the case of banks, there should be arrangements for reporting
such deposits, when they are suspect), prohibition of 3rd party endorsements unless
the details in the transactions are made available and reporting by banks of all
transactions above a certain limit as well as other transactions which are suspect,
with suitable modification of banking secrecy clauses.

20.8 Insurance crimes: Insurance fraud which runs billions of dollars, the
world over, can be expected to be a growth sector and these can be committed
internally by Company officials and externally by applicants, policy holders, false
claimants etc., the fraud being in terms of inflated/false claims, fraudulent policies
or using misinformation for gain.

20.9 Credit card crimes: Fraud loss in the credit card industry, is over $
1.5 billion annually.
238

These are gradually increasing in our Country too and include counterfeit, stolen as
well as cards which were not received, taking over of credit card accounts, mail
order and transactions on the internet.

20.10 Health care frauds: The frauds in this area include inflated bills,
false claims and frauds in the purchase and use of pharmaceuticals and equipment.
These would be both in government and the private sector.

20.11 Telecommunications: Fraud in this sector is well over four billion

dollars an year. The main fraud here is in subscription or identity fraud as stolen
Ids or credit cards can be used for free service in anonymity and with impunity.
This includes telemarketing frauds. This kind of fraud is endemic and will increase.

20.12 Identity theft: This new type of offence consists of stealing of

identity nformatin and using it to obtain credit, hide from the law or live as a local
resident, without being entitled to. Fraud may be perpetrated against financial
institutions, government departments or other private companies or individuals,
using identity theft.

20.13 Intellectual Property and cyber crime: IP theft (copyright,

trademark) industrial/commercial secrets, cyber squatting etc., the cost of which
runs to a few hundred billion dollars every year in the US alone.

20.14 Computer Crime: Yet another new type of offence which covers
illegal access to information contained in a computer – whether privately or
publicly owned in which either fraud is committed using computers or used for
sending threatening messages. These could be used for activities threatening a
Country’s security.

20.15 Technology and crime: With increasing e-commerce, there is

increase in cyber economic crime. For every economic crime, there is a cyber
version with much more potential, larger profits and lesser risks. While the e-
commerce, as a system is speedy and efficient, its very speed and efficiency are
creating problems. The Internet has made all borders and legal jurisdictions
obsolete. Criminals can remain in one jurisdiction and commit crimes elsewhere
and avoid prosecution. Therefore, a high degree of co-ordination to prevent crime
and co-operation to prosecute and punish crime become essential especially as the
proceeds of these crime go into further crimes including drugs and arms.

20.16 Pornography (including child pornography):

These offences involve violence against women and children.
These offences would cover manufacture, possession and commercial
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use of pornography including child pornography, violence against women or

children and the enforcement of women/child support.

20.17 Crimes against the environment: Offences under any of the

various environment protection laws, which pose serious hazards to public
health.

20.18 Serious Frauds: It is true that while on and off, economic crimes
do come to the fore in press and parliament, they have not received the
importance they deserve in spite of their seriousness. Terrorism-both internal
and cross-border had taken the central stage in the last few years. The links
between terrorism and certain types of economic crimes gradually emerged
while at the same time unconnected scams and frauds also occurred. Therefore,
there is a crying need to deal with economic offences (including some cyber
offence) as a special category of offences and they have to be dealt with not
only in a manner different from other crimes but would also require a group of
highly trained experts with sufficient powers and resources to handle them.
Clearly, the existing laws and procedures are not equal to the task of handling
the more complex economic crimes; hence the need for the newly suggested
approach.

20.18.1 One possible option could be an Economic Offences Code on the

lines of the Criminal Justice Act, 1987 of the UK and the more recent Economic
Crimes and Anti-Money Laundering Act 2000 of Mauritius. The UK Act of
1987 which provides for special procedures for the investigation and trial of
serious frauds creates a Serious Fraud Office with an independent Director
under the Attorney General, with powers to investigate any suspected offence
which appears to him on reasonable grounds to involve serious or complex
frauds. The offences under this Act
are punishable up-to seven years One possible option could be an
imprisonment for not testifying or Economic Offences Code on the lines
giving false evidence or concealing of the Criminal Justice Act, 1987 of
evidence about serious frauds. the UK and the more recent Economic
Further, under this Act, cases Crimes and Anti-Money Laundering
involving serious frauds can be Act 2000 of Mauritius.
transferred to Crown Courts and
these cannot be questioned in any Court. There are restrictions on the reporting
of the proceedings of such trials or hearings. Under this Act, charges for
conspiracy can also be brought. In brief, this is an extra-ordinary legislation
creating a single authority with high powers for the investigation of offences
involving serious frauds by-passing normal criminal procedures.

20.18.2 The Mauritius Act of 2000 is much more comprehensive. It lists out all economic
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offences (including those

The Mauritius Act of 2000 is much more created by other laws such as
comprehensive. It lists out all economic insurance, securities, stock
offences (including those created by other exchange etc.,) under one
laws such as insurance, securities, stock umbrella and authorise the
exchange etc.,) under one umbrella and Director of Economic Crimes
authorise the Director of Economic Crimes to to include similar crimes. The
include similar crimes. The Act brings under Act brings under the
the jurisdiction of the Director professions jurisdiction of the Director
such as Lawyers, Accountants, Notaries etc. professions such as Lawyers,
The Director has powers to draw the help of Accountants, Notaries etc.
civil as well as police authorities, to gather The Director has powers to
information and carryout investigation, to co- draw the help of civil as well
ordinate for this purpose law enforcement as police authorities, to gather
agencies, government departments, private information and carryout
institutions, professions etc., and to devise investigation, to co-ordinate
other measures against money laundering and for this purpose law
enforcement agencies,
other economic offences. The Director must
government departments,
declare his assets and liabilities both while
private institutions,
taking over and demitting office. professions etc., and to devise
other measures against
money laundering and other economic offences. The Director must declare his
assets and liabilities both while taking over and demitting office. The Director has
high powers to enforce compliance with the Provisions Act by institutions as well
as individuals including power to search to attach property etc., On every
investigation, he has to report to the Director of Public Prosecution. All banks,
financial institutions and professionals are obliged to report all suspicious
transactions to him. The Act gives the Director to apply for freezing of the assets of
a suspect. He could seek assistance from abroad both for getting evidence and
extradition of suspects. Similar laws are being enacted in other countries too. In a
slightly different context, the US Government has adopted a Patriot Act 2001,
which gives staggering powers to the US Government.

20.18.3 Many other offences listed in the earlier pages including money
laundering have been made crimes in India already. Some might not have been
covered adequately. Considering the limited capabilities of the present day
investigative agencies and the jurisdictional issues, it is being recommended that
a Serious Fraud Office be created for handling such crimes.

20.18.4 The Serious Fraud Office should be an autonomous body run by a

Board consisting of 3-5 members who will be selected in a manner which will
clearly proclaim to the public their independence, autonomy and objectivity so
that public will have confidence in the institution. The
Serious Fraud Office will deal with serious economic offences, which have
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been defined earlier. The Serious Fraud Office will have a core staff drawn from
different departments such as the Police, specialists in economic administration,
customs and income tax, Forensic Science on the one hand and computer
specialist, accountants, lawyers and such. They should also have freedom to hire
in the short-term specialists of any kind to augment investigating units
depending on needs. This way, the essential staff will be kept at a reasonable
level and specialists can be had temporarily as and when needed.

20.19 PROCEEDS OF CRIME

20.19.1 A serious problem in investigating these frauds is the identification

and attachment of the properties whether movable or immovable accused
individual (or company) including relations, associates and benamy holders. A
way out could be to adopt something similar to the Mauritius Law or adopt the
Maharashtra Investor Code system (created under the Investor Protection Act of
Maharashtra or MIPA) which will allow the earlier attachment of such property.
Once this is done, the accused themselves approach the Court and assist in the
investigation as they would like to get the property released. Such a system will
shift the burden on the accused to show that the property was indeed obtained
through legitimate methods.

20.19.2 The rules of evidence including presumptions and burden of proof

have to be suitably modified and streamlined to tackle these new crimes. All
public documents including bank documents should be presumed to be correct.
If the accused has benefited from the fraud, the principle of res ipsa loquitor
should be applied to draw the adverse
inference. Similar adverse inference can The rules of evidence including
be drawn in internal rule of procedure presumptions and burden of proof
have been violated. It is incumbent on have to be suitably modified and
the defence to disclose its version once streamlined to tackle these new
prima facie evidence is available and the crimes. All public documents
charge is framed. Similarly, all including bank documents should
authorised signatories of suspect be presumed to be correct.
companies and associates must answer
truthfully to interrogatories sent or are prosecuted for perjury. As in laws in
Singapore, where the accused is either silent in examination or in his reply,
adverse inference can be drawn.

20.19.3 The proliferation in recent times of large-scale crimes, which relate

to finance, drugs and such involve large amounts of money; at the
same time, they affect adversely increasingly larger sections of the
population. Some of this money- especially from drugs- is used for
financing terror-related crimes. There are large interstate and even international
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gangs which are controlled by leading criminals who do not get directly involved
in these crimes, but manage the system sitting away from the scene of the crime
and take the large profits from the crime. Governments find it difficult under the
present legal system, especially because of the laws and rules relating to
extradition as well as the relationship between States and Countries, to lay their
hands on these criminals who therefore remain untouched by the Criminal Justice
System, for often, they live in countries other than the ones in which the unit of
their criminal empires run. The activities of these organised criminal groups in
some cases affects people in their everyday lives too, as the crimes relate to
property, kidnapping, financial fraud, and prostitution among other things.

20.19.4 Thus, we have a situation where there are major criminals who are
untouchable under the law, but lead very comfortable lives from their substantial
profits from crime. As the present Criminal Justice System has failed to apprehend
or proceed against such criminals, the one powerful way of dealing with such
crimes will be to confiscate the proceeds of their crime and send a message that
crime will not pay, thereby restoring people’s faith in the Criminal Justice System.
This will also ensure that the money will not be used to finance further criminal
activities. Further, the proceeds recovered could be used to finance crime reduction
and criminal rehabilitation projects. In the circumstances, what is needed is a law,
which will seize the assets of crime and assist in dismantling and disrupting the
criminal organisations. This legislation will introduce in a single scheme the
powers of confiscation, which Courts have- in a limited fashion - currently against
those convicted of offences. There are broadly two ways of looking at the issue of
whether a defendant in such cases has benefited directly or indirectly from crime.
The more obvious case is where there could be a list of offences, which will help
determine when there is a nexus between defendant, the offence and its benefit. In
such cases, the Court can assume that all the defendant’s assets are derived from
crime, shifting the burden of proof to the defendant unless the defendant proves to
the contrary and adduces sufficient ground to prove injustice.

20.19.5 In brief where it is difficult to show a direct nexus, but there is no

known source of legitimate income, it should be possible by applying tests of
evidence and public interest to investigate and again proceed against the defendant
until he proves to the satisfaction of the authorities that the source of his income
are indeed legitimate.

20.19.6 In any event, in all such matters, Courts should have the power not
only to restrain the assets at the start of the investigation-to ensure that
the assets are not disposed of when the Court is seized of the matter- and
set in motion detailed investigation with specialists trained in taxation and
finance to look at the sources as well as the routes by which the money had come
to decide on the further course of action. In those cases where confiscation is not
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possible, the Court should have the taxation aspect looked at to ensure that such
income is taxed suitably. It is important that this legislation covers all income
from dubious sources, which includes not just ordinary crime but also drug and
terror-related income as well as laundered money. Wherever the prosecutor can
prove that the money is fully or in part the proceeds of criminal conduct, then
the defendant can be proceeded against the particular offence or class of
offences. It is important that with such special legislation, special courts are
established to handle such cases and special investigators are appointed,
including forensic accountants as in all these cases as it will be difficult to get
witnesses and therefore the paper trail has to be discovered. Further, there
should be an agency to handle the property for the Courts.

20.19.7 As there is a possibility of official abuse of these powers and there

is a need for building in sufficient safeguards against it. The Committee notes
that legislation in this regard has been recently introduced in the UK and it
would be useful to look at their experience in the matter.

20.20 ASSETS RECOVERY AGENCY

20.20.1 In the UK, under the Proceeds of Crime Act, 2002, Assets
Recovery Agency has been setup which supports the police, customs, revenue
and other agencies in financial investigation leading to conviction, confiscation
and recovery of the property. Keeping this in mind, the Committee is of the
view that in place of the present system in which the Judges order
attachment/seizure, forfeiture or confiscation, a new agency be created called
the Assets Recovery Agency to reduce the work of the Judges and the courts by
taking over the responsibility of recovery of assets.

20.20.2 The Agency’s objectives will be to reduce crime by:

?? Supporting investigative agencies such as the Police, in financial
investigations, by providing specialist training and advice.
?? Investigating cases leading to post-conviction confiscation order
and/or applying for such orders.
?? Using a new power of ‘civil recovery’ – suing in the High Court
for the recovery of the proceeds of unlawful conduct.
?? Using powers of taxation where the Director has reasonable
grounds to suspect that there is income, gains or profits that is
chargeable to the relevant tax and which results from
criminal conduct. The Director will carry out the tax functions
that the Inland Revenue would ordinarily carry out,
not limited to the proceeds of unlawful conduct
but all the defendant’s property. The only difference between
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the Director and the Inland Revenue will be that when the
Director carries out his taxation functions, the source of income
need not be identified.
?? Seeking and executing requests for international assistance in
obtaining restraints and confiscation and the use of powers of
investigation.

20.20.3 The Agency will take on cases only on the basis of referral from
the Police, Customs and law enforcement authorities based on agreed criteria.

20.20.4 It may be noted that ARA has functioned only for a short period,
and therefore it is too early to assess its success.

20.21 THE REGULATORS AND THE SERIOUS F RAUD OFFICE

20.21.1 Disclosure has been a long accepted in principle in Corporate Law

to prevent fraud and to protect investors’ interest. But with a large bureaucracy
both Government and quazi-Government, such disclosure has been partial,
delayed and often misleading and has served little purpose. The line between
near crime and crime is so fine (as for example between tax avoidance and tax
evasion) that criminal liability is not something, which could be pinned upon a
suspect easily. Even the quite useful
standard procedures of accounting as Bankruptcies, fly-by-night
well as independent auditing have ceased operations, sudden and repeated
to ensure corporate responsibility or even mergers, de-mergers and
basic accountability. Bankruptcies, fly- acquisitions, stock market
by-night operations, sudden and repeated failures, money laundering etc.,
mergers, de-mergers and acquisitions, have raised serious doubts about
stock market failures, money laundering accounting and auditing processes
etc., have raised serious doubts about not to mention good business
accounting and auditing processes not to practices in corporate governance
mention good business practices in itself.
corporate governance itself. When
corporate governance fails, particularly in the financial sector, the impact is felt
by the rich and the somewhat poor indiscriminately and often substantially.
There is also the need to define the roles of regulators and demarcate the fine
line between the regulators and the criminal investigation machinery. This is of
course not common to our country alone but with increasing liberalisation and
opening up of the economy, there is a need to improve monitoring, ensure
proper disclosures, keep track of major and suspicious transactions,
simplification of procedures and greater co-ordingation between regulators,
enforcement agencies and the police.
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20.22 SELF-REGULATION, REPORTING SYSTEM AND LAW

20.22.1 There has always been a tendency to allow self-regulation, to a

large extent to professional as well as companies. This has also happened in the
cyber area, especially the Internet. The failure of the accounting, auditing and
other professionals have thrown up the weaknesses in the system. It is necessary
to intervene where such self-regulation has failed. At the same time
Government, to reduce the burden on itself, should work closely and
continuously with business by cleaning up regulations, enacting new laws and
help in prosecutions. This is particularly true of cyber crime. This is important
as fraudsters are clever and are ahead of Government and most companies in the
sophistication of their technical knowledge. There is of course the balance
between privacy protection, legitimate business use of private data and
prevention of cyber fraud. Here, we have to sacrifice some of our individual
interest in the interest of fraud prevention in Society. If this initiative is not
taken by the Parliament, there will be plethora on conflicting decisions by
different courts at different levels – now a new phenomenon- that will inhibit
the development of cyber commerce not to mention reduce the effectiveness law
enforcement investigations and international co-operation to reduce such
crimes.

20.23 CONFUSION IN REGULATION

20.23.1 The various frauds and scandals in the past but over the past two
decades in particular, have made it abundantly clear that we need for a clear
demarcation of responsibilities for and accountability of both the regulators and
regulated. For example, Banks come under regulation by both RBI and the
Banking department of Govt., of India and in a smaller way SEBI as well as
other company law regulators. When the RBI intervened to control the NBFC’s
it was both heavy handed and indiscriminate. RBI regulates banks and has its
representatives sitting as Directors on the board of banks, which is somewhat
anomalous. The regulation of National Bank for Agriculture and Rural Bank (
NABARD ), National Housing Bank (NHB) and such are not clear. Security
Exchange Board o India (SEBI) regulates the mutual funds but not the UTI
which has got into serious difficulties, in a sense victimising its customers. The
co-operative banks and chit funds are not under any kind of acceptable
supervision. In brief, the regulatory system, if it can be called that, has ensured
neither compliance nor accountability. In the last decade or so the unanswered
question which has emerged in how to make the regulators themselves
accountable. Hence the need for looking at the regulatory systems to ensure
that there is no confusion in regulation, participation by the regulators in the
regulated institutions; applicability of similar rules to those similarly placed and
no over-lapping or the issue of conflicting orders etc. This is necessary not only
to promote good governance but also to avoid conflict of interest.
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20.23.2 It will be useful to have these matters examined to clearly

demarcate where regulation ends and control of criminal activities begin. It has
become clear the adhoc responses to these serious problems will not be of help,
especially as the autonomy of the regulators has become open to doubt and the
way the court system operates makes it easy for the criminal to escape.

20.23.3 It is time to bring in close and seamless coordination between the

RBI, SEBI, Department of Company affairs, the Company Law Board, the
regulatory authorities for telecom, insurance and power, the various departments
of tax such as income, excise and customs, and all the other agencies appointed
as regulators. Their reporting and regulation systems, data gathering
mechanisms be reviewed and their monitoring and supervision improved and
track of suspicious activities of especially those treading on the border line of
the lawful and criminal activity be kept. These agencies should have, unlike
now, a limited but highly effective compliance system, which should be,
enforced strictly both on employees of institutions and professionals , failing
which they will face heavy penalties, making non-compliance economically
non-viable. Environmental laws are violated all over the country with near total
impunity. These violations have serious economic consequences in terms of
damaging the quality of environment, which affects future generations as well.
They also have serious public health consequences as their adverse effect is on
the health of the people and reduces economic/financial productivity of the
country.

20.24 INFORMERS

In its 179th report on the Public Interest Disclosure and Protection

of Informers, the Law Commission of India has recommended certain measures
to check corruption in Government by enacting a Law titled “The Public
Interest Disclosure (Protection of Informers) Bill”. This bill is intended to en
courage disclosure of information about the conduct of a public servant
involving the commission of an offence under the Prevention of Corruption Act
or any other Law; it is designed also to check abuse of one’s official position or
mal-administration and protect the person making such disclosure. While this is
commendable what we need is an Act which will cover such persons making
disclosure (informers) applying to all Economic Crimes, Organised Crimes,
Federal Crimes as well as Terrorism. This is a matter of great importance and it
is recommended that Government takes steps to enact a general bill to cover all
such cases and not just those who “blow the whistle” on corruption.
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PART-IV

LOOKING AHEAD
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EMERGING ROLE OF THE LEGAL PROFESSION _

21.1 No system of justice in modern society can function without the

active support and participation of members of the Bar. India has the proud
record of not only having the second largest number of practicing lawyers in the
world but also one which has been in the forefront of freedom movement and
constitutional development. Unfortunately after independence, due to a variety
of factors for which the Bar alone is not responsible, public perception about the
profession is not very flattering. In the field of criminal justice, this change in
public perception has done a lot of damage not only to the profession but also to
the quality and efficiency of criminal justice administration. This is not the
place to explore the causes and consequences of this development. However, if
criminal justice administration has to improve and society is to be protected
from crime, lawyers practicing on the criminal side whether for defence or
prosecution have to appreciate the nature of the malady and equip themselves
with the knowledge and skills necessary to act as officers of the court in its
search for truth. This aspect is incomplete without projecting the important role
of the lawyer as a facilitator of
change in criminal justice reform. If criminal justice administration has to
improve and society is to be protected
21.2 This report seeks to from crime, lawyers practicing on the
make some necessary changes in criminal side whether for defence or
the system of criminal justice prosecution have to appreciate the
delivery. Naturally the role and nature of the malady and equip
responsibilities of prosecutors and themselves with the knowledge and
defence lawyers will have to skills necessary to act as officers of the
undergo changes in the process. court in its search for truth.
Being an independent and
autonomous profession, it is not for the Government to force change on their
part, rather the Government should provide opportunities for professional
development, facilitate their role as agents of reform and accommodate their
legitimate aspirations in judicial administration. In this regard it is necessary for
the profession to appreciate why the Committee has great expectations from the
criminal law practitioners without whose willing support, the reform process
may even not take off. For example delay and arrears are serious problems
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which should be eradicated as fast as possible. Courts alone cannot accomplish

it and lawyers will have to extend full support in minimising adjournments
respecting the rights of the victims and witnesses, attempting to settle
compoundable offences early etc. As officers of the court, these are their duties
and professional responsibilities. There cannot be compromises in the search for
truth excepting those laid down by the law itself. Keeping this in mind if the
defence and prosecution lend full support and cooperation to the court, one
would expect criminal trials to be completed expeditiously and faith of the
public in the Criminal Justice System restored.

21.3 Today every profession is seeking to specialize and acquire new

skills and expertise to be able to do its job efficiently. The Bar has to realize the
importance of specialization and learn, for example the nature and scope of
forensic science in detection and proof. Again, information and communication
technology is changing the way we think, act and do things. Through video-
conferencing and multi-media application recording of evidence or examination
can be conducted effectively without invading the rights of parties to the
dispute. Lawyers should be receptive to change and the benefits of technology
should be fully utilised. Continuing education for lawyers is as much necessary
as it is for Judges. Government should assist the Bar councils and Bar
associations to enable its members to acquire new knowledge and skills as
quickly and efficiently as possible.

21.4 The law of arrest, search, bail, interrogation, detention,

identification, etc. has transformed a great deal in the light of constitutional
demands and international obligations. It is a welcome development and the
contribution of the Bar is significant. At the same time organised crime,
economic crime, terrorism and similar developments are threatening the very
foundation of democracy and rule of law. Response to the same is changing,
rights are being re-written and procedure is being modified. Lawyers have an
important role to bring about a balance between individual rights and public
good in investigation, prosecution and trial.

21.5 In an era where violence is increasing and security of life, liberty

and property are under grave threat and crime is increasing and ensuring
peaceful life is one of the functions of the civil society, every player in the
Criminal Justice System has a responsible, pro-active and meaningful role to
play. It should also not be forgotten that the defence lawyer also is an important
player in the scheme of Criminal Justice System along with the prosecutor and
the investigator. Therefore apart from assisting in the time bound and quick
disposal of criminal trial the defence lawyer also has to be sensitive to his
commitment to societal values of protection of the individuals’ life and liberty.
Moreover to secure that end he should also rise to higher levels of responsibility
because the only aim of a defence counsel is not to secure the acquittal
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by any manner or means but by adopting

just, fair and legally acceptable methods. Apart from assisting in the time
This kind of sensitivity to the social bound and quick disposal of
cause is more important in grave crimes criminal trial the defence lawyer
that threaten the security of the State. also has to be sensitive to his
Where child abuse and victims of sexual commitment to societal values of
assault are concerned both the rules of protection of the individuals’ life
professional conduct and also provisions and liberty. Moreover to secure
in the Evidence Act do provide the limits that end he should also rise to
of fairness in so far as cross examination higher levels of responsibility
is concerned. These considerations and because the only aim of a defence
objects are prime concern of the defence counsel is not to secure the
lawyer as a person who is a key player in acquittal by any manner or
the system and therefore he has a higher means but by adopting just, fair
responsibility to adhere to fair and just and legally acceptable methods.
means for securing justice to the accused
and that way while doing adequate justice to the cause of the accused he should
also be fulfilling a commitment which he owes to the society as a responsible
citizen ensuring that justice is rendered.

21.6 Assistance of Criminal law practitioners should be available to

citizens at all times as what are at stake are life, liberty and right to speedy trial
which is a precious fundamental right. Without any detriment to the duties and
responsibilities of the Bar, their grievances if any should be resolved by
peaceful and constitutional means. Bar should voluntarily extend free legal aid
in criminal cases to prevent the indigent accused being made the exclusive
responsibility of the Government. Every Bar association should have a cell for
this purpose. It is hoped that the legal profession will not fail the system and rise
to new heights of responsibility in the quest for truth and justice and social
commitment towards a sound criminal justice delivery system in which the
accused, the victim and the society all get a fair deal.
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TRAINING – A STRATEGY FOR REFORM _

22.1 Training is the acknowledged route to efficiency in any profession.

In a society, which is getting more complex and specialized, the need for the
Criminal Justice System to adopt itself to the changes through continuing
education and training is critical. It is the view of the Committee that regular
well organised, though not quite adequate training programmes (this ha been
addressed by the report of the National Commission on Police Training) the
others in the Criminal Justice System, especially at the lowest levels is not
satisfactory and there is much variation in the application of the laws and the
inexperience of the all-too-burdened Judges. The general inefficiency of the
system could be addressed by some of the other recommendations of the
Committee, but, the dilatory proceedings, the ever increasing backlog and the
poor quality of justice cannot be resolved by just adding more Courts, when the
System itself is inefficient. The approach recommended through the Committee
to make Criminal Justice System
function more efficiently with less The approach recommended
resources is simplified and alternative through the Committee to make
procedures and penalties and by Criminal Justice System function
promoting settlements. This requires more efficiently with less resources
extensive training, both at the time of is simplified and alternative
induction as well as at regular intervals procedures and penalties and by
while in service. promoting settlements. This
requires extensive training, both at
22.2 A substantial way to the time of induction as well as at
improve the quality of justice would be regular intervals while in service.
to raise the level of competence of
Judges and Prosecutors as a long-term strategy to be implemented. Such a
strategy must have a clear idea of target groups to be trained; training objectives
and topics, identifications of institutions to organize the training, financing the
training and finally its monitoring and evaluation.
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22.3 If we expect the Judges and Prosecutors to do high quality work, we

should expect them to have a profound knowledge of substantive criminal laws.
Secondly, to make Court procedures both fast (and cost-efficient), they have to
know the rules and procedures and how to enforce them as well as to use the Case
method (recommended by the Committee) efficiently. Further, they will need
communication and management skills and some degree of knowledge of non-legal
areas such as sociology and psychology. For those who are likely to deal with
economic laws, specialized knowledge of economics, finance and accounting and
for those specializing in environment cases, special knowledge of environmental
laws will be necessary. Above all this there is a need for attitude training to
facilitate their everyday work, to help handle critical situations and to avoid stress.

22.4 Although there is already a report on police training, the Committee

feels that the training needs of the police at the lowest level needs much
strengthening especially in terms of protection of human rights. It would be useful
to have a look at what are the best practices and promote them especially in
friendly/community policing, modern investigation techniques, accountability and
attitudinal changes especially towards the poor an vulnerable. The second aspect is
to have combined training for senior police officers and Prosecutors as well as
Judges. A system of jont programmes, professional exchanges and research needs
to be developed for the long-term.

22.5 There are several courses at the Institute of Criminology and Forensic
Science, the Bureau of Police Research and Development, the Indian Institute of
Public Administration and a few modules on criminal justice and are both ad hoc
and short-term and therefore, neither satisfy the training needs nor will it improve
the performance of Prosecutors and Judges. The training being recommended
here, will be in terms of improving trails in terms of speed and efficiency of trails
and the quality of judgements, including better sentencing and settlement among
other things.

22.6 The Committee’s recommendation to reform the Criminal Justice

System include:
i. the need for the Courts to focus on finding the truth;
ii. a strong victim orientation;
iii. use of forensic as well as modern methods of investigation;
iv. reclassification of crimes with a large number of offences to be
“settles”;
v. an emphasis on the accountability of all those in the System
including the judge, the prosecution as well as the defense;
vi. much enhanced managerial and technical skills in the personnel.

22.7 The training programme must comprise all these elements. This is a stupendous
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training agenda and will require, training academics to design training courses,
study materials, train the trainers, develop the best pedagogic techniques and a
system of monitoring and evaluation.

22.8 The Committee endorses in general, the reports of the Law

Commission of India (54th & 117th), the various reports of the Committee on
judicial reform including the first National Judicial Pay Commission, on
training, through criminal justice has not been, we feel adequately covered.

22.9 On-the-job training through attachment has been an important part

of induction training in the country. The Committee recommends an year long
induction training programme for newly recruited Prosecutors and Judges, a part
of which should be with the police, forensic laboratories, courts and prisons on
which the recommendations of the first National Judicial Pay Commission are
available. While this can take care of the future entrants, there is a need to
retain and reorient the existing cadre of more than 15,000 trial court Judges and
an equal number of Prosecutors. The judicial academy, which has little
infrastructure and meager resources, may not be able to handle this. That the
training has not been perceived by Government as critical could be reflection of
the relevance of training programmes. But, training programmes redrawn as
recommended by the Committee will surely contribute to improving the system.

22.10 A small high level training council is required. This will include in
it representatives of the Judiciary, Prosecution, the concerned ministry and
academic and a couple of non-legal public persons. This training council should
meet at least three or four times in a year to assess the standards of Judges and
Prosecutors, the training needs, the improvements in training and the
effectiveness of the training methods. The training council should work out a
training policy paper, which could be revise once in five years. It could take the
help of the National Judicial Academy (NJA) for this purpose. The training
policy paper should address the training needs of the Judges as well as the
prosecution and defense, attorneys, not to mention other court officials. The
training should cover substantive law, rules and procedures, court and case
management as well as the use of management techniques to improve the
efficiency of the system.

22.11 The Committee has recommended the need for specialization

in the Judiciary including the superior court judges. Towards this, there is
a need to train judges whenever they are promoted to a higher position so
that they have a better appreciation of what is demanded of them and they
also become better equipped to do their job well. Considering the new and
complex types of cases coming up especially those relating to Information
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Technology (IT), Environment or Economics and Finance, judges who will

specialize in these areas need to have refresher courses irrespective of their
status in the hierarchy. With introduction of in-service training as
recommended with emphasis on much greater efficiency in court and case
management, the use of IT applications and management techniques and the
instilling of better professional attitudes and motivation, it can be reasonably
expected that the Criminal Justice System could improve in efficiency.

22.12 It is important to have a highly selected group of trainers who will

look after the highest level training as well as to train the other trainers. This is
a critical area where the highest quality must be ensured. Here, the training
needs at the national level and at the state level have to be worked out in detail
considering that the demands at each level could vary depending on the region
and level. The NJA with other institutions could play the role of a coordinator
in developing the training
programmes and various types of It is important to have a highly
study materials. Given the variations selected group of trainers who will
from State to State, the NJA could look after the highest level training
work through regional academies to as well as to train the other trainers.
upgrade the development This is a critical area where the
programmes. highest quality must be ensured.
Here, the training needs at the
national level and at the state level
22.13 Similarly, there is a need have to be worked out in detail
for good quality study materials and considering that the demands at each
audio visual aids for generalized level could vary depending on the
training in all aspects of the Criminal region and level.
Justice System not only to improve
the quality of the work of the players, but, also for specialised study materials
and aids in areas such as economic and environmental regulations, public laws,
Intellectual Property Rights, IT & other commercial laws, sentencing,
settlement & alternative dispute resolution; and an awareness of the need for
transparency, fairness and empathy and to protect human rights in dealing with
the accused and more so, the victims and a sensitivity to the needs or women
and those who are vulnerable. Distance education has also the potential to be
utilized for training. Here again, the NJA could play a vital role.

22.14 An independent and strong system to monitor and evaluate the

work of judicial training is essential. This can be done be a broad based-
committee constituted for that purpose once in three years. As it is
recommended that the training should go beyond conventional teaching of law
to many innovative things, there is the need to develop objective evaluation
methods to judge whether the training programmes indeed result in the
improvements
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aimed at. The training results could also be usefully linked to service benefits
as it is done in the defense services.

22.15 It is not enough to recognise that vast changes are taking place and
the Criminal Justice System should be prepared to meet it. The Committee
recommends that research should be given importance in the new scheme
things. Research should be done amount other things to study the changes in
society, the changes in laws and justice systems and to identify a way of
meeting new needs and finding new solutions as well as help in preparing
training methods and materials. Therefore, there is a need to build sufficient
capacity in this area and give adequate technical infrastructure, libraries for this
purpose.

22.16 Financing training programmes requires a commitment to provide

adequate finance for effective training. Some financing can also be arranged
from external sources in terms of human resources or collaborations of various
kinds.
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VISION FOR B ETTER CRIMINAL JUSTICE SYSTEM _

THE VISION FOR THE F UTURE

23.1 The pursuit of life, liberty and peace includes freedom from crime.
The State’s foremost duty is to provide these basic rights to each citizen. The
success of a Criminal Justice System can only be measured by how successful it
is in ensuring these rights in word and spirit. The extent to which these are
successfully guaranteed, will be reflected in the confidence of the public in the
system.

23.2 Except for some modifications in the Code of Criminal Procedure

1973 (Cr.P.C), there has been no serious attempt to look at the various aspects
of the Criminal Justice System. On the one hand particularly with improving
information technologies, the availability of information on the incidence of
crime is increasing; as is the rise in the expectations of the people from the
State. Whether it is the laws,
rules or procedures, or whether
The men and women who run the System
it is men and women who run
also need to be trained, motivated and
the System that are to be
finally made accountable. This is essential
blamed, the fact remains that
in a democracy, which requires both
the System has become quite
transparency and accountability from such
inefficient. The Committee is
public servants. It is difficult to expect the
aware that the laws, rules and
laws and procedures to make up for the
procedures which were good
deficiencies of the human element and
for the bygone era have not
vice-versa. There is also the problem of the
quite stood the test of time. The
earlier perceptions of crimes having given
men and women who run the
way to newer and more humane
System also need to be trained,
perceptions which demand that crimes be
motivated and finally made
re-classified in the light of the new
accountable. This is essential in
perceptions.
a democracy, which requires
both transparency and
accountability from
such public servants. It is difficult to expect the laws and procedures to make up
for the deficiencies of the human element and vice-versa. There is also the
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problem of the earlier perceptions of crimes having given way to newer and
more humane perceptions which demand that crimes be re-classified in the light
of the new perceptions. What has been suggested in our re-classification system
is the beginning of a long-term exercise, but the Committee has no doubt that
one has to go much beyond this, based on the experience of how re-
classification works. The Committee is also aware that this reclassification is
only a part of the solution. Similarly the Committee being aware of the need for
changes in criminal laws especially in the Evidence Act and the IPC has made
certain recommendations on those too. It is not only necessary to have a fresh
look at the juridical principles which are the basis of the Criminal Justice
System, but also look at how these have been translated in various laws and
regulations. This should particularly apply strongly to our pre-Independence
legislation. Ours are hoary laws and procedures based on certain
unexceptionable principles, but it cannot be denied that it may be necessary to
reinterpret the same principles taking into account the values of modern society
and the perception of the society on what is crime and what is not; and in
crimes, what is grave and what is petty.

23.3 This is for the first time, after several decades that an attempt is
made to reform the Criminal Justice System. We are aware that the problems
are innumerable and not capable of easy solutions but we believe we have made
a beginning. This first step is towards a big new beginning. We do not
subscribe to the view that every one charged by the Police is necessarily guilty
of a crime; nor would we seek to change the system only to ensure that the
conviction rate goes up. We do not subscribe to the view that the legal
adjudication is the only answer to the ills of our society and that the inexorable
rise in crime can only be tackled by more and more repressive justice. We do
believe that truth is central to the system, that victims must be protected and
justice must be done to them. Eventually we hope that the system will lean
towards more restorative justice. We believe that to break the cycle of re-
offending we need to work out measures including rehabilitation programmes
and support to the offenders and even their families. We believe that economic
crimes should be handled to ensure that the profits and proceeds of crime do not
accrue to the criminals and as a general rule no offenders should get away with
crime. It believes that organised crime and terrorism should be tackled with due
consideration to their roots and the motivation of the criminals and terrorists.
The Committee strongly believe that the prison is a place only for the worst
offenders but it is no place for children or even women and that our laws and
regulations should be changed to ensure this. It believes that not only the rights
of suspects must be protected, but also all human rights. Court trials should be
totally just, fair and transparent. If the reforms are carried out in this spirit, we
hope it would help regain much of the lost public confidence. Incidentally we
also feel that it is time the public realize that it too has a duty to report on crimes
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and cooperate with the police. Our Organised crime and terrorism should
recommendations may appear not be tackled with due consideration to
entirely in consonance with the their roots and the motivation of the
above; to some it may appear criminals and terrorists. The prison is a
radical and far reaching. We have place only for the worst offenders but it
only charted out the direction, set is no place for children or even women
the agenda and we believe, we and that our laws and regulations should
have been quite moderate in our be changed to ensure this. Not only the
recommendations. We are aware rights of suspects must be protected, but
of the strength of the fiercely also all human rights. Court trials
guarded turfs of the different should be totally just, fair and
sections of the system; yet we transparent. Reforms carried out in this
hope that it will not come in the spirit would help regain much of the lost
way of effective reforms to the public confidence.
system. The success of reforms
would ultimately depend upon
how they are carried out in their details and to what extent they reflect the spirit
of our recommendations.

23.4 There is an urgent necessity in the light of our recommendations to

have a detailed look at the way our criminal justice institutions have been
functioning. Though a few suggestions have been made in this regard in terms
of recruitment, training and such, a good overhaul of the system applying
modern management principles, strengthening them with new information
technologies and finding sufficient resources for these are also matters of great
urgency. Equally urgent is the matter of programs and measures to improve and
keep up-to-date their training and keep high the motivation of those who run the
systems. This applies to all parts of the Criminal Justice System.

23.5 There has been much patchy and piecemeal legislation and much
more ad hoc policy making relating to terrorism or organised crime or different
types of victims such as women, children and dalits for one reason or the other.
Yet, things have improved little for the various kinds of victims and in the
handling of organised crimes or terrorism. Success has been elusive. The
Committee also feels- with the greatest respect - that many of the orders of the
various Courts on different issues, constituting Judge-made law has also
hindered the criminal justice administration. It is therefore necessary for
Government to come out with a clear and coherent policy statement on all major
issues of criminal justice. It is further recommended that Government appoint a
Presidential Commission on the lines of the Finance Commission under the
Constitution to review the functioning of the Criminal Justice System. This
should be done under the Constitution at least once in 15 years.
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23.6 Society changes, and so do its values. A system so vital and

critical to the society as the Criminal Justice System, cannot be static. Reforms
ought to be a continuous process, keeping pace with the emerging challenges.
No worthwhile reform is possible without deep study and intensive research.

23.7 The vision demonstrated by the Government in constituting this

Committee, will, it is hoped, become the harbinger for setting up a Presidential
Commission under the Constitution, to periodically review and reform the
health of the System.
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PART – VI

RECOMMENDATIONS
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RECOMMENDATIONS _

1. NEED FOR REFORMS

It is the duty of the State to protect fundamental rights of the citizens as well as
the right to property. The State has constituted the Criminal Justice System to
protect the rights of the innocent and punish the guilty. The system devised
more than a century back, has become ineffective; a large number of guilty go
unpunished in a large number of cases; the system takes years to bring the
guilty to justice; and has ceased to deter criminals. Crime is increasing rapidly
everyday and types of crimes are proliferating. The citizens live in constant
fear. It is therefore that the Govt. of India, Ministry of Home Affairs
constituted the Committee on reforms of Criminal Justice System to make a
comprehensive examination of all the functionaries of the Criminal Justice
System, the fundamental principles and the relevant laws. The Committee,
having given its utmost consideration to the grave problems facing the country,
has made its recommendations in its final report, the salient features of which
are given below:-

2. ADVERSARIAL SYSTEM

The Committee has given its anxious consideration to the question as to

whether this system is satisfactory or whether we should consider
recommending any other system. The Committee examined in particular the
Inquisitorial System followed in France, Germany and other
Continental countries. The Inquisitorial System is certainly efficient in the
sense that the investigation is supervised by the Judicial Magistrate
which results in a high rate of conviction. The Committee on balance
felt that, a fair trial and in particular, fairness to the accused, are better
protected in the adversarial system. However, the Committee felt that
some of the good features of the Inquisitorial system can be adopted to
strengthen the Adversarial System and to make it more effective. This includes
the duty of the Court to search for truth, to assign a pro-active role to
the Judges, to give directions to the investigating officers and prosecution
agencies in the matter of investigation and leading evidence with the object of
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seeking the truth and focusing on justice to victims. Accordingly the

Committee has made the following recommendations:-

(1) A preamble shall be added to the Code on the following lines: -

“Whereas it is expedient to constitute a Criminal Justice System, for
punishing the guilty and protecting the innocent.
“Whereas it is expedient to prescribe the procedure to be followed by it,
“Whereas quest for truth shall be the foundation of the Criminal Justice
System,
“Whereas it shall be the duty of every functionary of the Criminal Justice
System and everyone associated with it in the administration of justice, to
actively pursue the quest for truth.

It is enacted as follows:

(2) A provision on the following lines be made and placed immediately

above Section 311 of the Code
“Quest for truth shall be the fundamental duty of every court”.

(3) Section 311 of the Code be substituted on the following lines: -

“Any Court shall at any stage of any inquiry, trial or other proceeding
under the Code, summon any person as a witness or examine any person
in attendance though not summoned as a witness or recall and re-examine
any person already examined as it appears necessary for discovering truth
in the case”.

(4) Provision similar to Section 255 of the Code relating to summons trial
procedure be made in respect of trial by warrant and sessions procedures,
empowering such court to take into consideration, the evidence received
under Section 311 (new) of the Code in addition to the evidence produced
by the Prosecution

(5) Section 482 of the Code be substituted by a provision on the following

lines:
“Every Court shall have inherent power to make such orders as may be
necessary to discover truth or to give effect to any order under this Code
or to prevent abuse of the process of court or otherwise to secure the ends
of justice”.

(6) A provision on the following lines be added immediately below Section

311 of the Code.
Power to issue directions regarding investigation
“Any court shall, at any stage of inquiry or trial under this Code, shall have such power to
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issue directions to the investigating officer to make further investigation or

to direct the Supervisory Officer to take appropriate action for proper or
adequate investigation so as to assist the Court in search for truth.

(7) Section 54 of the Evidence Act be substituted by a provision on the

following lines:
“In criminal proceeding the fact that the accused has a bad character is
relevant”.
Explanation: A previous conviction is relevant as evidence of bad character.

3. RIGHT TO SILENCE

The Right to silence is a fundamental right guaranteed to the citizen under

Article 20(3) of the Constitution which says that no person accused of any
offence shall be compelled to be a witness against himself. As the accused is in
most cases the best source of information, the Committee felt that while
respecting the right of the accused a way must be found to tap this critical
source of information. The Committee feels that without subjecting the accused
to any duress, the court should have the freedom to question the accused to
elicit the relevant information and if he refuses to answer, to draw adverse
inference against the accused.
At present the participation of the accused in the trial is minimal. He is
not even required to disclose his stand and the benefit of special exception to
any which he claims. This results in great prejudice to the prosecution and
impedes the search for truth. The Committee has therefore felt that the accused
should be required to file a statement to the prosecution disclosing his stand.
For achieving this, the following recommendations are made:

(8) Section 313 of the Code may be substituted by Section 313-A, 313-B and
313-C on the following lines: -

i) 313-A In every trial, the Court shall, immediately after the

witnesses for the prosecution have been examined, question the
accused generally, to explain personally any circumstances
appearing in the evidence against him.
ii)313-B(1): Without previously warning the accused, the Court may at any
stage of trial and shall, after the examination under Section
313-A and before he is called on his defence put such
questions to him as the court considers necessary with the
object of discovering the truth in the case.
If the accused remains silent or refuses to answer any question
put to him by the court which he is not compelled by law to
answer, the court may draw such appropriate inference
including adverse inference as it considers proper in the
circumstances.
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iii)313-C(1):No oath shall be administered when the accused is examined

under Section 313-A or Section 313-B and the accused shall
not be liable to punishment for refusing to answer any
question or by giving false answer to them.
The answers given by the accused may be taken into
consideration in such inquiry or trial, and put in evidence for
or against him in any other inquiry into, or trial for, or any
other offence which such answers may tend to show he has
committed.
(9) Suitable provisions shall be incorporated in the Code on the following
lines: -
(i) Requiring the Prosecution to prepare a ‘Statement of Prosecution’
containing all relevant particulars including, date, time, place of
the offence, part played by the accused, motive for the offence,
the nature of the evidence oral and documentary, names of
witnesses, names and similar particulars of others involved in the
commission of the crime, the offence alleged to have been
committed and such other particulars as are necessary to fully
disclose the prosecution case.
(ii) ‘Prosecution statement’shall be served on the accused.
(iii) On the charge being framed the accused shall submit the
‘Defence Statement’, within two weeks. The Court may on
sufficient cause being shown extend the time not beyond 4
weeks.
(iv) In the defence statement the accused shall give specific reply to
every material allegation made in the prosecution statement.
(v) If the accused pleads guilty he need not file the defence
statement.
(vi) If any reply is general, vague or devoid of material particulars,
the Court may call upon the accused to rectify the same within 2
weeks, failing which it shall be deemed that the allegation is not
denied.
(vii) If the accused is claiming the benefit of any general or special
exceptions or the benefit of any exception or proviso, or claims
alibi, he shall specifically plead the same, failing which he shall be
precluded from claiming benefit of the same.
(viii) Form and particulars to be furnished in the prosecution statement
and defence statement shall be prescribed.
(ix) If in the light of the plea taken by the accused, it becomes necessary
for the prosecution to investigate the case further, such investigation
may be made with the leave of the court.

(10) (i) On considering the prosecution statement and the defence statement
the court shall formulate the points of determination that arise for
consideration.
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(ii) The points for determination shall indicate on whom the burden
of proof lies.
(iii) Allegations which are admitted or are not denied need not be
proved and the court shall make a record of the same.

4. RIGHTS OF ACCUSED

The accused has several rights guaranteed to him under the Constitution and
relevant laws. They have been liberally extended by the decisions of the
Supreme Court. The accused has the right to know about all the rights he has,
how to enforce them and whom to approach when there is a denial of those
rights. The Committee therefore felt that all the rights of the accused flowing
from the laws and judicial decisions should be collected and put in a Schedule
to the Code. The Committee also felt that they should be translated by each
State in the respective regional language and published in a form of a pamphlet
for free distribution to the accused and to the general public. The following
recommendations are made in regard to the rights of the accused:-

(11) The rights of the accused recognised by the Supreme Court may subject
to the clarification in chapter 4 and the manner of their protection be
made statutory, incorporating the same in a schedule to the Criminal
Procedure Code.

(12) Specific provision in the Code be made prescribing reasonable conditions

to regulate handcuffing including provision for taking action for misuse
of the power by the Police Officers.

5. PRESUMPTION OF INNOCENCE AND BURDEN OF PROOF

There is no provision in the Indian Evidence Act prescribing a particular or a

different standard of proof for criminal cases. However the standard of proof
laid down by our courts following the English precedents is proof beyond
reasonable doubt in criminal cases. In several countries in the world including
the countries following the inquisitorial system, the standard is proof on
‘preponderance of probabilities’. There is a third standard of proof which is
higher than ‘proof on preponderance of probabilities’ and lower than ‘proof
beyond reasonable doubt’ described in different ways, one of them being ‘clear
and convincing’ standard. The Committee after careful assessment of the
standards of proof came to the conclusion that the standard of proof beyond
reasonable doubt presently followed in criminal cases should be done away
with and recommended in its place a standard of proof lower than that
of ‘proof beyond reasonable doubt’ and higher than the standard of
‘proof on preponderance of probabilities’. The Committee
therefore favours a mid level standard of proof of “courts
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conviction that it is true”. Accordingly, the Committee has made the following
recommendations:

(13) i) The Committee recommends that the standard of ‘proof beyond

reasonable doubt’ presently followed in criminal cases shall be
done away with.
ii) The Committee recommends that the standard of proof in criminal
cases should be higher than the one prescribed in Section 3 of the
Evidence Act and lower than ‘proof beyond reasonable doubt’.
iii) Accordingly the Committee recommends that a clause be added in
Section 3 on the following lines:
“In criminal cases, unless otherwise provided, a fact is said to be
proved when, after considering the matter before it, the court is
convinced that it is true”.
(The clause may be worded in any other way to incorporate the
concept in para 2 above)
iv) The amendments shall have effect notwithstanding anything
contained to the contrary in any judgment order or decision of any
court.

6. JUSTICE TO V ICTIMS OF CRIME

An important object of the Criminal Justice System is to ensure justice to

the victims, yet he has not been given any substantial right, not even to
participate in the criminal proceedings. Therefore, the Committee feels that the
system must focus on justice to victims and has thus, made the following
recommendations which include the right of the victim to participate in cases
involving serious crimes and to adequate compensation.

(14) i) The victim, and if he is dead, his legal representative shall have the
right to be impleaded as a party in every criminal proceeding where
the change is punishable with 7 years imprisonment or more.
ii) In select cases notified by the appropriate government, with the
permission of the court an approved voluntary organization shall
also have the right to implead in court proceedings.
iii) The victim has a right to be represented by an advocate of his choice;
provided that an advocate shall be provided at the cost of the State if
the victim is not in a position to afford a lawyer.
iv) The victim’s right to participate in criminal trial shall, inter alia,
include:
a) To produce evidence, oral or documentary, with leave of the
Court and/or to seek directions for production of such evidence
b) To ask questions to the witnesses or to suggest to the court
questions which may be put to witnesses
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c) To know the status of investigation and to move the court to

issue directions for further to the investigation on certain
matters or to a supervisory officer to ensure effective and
proper investigation to assist in the search for truth.
d) To be heard in respect of the grant or cancellation of bail
e) To be heard whenever prosecution seeks to withdraw and to
offer to continue the prosecution
f) To advance arguments after the prosecutor has submitted
arguments
g) To participate in negotiations leading to settlement of
compoundable offences

v) The victim shall have a right to prefer an appeal against any

adverse order passed by the court acquitting the accused,
convicting for a lesser offence, imposing inadequate sentence, or
granting inadequate compensation. Such appeal shall lie to the
court to which an appeal ordinarily lies against the order of
conviction of such court.
vi) Legal services to victims in select crimes may be extended to
include psychiatric and medical help, interim compensation and
protection against secondary victimization.
vii) Victim compensation is a State obligation in all serious crimes,
whether the offender is apprehended or not, convicted or acquitted.
This is to be organised in a separate legislation by Parliament. The
draft bill on the subject submitted to Government in 1995 by the
Indian Society of Victimology provides a tentative framework for
consideration.
viii) The Victim Compensation law will provide for the creation of a
Victim Compensation Fund to be administered possibly by the
Legal Services Authority. The law should provide for the scale of
compensation in different offences for the guidance of the Court. It
may specify offences in which compensation may not be granted
and conditions under which it may be awarded or withdrawn.

It is the considered view of the Committee that criminal justice

administration will assume a new direction towards better and quicker justice once
the rights of victims are recognized by law and restitution for loss of life, limb and
property are provided for in the system. The cost for providing it is not exorbitant
as sometimes made out to be. With increase in quantum of fine recovered,
diversion of funds generated by the justice system and soliciting
public contribution, the proposed victim compensation fund can be mobilized
at least to meet the cost of compensating victims of violent crimes. Even
if part of the assets confiscated and forfeited in organised crimes and
financial frauds is also made part in the Fund and if it is managed efficiently,
there will be no paucity of resources for this well conceived reform. In any case,
272

dispensing justice to victims of crime cannot any longer be ignored on grounds of

scarcity of resources.

7. INVESTIGATION

The machinery of Criminal Justice System is put into gear when an offence is
registered and then investigated. A prompt and quality investigation is therefore
the foundation of the effective Criminal Justice System. Police are employed to
perform multifarious duties and quite often the important work of expeditious
investigation gets relegated in priority. A separate wing of investigation with clear
mandate that it is accountable only to Rule of Law is the need of the day.
Most of the Laws, both substantive as well as procedural were enacted more
than 100 years back. Criminality has undergone a tremendous change qualitatively
as well as quantitatively. Therefore the apparatus designed for investigation has to
be equipped with laws and procedures to make it functional in the present context.
If the existing challenges of crime are to be met effectively, not only the mindset of
investigators needs a change but they have to be trained in advanced technology,
knowledge of changing economy, new dynamics of social engineering, efficacy
and use of modern forensics etc. Investigation Agency is understaffed, ill equipped
and therefore the gross inadequacies in basic facilities and infrastructure also need
attention on priority.
There is need for the Law and the society to trust the police and the police
leadership to ensure improvement in their credibility.

In the above back drop following recommendations are made:

(15) The Investigation Wing should be separated from the Law and Order Wing.

(16) National Security Commission and the State Security Commissions at the
State level should be constituted, as recommended by the National Police
Commission.

(17) To improve quality of investigation the following measures shall be taken:

i. The post of an Additional SP may be created exclusively for
supervision of crime.
ii. Another Additional SP in each Dist. should be made responsible for
collection, collation and dissemination of criminal intelligence;
maintenance and analysis of crime data and investigation of
important cases .
iii. Each State should have an officer of the IGP rank in the State Crime
Branch exclusively to supervise the functioning of the Crime Police.
The Crime Branch should have specialised squads for organised
crime and other major crimes.
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iv. Grave and sensational crimes having inter-State and transnational

ramifications should be investigated by a team of officers and not by a
single IO.
v. The Sessions cases must be investigated by the senior-most police officer
posted at the police station.
vi. Fair and transparent mechanisms shall be set up in place where they do
not exist and strengthened where they exist, at the District Police Range
and State level for redressal of public grievances.
vii. Police Establishment Boards should be set up at the police headquarters
for posting, transfer and promotion etc of the District. Level officers.
viii. The existing system of Police Commissioner’s office which is found to be
more efficient in the matter of crime control and management shall be
introduced in the urban cities and towns.
ix. Dy.SP level officers to investigate crimes need to be reviewed for
reducing the burden of the Circle Officers so as to enable them to devote
more time to supervisory work.
x. Criminal cases should be registered promptly with utmost promptitude by
the SHOs .
xi. Stringent punishment should be provided for false registration of cases
and false complaints. Section 182/211 of IPC be suitably amended
xii. Specialised Units/Squads should be set up at the State and District. level
for investigating specified category crimes.
xiii. A panel of experts be drawn from various disciplines such as auditing,
computer science, banking, engineering and revenue matters etc. at the
State level from whom assistance can be sought by the investigating
officers .
xiv. With emphasis on compulsory registration of crime and removal of
difference between non-cognizable and cognizable offences, the work
load of investigation agencies would increase considerately. Additionally,
some investigations would be required to be done by a team of
investigators. For liquidating the existing pendency, and, for prompt and
quality investigation including increase in the number of Investigating
Officers is of utmost importance. It is recommended that such number be
increased at least two-fold during the next three years.
xv. Similarly for ensuring effective and better quality of supervision of
investigation, the number of supervisory officers (additional SPs/Dy.SP)
should be doubled in next three years.

xvi. Infrastructural facilities available to the Investigating Officers

specially in regard to accommodation, mobility, connectivity,
use of technology, training facilities etc. are grossly inadequate
and they need to be improved on top priority. It is recommended
a five year rolling plan be prepared and adequate funds are
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made available to meet the basic requirements of personnel and

infrastructure of the police.

(18) The training infrastructure, both at the level of Central Govt. and State
Govts., should be strengthened for imparting state-of-the-art training to
the fresh recruits as also to the in-service personnel. Hand-picked
officers must be posted in the training institutions and they should be
given adequate monetary incentive

(19) Law should be amended to the effect that the literate witness signs the
statement and illiterate one puts his thumb impression thereon. A copy of
the statement should mandatorily be given to the witness.

(20) Audio/video recording of statements of witnesses, dying declarations and

confessions should be authorized by law.

(21) Interrogation Centres should be set up at the District. Hqrs. in each

District., where they do not exist, and strengthened where they exist,
with facilities like tape recording and or videography and photography
etc.

(22) (i) Forensic Science and modern technology must be used in

investigations right from the commencement of investigations. A
cadre of Scene of Crime Officers should be created for preservation
of scene of crime and collection of physical evidence there-from.
(ii) The network of CFSLs and FSLs in the country needs to be
strengthened for providing optimal forensic cover to the
investigating officers. Mini FSLs and Mobile Forensic Units
should be set up at the District./Range level. The Finger Print
Bureaux and the FSLs should be equipped with well trained
manpower in adequate numbers and adequate financial resources.

(23) Forensic Medico Legal Services should be strengthened at the District.

and the State /Central level, with adequate training facilities at the
State/Central level for the experts doing medico legal work. The State
Govts. must prescribe time frame for submission of medico legal reports.

(24) A mechanism for coordination amongst investigators, forensic experts

and prosecutors at the State and Dist. level for effective investigations
and prosecutions should be devised.
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(25) Preparation of Police Briefs in all grave crimes must be made mandatory.
A certain number of experienced public prosecutors must be set apart in
each District. to act as Legal Advisors to the District. police for this
purpose.

(26) An apex Criminal intelligence bureau should be set up at the national

level for collection, collation and dissemination of criminal intelligence.
A similar mechanism may be devised at the State, District. and Police
Station level.

(27) As the Indian Police Act, 1861, has become outdated, a new Police Act
must be enacted on the pattern of the draft ‘prepared by the National
Police Commission.

(28) Section 167 (2) of the Code be amended to increase the maximum period
of Police custody to 30 days in respect of offences punishable with
sentence more than seven years.

(29) Section 167 of the Code which fixes 90 days for filing charge sheet
failing which the accused is entitled to be released on bail be amended
empowering the Court to extend the same by a further period up to 90
days if the Court is satisfied that there was sufficient cause, in cases
where the offence is punishable with imprisonment above seven years.

(30) A suitable provision be made to enable the police take the accused in
police custody remand even after the expiry of the first 15 days from the
date of arrest subject to the condition that the total period of police
custody of the accused does not exceed 15 days.

(31) A suitable provision be made to exclude the period during which the
accused is not available for investigation on grounds of health etc., for
computing the permissible period of police custody.

(32) Section 438 of the code regarding anticipatory bail be amended to the
effect that such power should be exercised only by the Court of
competent jurisdiction only after giving the public prosecutor an
opportunity of being heard.

(33) Section 161 of the Code be amended to provide that the statements by
any person to a police officer should be recorded in the narrative or
question and answer form.
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(34) In cases of offences where sentence is more than seven years it may also
be tape / video recorded.

(35) Section 162 be amended to require that it should then be read over and
got signed by the maker of the statement and a copy furnished to him.

(36) Section 162 of the Code should also be amended to provide that such
statements can be used for contradicting and corroborating the maker of
the statement.

(37) Section 25 of the Evidence Act may be suitably amended on the lines of
Section 32 of POTA 2002 that a confession recorded by the Supdt. of
Police or Officer above him and simultaneously audio / video recorded is
admissible in evidence subject to the condition the accused was informed
of his right to consult a lawyer.

(38) Identification of Prisoners Act 1920 be suitably amended to empower the

Magistrate to authorize taking from the accused finger prints, foot prints,
photographs, blood sample for DNA, finger printing, hair, saliva or
semen etc., on the lines of Section 27 of POTA 2002.

(39) A suitable provision be made on the lines of sections 36 to 48 of POTA

2002 for interception of wire, electric or oral communication for
prevention or detection of crime.

(40) Suitable amendments be made to remove the distinction between

cognizable and non-cognizable offences in relation to the power of the
police to investigate offences and to make it obligatory on the police
officer to entertain complaints regarding commission of all offences and
to investigate them.

(41) Refusal to entertain complaints regarding commission of any offence

shall be made punishable.

(42) Similar amendments shall be made in respect of offences under special

laws.

(43) A provision in the Code be made to provide that no arrest shall be made
in respect of offences punishable only with fine, offences punishable with
fine as an alternative to sentence of imprisonment.

(44) In the schedule to the Code for the expression “cognizable”, the expression “arrestable
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without warrant” and for the expression “non-cognizable” the expression

“arrestable with warrant or order” shall be substituted.

(45) The Committee recommended for the review and re-enactment of the
IPC, Cr.PC and Evidence Act may take a holistic view in respect to
punishment, arrestability and bailability.

(46) Consequential amendments shall be made to the first schedule in the

column relating to bailability in respect of offences for which the
Committee has recommended that no arrest shall be made.

(47) Even in respect of offences which are not arrestable, the police should
have power to arrest the person when he fails to give his name and
address and other particulars to enable the police to ascertain the same.
Section 42 of the Code be amended by substituting the word “any” for the
words “of non-cognizable”

(48) As the Committee has recommended removal of distinction between

cognizable and non-cognizable offences, consequential amendments shall
be made.

(49) The first schedule to the Code be amended to provide only the following
particulars.
i. Section
ii. Offence
iii. Punishment
iv. No arrest / arrestable with warrant or order / arrestable without
warrant or order.
v. Bailable or non-bailable
vi. Compoundable or non-compoundable
vii. Triable by what court.
Consequential amendments shall be made to part-II of the first Schedule
in respect of offences against other laws.

(50) Rights and duties of the complainant/informant, the victim, the accused,
the witnesses and the authorities to whom they can approach with their
grievances should be incorporated in separate Schedules to the Code.
They should be translated in the respective regional languages and made
available free of cost to the citizens in the form of easily understandable
pamphlets.

(51) Presence of witnesses of the locality or other locality or neighbourhood is required

under different provisions of the existing laws. The Committee recommends that
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such provisions be deleted and substituted by the words “the police

should secure the presence of two independent witnesses”.

8. PROSECUTION

Prosecutors are the Officers of the Court whose duty is to assist the court in the
search of truth which is the objective of the Criminal Justice System. Any
amount of good investigation would not result in success unless the institution
of prosecution has persons who are of merit and who are committed with
foundation of a well structured professional training.
This important institution of the Criminal Justice System has been weak
and somewhat neglected. Its recruitment, training and professionalism need
special attention so as to make it synergetic with other institutions and effective
in delivering good results.

The following recommendations are made in this regard:

(52) (i) In every State, the post of the Director of Prosecution should be
created, if not already created, and should be filled up from among
suitable police officers of the rank of DGP in consultation with the
Advocate General of the State.
(ii) In States where the term of the existing incumbents comes to an
end, such appointments shall be made, after the expiry of the term.
(53) The Assistant Public Prosecutors and Prosecutors (other than the State
Public Prosecutor in the High Court) shall be subject to the administrative
and disciplinary control of the Director of Prosecutions.

(54) The duties of the Director, inter alia, are to facilitate effective
coordination between the investigating and prosecuting officers and to
review their work and meeting with the Public Prosecutors, Additional
Public Prosecutors and Assistant Public Prosecutors from time to time for
that purpose.

(55) The Director must function under the guidance of the Advocate General.

(56) i) All appointments to APPs shall be through competitive

examination held by the Public Service Commission having
jurisdiction.
ii) 50% of the vacancies in the posts of Public Prosecutors or
Additional Public Prosecutors at District level in each State shall
be filled up by selection and promotion on seniority-cum-merit
from the APPs.
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iii) Remaining 50% of the posts of Public Prosecutors or Additional

Public Prosecutor shall be filled by selection from a panel prepared
in consultation with District Magistrates and District Judges.
iv) No person appointed as APP or promoted as Public Prosecutor
shall be posted in the Home district to which he belongs or where
he was practicing.
v) Public Prosecutors appointed directly from the Bar shall hold office
for a period of three years. However, the State may appoint as
Special public prosecutor any member of the Bar for any class of
cases for a specified period.
vi) In appointing to various offices of Public Prosecutors and Assistant
Public Prosecutors sufficient representation shall be given to
women.

(57) Assistant Public Prosecutors should be given intensive training, both

theoretical and practical. Persons in service should be given periodical
in-service training.

(58) To provide promotional avenues and to use their expertise. Posts be

created in institutions for Training for Prosecutors and Police Officers.

(59) To ensure accountability, the Director must call for reports in all cases
that end in acquittal, from the Prosecutor who conducted the case and the
Superintendent of Police of the District.

(60) All Prosecutors should work in close co-operation with the police
department, and assist in the speedy and efficient prosecution of criminal
cases and render advice and assistance from time to time for efficient
performance of their duties.

(61) The Commissioner of Police / Dist. Supdt of Police may be empowered

to hold monthly review meetings of P.Ps / Additional PPs and APPs for
ensuring proper co-ordination and satisfactory functioning.

(62) Provision may be made for posting Public Prosecutor / Senior Asst.
Public Prosecutors at the Commissionerate / Dist. Supdt. offices for
rendering legal advice.

9. COURTS AND JUDGES

There is gross inadequacy of Judges to cope up the enormous pendency

and new inflow of cases. The existing Judge population ratio in India
is 10.5:13 per million population as against 50 Judges per million
population in the many parts of the world. The Supreme Court has
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given directions to all the States to increase the Judge strength by five times in a
phased manner within the next five years. The vacancies in the High Courts
have remained unfilled for years. This must be remedied quickly.
The Committee is deeply concerned about the deterioration in the quality
of Judges appointed to the courts at all levels. The Constitution of a National
Judicial Commission is being considered at the national level to deal with
appointment of the Judges to the High Courts and the Supreme Court and to
deal with the complaints of misconduct against them. The mere entrustment of
the power of appointment to the National Judicial Commission will not ensure
appointment of competent and upright Judges. We need a process to ensure
objectivity and transparency in this behalf. This requires laying down the
precise qualifications, experience, qualities and attributes that are needed to in a
good Judge and also the prescription of objective criteria to apply to the overall
background of the candidate. The analysis and discussions preceding their
recommendations should be recorded so as to ensure objectivity and
transparency in the matter of selecting the candidates.
There are also complaints of serious aberrations in the conduct of the
Judges. Under Article 235 of the Constitution, the High Court can exercise
supervision and control over the subordinate courts. There is no such power
conferred either on the Chief Justice of the High Court or the Chief Justice of
India, or the Supreme Court of India. The provisions for impeachment are quite
difficult to implement. It is felt that the Chief Justice should be conferred
certain powers to enforce discipline and to take some corrective or advisory
measures against his colleagues whenever aberrations in their conduct come to
notice.
The Committee also feels that criminal work is highly specialized and to
improve the quality of justice only those who have expertise in criminal work
should be appointed and posted to benches to deal exclusively with criminal
work. As the available expertise at all levels is found to be woefully inadequate
the Committee feels that suitably tailored intensive training including practical
programme should be devised and all the Judges given training not only at the
induction time but also in service at frequent intervals. To achieve these
objectives, the following recommendations are made:

(63) (i) Qualifications prescribed for appointment of Judges at different

levels should be reviewed to ensure that highly competent Judges
are inducted at different levels.
(ii) Special attention should be paid to enquire into the background and
antecedents of the persons appointed to Judicial Offices to ensure
that persons of proven integrity and character are appointed.

(64) Intensive training should be imparted in theoretical, practical and in court

management to all the Judges.
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(65) (i) In the Supreme Court and High Courts, the respective Chief
Justices should constitute a separate criminal division consisting of
such number of criminal benches as may be required consisting of
Judges who have specialized in criminal law.
(ii) Such Judges should normally be continued to deal with criminal
cases until they demit office.
(iii) Vacancies in the criminal divisions should be filled up by
appointing those who have specialized knowledge in criminal law.

(66) In the subordinate courts where there are more Judges of the same cadre
at the same place, as far as possible assigning of civil and criminal cases
to the same Judge every day should be avoided.

(67) In urban areas where there are several trial courts some courts should
have lady Judges who should be assigned as far as possible criminal cases
relating to women.

(68) A high power committee should be constituted to lay down the

qualifications, qualities and attributes regarding character and integrity
that the candidate for the High Court Judgeship should possess and
specify the evidence or material necessary to satisfy these requirements.
Reasons should be recorded with reference to these criteria by the
selecting authority.

(69) The Chief Justice of the High Court may be empowered on the lines of
U.S. Judicial Councils Reform and Judicial Conduct and Disabilities Act
1980 to do the following:
i. Advise the Judge suitably
ii. Disable the Judge from hearing a particular class of cases.
iii. Withdrawing judicial work for a specified period.
iv. Censure the Judge.
v. Advise the Judge to seek voluntary retirement.
vi. Move the Chief Justice of India to advise the Judge or
initiate action for impeachment.

(70) The Chief Justice of the High Court may issue circulars:
A) That immediately below the cause title of the judgment order
the following particulars shall be entered:

i) Date of conclusion of arguments.

ii) Date of reserving the judgment.
iii) Date of pronouncement of the judgment.
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iv) At the bottom of the judgment the following particulars

shall be entered: -
a) Date when the dictation was completed.
b) Date when typing was completed and placed before
the Judge.
c) The date when the Judge signed.

B) The Court Officer shall enter in a separate register: -

(i) The time when the Judge assembled.
(ii) The time when the Judge rose.
(iii) Copy of this record shall be sent to the Chief Justice on the
same day and put up on the notice board.
(71) The Committee recommends that the Law Commission’s consultation
paper on case management be accepted and the proposals carried out
without any delay.

10. TRIAL PROCEDURE

The Committee is concerned with enormous delay in decision making particularly

in trial courts. At present, a large number of cases in which punishment is two
years and less are tried as summons cases. The summary procedure prescribed by
Section 262 to 264 of the Code, if exercised properly, would quicken the pace of
justice considerably. However, the number of cases which are presently tried
summarily is quite small and maximum punishment that can be given after a
summary trial is three months. In order to speed up the process, the Committee
feels that all cases in which punishment is three years and below should be tried
summarily and punishment that can be awarded in summary trials should be
increased to three years. At present only specially empowered magistrate can
exercise summary powers which the Committee feels should be given to all the
Judicial Magistrates First Class.
Section 206 of the Code prescribes the procedure for dealing with ‘petty
offences’. This provision empowers the Magistrates to specify in the summons the
fine which the accused should pay if he pleads guilty and to send the fine amount
along with his reply to the court. This procedure is simple and convenient to the
accused, as he need not engage a lawyer nor appear before the court if he is not
interested in contesting the case. However, the definition of the expression ‘petty
offences’ restricts it to those offences punishable only with fine not exceeding
Rs.1000/-. In order to give benefit of this provision to large number of accused,
the Committee has favoured suitable modification of the expression ‘petty
offences’. Hence the following recommendations are made:

(72) (i) Section 260 of the Code be amended by substituting the word “shall”
for the words “may if he think fit.
(ii) Section 260 (1) (c) of the Code be amended empowering any Magistrate of
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First Class to exercise the power to try the cases summarily

without any special empowerment in this behalf by the High Court.
(iii) The limit of Rs.200/- fixed for the value of property under Section
260(1) (c) (ii, iii, iv) be enhanced to Rs. 5000/-.

(73) (i) Section 262(2) be amended to enhance the power of sentence of

imprisonment from three months to three years.
(ii) Section 2(x) be amended by substituting the word “three” for the
word “two”.

(74) That all Magistrates shall be given intensive practical training to try cases
following the summary procedure.

(75) Section 206 be amended to make it mandatory to deal with all petty cases
in the manner prescribed in sub-section (1).

(76) (i) In the proviso to sub-section(1) the fine amount to be specified in

the summons shall be raised to Rs. 2000/-.
(ii) Notice to the accused under Section 206 shall be in form No.30-A
and the reply of the accused shall be in form No. 30-B as per
annexures.

(77) In Sub-section (2) of Section 206 the limit relating to fine be raised to
Rs.5000/-.

(78) (i) Sub-section (3) shall be suitably amended to empower every

Magistrate to deal with cases under Sub-section (1). Offences
which are compoundable under Section 320 or any offence
punishable with imprisonment for a term not exceeding one year or
with fine or with both.
(ii) (a) Section 62 of the Code be amended by deleting reference to
the need for rules by State Government for alternate modes
of service.
(b) In Section 69 before the word “witness” the words “accused
or” be added wherever the word “witness” occurs.

11. WITNESSES AND PERJURY

The prosecution mainly relies on the oral evidence of the witnesses for
proving the case against the accused. Unfortunately there is no dearth of
witnesses who come to the courts and give false evidence with impunity. This
is a major cause of the failure of the system. The procedure prescribed for
taking action against perjury is as cumbersome and as it is unsatisfactory.
Many witnesses give false evidence either because of inducement or because
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of the threats to him or his family members. There is no law to give protection
to the witnesses subject to such threats, similar to witness protection laws
available in other countries.
Unfortunately the witnesses are treated very shabbily by the system.
There are no facilities for the witnesses when they come to the court and have
to wait for long periods, often their cross-examination is unreasonable and
occasionally rude. They are not given their TA/DA promptly. The witnesses
are not treated with due courtesy and consideration; nor are they protected.
Witnesses are required to come to the court unnecessarily and repeatedly as a
large number of cases are posted and adjourned on frivolous grounds. To
overcome these problems, the Committee has made the following
recommendations:

(79) (i) Witness who comes to assist the court should be treated with
dignity and shown due courtesy. An official should be assigned to
provide assistance to him.
(ii) Separate place should be provided with proper facilities such as
seating, resting, toilet, drinking water etc. for the convenience of
the witnesses in the court premises.

(80) Rates of traveling and other allowance to the witness should be reviewed
so as to compensate him for the expenses that he incurs. Proper
arrangements should be made for payment of the allowances due to the
witness on the same day when the case is adjourned without examining
the witness he should be paid T.A and D.A. the same day.

(81) A law should be enacted for giving protection to the witnesses and their
family members on the lines of the laws in USA and other countries.

(82) Courts should list the cases in such a manner as to avoid the witnesses
being required to come again and again for giving evidence. The trial
should proceed on day to day basis and granting of adjournments should
be avoided. The Judge should be held accountable for any lapse in this
behalf. High Court should ensure due compliance through training and
supervision.

(83) Evidence of Experts falling under Sections 291, 292 and 293 of the Court
may as far as possible received under Affidavit.

(84) DNA experts should be included in Subsection 4 of Section 293 of the

Code.

(85) The witness should be provided a seat for him to sit down and give
evidence in the court.
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(86) The Judge should be vigilant and regulate cross-examination to prevent

the witness being subjected to harassment, annoyance or indignity. This
should be ensured through training and proper supervision by the High
Courts.

(87) (i) Section 344 of the Code may be suitably amended to require the
court to try the case summarily once it forms the opinion that the
witness has knowingly or willfully given false evidence or
fabricated false evidence with the intention that such evidence
should be used in such proceeding. The expression occurring in
344 (1) to the effect “if satisfied that it is necessary and expedient
in the interest of justice that the witnesses should be tried
summarily for giving or fabricating as the case may be, false
evidence” shall be deleted.
(ii) The Committee recommends that the punishment of three months
or fine up to Rs. 500/- or both should be enhanced to imprisonment
of two years or fine up to Rs. 10000/- or both.
(iii) Sub-section 3 may be suitably amended to the effect that if the
Court of Session or Magistrate of first class disposing the judicial
proceeding is however satisfied that it is necessary and expedient in
the interest of justice that the witness should be tried and punished
following the procedure prescribed under Section 340 of the Code,
it shall record a finding to that effect and proceed to take further
action under the said provision. Section 341 providing for appeal is
unnecessary and shall be deleted.

(88) As the oath or affirmation administration to the witnesses has become an

empty formality and does not act as a deterrent against making false
statements by the witnesses, it is recommended that a provision should be
incorporated requiring the Judge administering the oath or affirmation to
caution the witness that he is in duty bound under Section 8 of the Oaths
Act to speak the truth and that if he makes a false statement in violation
of the oath or affirmation that has been administered to him, the court has
the power to punish him for the offence of perjury and also to inform him
of the punishment prescribed for the said offence.

(89) It is further recommended that the High Court may impress upon the
subordinate courts of their duty to resort to these provisions to curb the
menace of perjury, through training and calling for periodic reports.

12. V ACATIONS FOR COURT

In view of the large pendency and mounting arrears of criminal cases, the long vacations for
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the High Courts and Supreme Courts in the larger public interest, the Committee
feels that there should be a reduction of the vacations. Hence, the following
recommendations are made:

(90) (i) The working days of the Supreme Court be raised to 206 days.
(ii) The working days of the High Courts be raised to 231 days.
(iii) Consequently, the Supreme Court and the High Courts shall reduce
their vacations by 21 days on the increase in their working days.

13. ARREARS ERADICATION SCHEME

The recommendations made by the Committee in this report would help in

reducing the arrears and speeding up the trials; but to tackle the huge arrears a
complementary strategy is recommended. Govt. of India, Ministry of Law and
Justice has created a ‘fast track courts’ scheme for dealing with the sessions
cases. Though the scheme is good it is beset with many practical problems
besides being limited to dealing with sessions cases. The Committee is in
favour of working out an ‘Arrears Eradication Scheme’ for the purpose of
tackling all the cases that are pending for more than 2 years on the appointed
day.
To carry out the scheme, the Committee feels that a retired Judge of a
High Court who is known for effective and expeditious disposal of criminal
cases should be put in charge of the Arrears Eradication Scheme as the sitting
Judges may not find the time for it. Hence the following recommendations.

(91) Arrears Eradication scheme should be framed on lines suggested in the

Section “Arrears Eradication Scheme”.

(92) There should be a cell in the High Court whose duty shall be to collect
and collate information and particulars from all the Subordinate courts in
regard to cases pending in the respective courts for more than two years,
to identify the cases among them which can be disposed of summarily
under Section 262 of the Code or as petty cases under Section 206 of the
Code and cases which can be compounded with or without the leave of
the court.

(93) On the coming into the force of the scheme, arrangements shall be made
for sending all the compoundable cases to the Legal Service Authority for
settling those cases through Lok Adalats on priority basis.

(94) The courts constituted under the Arrears Eradication scheme shall dispose of cases
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on priority basis. The arrears of cases triable under Section 262 and
under Section 206 shall be disposed of expeditiously.

(95) The Courts constituted under the Arrears Eradication Scheme shall
dispose of the cases expeditiously.

(96) A case taken up for hearing should be heard on a day to day basis until
conclusion. Only such number of cases as can be conveniently disposed
of shall be posted for hearing every day as far as possible in consultation
with the concerned lawyers.

(97) Once the case is posted for hearing it shall not be adjourned. If under
special circumstances a case is required to be adjourned, it should be
done for reasons to be recorded in writing subject to payment of costs and
also the amount of expenses of the witnesses. The court in its discretion
shall award costs to the other party or direct that the same shall be
credited to the victim compensation fund if one is constituted.

(98) The (retired) Judge incharge of the Arrears Eradication scheme shall
make an estimate of the number of additional courts required to be
constituted for eradication of the arrears at each place including the
requirement of staff, number of Public Prosecutors and other
infrastructure required and move the concerned authorities to appoint
them.

(99) The High Court shall take effective measures to ensure that the current
cases are disposed of expeditiously and that no current cases would be
pending for more than two years. Additional Courts if needed for this
purpose should be sanctioned expeditiously.

14. OFFENCES, SENTENCES, SENTENCING & COMPOUNDING

Since the IPC was enacted in the year 1860, many developments have taken
place, new forms of crimes have come into existence, punishments for some
crimes are proving grossly inadequate and the need for imposing only fine as a
sentence for smaller offences is felt. Variety of the punishments prescribed is
limited. Thus there is need to have new forms of punishments such as
community service, disqualification from holding public offices, confiscation
orders, imprisonment for life without commutation or remission etc. Hence the
Committee is in favour to review the IPC.
The IPC prescribes only the maximum punishments for the offences and in some
cases minimum punishment is also prescribed. The Judge exercises wide discretion within
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the statutory limits. There are no statutory guidelines to regulate his discretion.
Therefore in practice there is much variance in the matter of sentencing. There
is no clear indication as to what are all factors that should be taken into account
in the matter of assessing the sentences to be imposed. In many countries there
are laws prescribing sentencing guidelines. The Committee is therefore in
favour of a permanent Statutory Committee being constituted for the purpose of
prescribing sentencing guidelines.
As the fines were prescribed more than a century ago and value of the
rupee has since gone down considerably, the Committee feels that it should be
suitably enhanced.
The practice of jailing women who are pregnant or having young child,
the Committee feels this is cruel and most unreasonable to virtually to put the
innocent child in prison for no fault of the child which will also affect his future
life. Therefore pregnant women or women with child (below 7 years) should,
instead of being sent to prison, be ordered to be under house arrest. This, the
Committee feels is not a charity but the legitimate right of the unborn and
young children.
The Committee feels that the law should lean in favour of settlement of
cases without trial, where the interest of the society is not involved. The Law
Commission has already made its recommendations on this. The
implementation of the Law Commission recommendations with the inclusion of
more offences in the category of cases that can be compounded is
recommended.

(100) The Committee recommends that wherever fine is prescribed as one of

the punishments, suitable amendment shall be made to increase the fine
amount by fifty times.

(101) In respect of offences for which death is a punishment, the sentence for
“imprisonment for life without commutation or remission” be prescribed as
an alternative sentence. Suitable amendments shall be made to make it clear
that when such punishment is imposed, the Government is precluded from
commuting or remitting the sentence.

(102) When a woman who is pregnant or has a child below 7 years is sentenced to
any term of imprisonment, a provision shall be made to give effect to that
sentence by directing that she shall remain under house arrest during that
period. Similar provisions shall be made in respect of such women who are
remanded to judicial custody.

(103) IPC empowers the court to prescribe the sentence of imprisonment when the
accused commits default in payment of fine. The Committee recommends
that a suitable provision should be made empowering the court to prescribe
as an alternative to default sentence, community service for a specified time.
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(104) The Committee recommends that a statutory Committee be constituted to

lay down sentencing guidelines to regulate the discretion of the court in
imposing sentences for various offences under the IPC and Special Local
Laws under the Chairmanship of a former Judge of the Supreme Court or
a retired Chief Justice of a High Court who has experience in Criminal
Law, and with members representing the Police department, the legal
profession, the Prosecution, Women and a social activist.

(105) The Committee recommends review of the Indian Penal Code to consider
enhancement, reduction or prescribing alternative modes of punishments,
creating new offences in respect of new and emerging crimes and
prescribing new forms of punishments wherever appropriate and
including more offences in the category of compoundable offences and
without leave of the court.

(106) The Committee recommends implementation of 142nd and 154th

reports of the Law Commission of India in regard to settlement of cases
without trial.

15. RECLASSIFICATION OF OFFENCES

It is recommended that non-cognizable offences should be registered and

investigated and arrestability shall not depend on cognizability, the present
classification has further lost its relevance.
However the Committee feels that when reviewing the Indian Penal Code
it may be examined whether it would be helpful to make a new classification
into i) The Social Welfare Code, ii) The Correctional Code, iii) The Criminal
Code and iv) Economic and other Offences Code. Hence the following
recommendations:-

(107) To remove the distinction between cognizable and non-cognizable

offences and making it obligatory on the Police Officer to investigate all
offences in respect of which a compliant is made. This is discussed in
the chapter on ‘Investigation’.

(108) Increasing the number of cases falling within the category of cases
triable by following the summary procedure prescribed by Sections 262
to 264 of the code in respect of which recommendations have been
made in the Section dealing with “Trial Procedure”.

(109) Increasing the number of offences falling in the category of ‘Petty

Offences’ which can be dealt with by following the procedure
prescribed by Section 206 of the Code which has been discussed in the
Section dealing with “Trial Procedure”.
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(110) Increasing the number of offences for which no arrest shall be made,
which has been discussed in the Section dealing with “ Investigation”.

(111) Increasing the number of offences where arrest can be made only with
the order of the court and reducing the number of cases where arrest can
be made without an order or warrant from the Magistrate, which has
been discussed in the Section dealing with “Investigation”.

(112) Increasing the number of offences which are bailable and reducing the
number of offences which are not bailable discussed in the Section
dealing with “Police Investigation”.

(113) Increasing the number of offences that can be brought within the
category of compoundable / settlement category discussed in Section
dealing with “Sentences and Sentencing”.

(114) The Committee recommends a comprehensive review of the Indian

Penal Code, the Evidence Act and the Criminal Procedure Code by a
broad based Committee representing the functionaries of the Criminal
Justice System, eminent men and women representing different schools
of thoughts, social scientists and vulnerable sections of the society and
to make recommendations to the Parliament for stronger and
progressive loss for the Country.

16. OFFENCES AGAINST WOMEN

There are several shortcomings or aberrations in dealing with the offences

against women which need to be addressed. The Committee feels that a man
who marries a second wife during the subsistence of the first wife should not
escape his liability to maintain his second wife under Section 125 of the Code
on the grounds that the second marriage is neither lawful nor valid.
The Supreme Court has held that, for proving bigamy, it is to be
established that the second marriage was performed in accordance with the
customary rites of either parties under the personal laws which is not easy to
prove. Therefore the Committee feels that evidence regarding a man and
woman living together for a reasonably long period should be sufficient to draw
the presumption that the marriage was performed according to the customary
rites of the parties.
As a man can be punished under Section 497 of IPC for adultery, for
having sexual intercourse with a wife of another man it stands to reason that
wife should likewise be punished if she has sexual intercourse with another
married man.

There is a general complaint that section 498A of the IPC regarding cruelty
by the husband or his relatives is subjected to gross misuse and many times
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operates against the interest of the wife herself. This offence is non-bailable and
non-compoundable. Hence husband and other members of the family are arrested
and can be behind the bars which may result in husband losing his job. Even if the
wife is willing to condone and forgive the lapse of the husband and live in
matrimony, this provision comes in the way of spouses returning to the
matrimonial home. This hardship can be avoided by making the offence bailable
and compoundable.
As instances of non-penal penetration are on the increase and they do not
fall in the definition under the offence of rape under Section 375 of the IPC, the
Committee feels that such non-penal penetration should be made an offence
prescribing a heavier punishment.
The Committee is not in favour of imposing death penalty for the offence of
rape, for in its opinion the rapists may kill the victim. Instead the Committee
recommends sentence of imprisonment for life without commutation or remission.
The Committee however feels that investigation and trial of rape cases
should be done with most expedition and with a high degree of sensitivity. The
Committee therefore, makes the following recommendations:

(115) Definition of the word ‘wife’in Section 125 of the Code be amended to
include a woman who was living with the man like his wife for
reasonable long period.

(116) Section 494 of the I.P.C be suitably amended to the effect that if the
man and woman were living together as husband and wife for a
reasonable long period the man shall be deemed to have married the
woman according to the customary rites of either party.

(117) Section 497 of the Indian Penal Code regarding offence of Adultery be
amended to include wife who has sexual intercourse with a married
man, by substituting the words “whosoever has sexual intercourse with
the spouse of any other person is guilty of adultery”.

(118) The Code may be suitably amended to make the offence under Section
498 A of the I.P.Code, bailable and compoundable.

(119) Forcible penetration, penile/oral, penile/anal, object or finger/vaginal

and object or finger/anal should be made a separate offence under the
IPC prescribing appropriate punishment on the lines of Section 376 of
I.P.Code.

(120) The Committee is not in favour of prescribing death penalty for the offence of rape.
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Instead the Committee recommends sentence of imprisonment for life

without commutation or remission.

(121) A suitable provision should be made requiring the officer investigating

to complete investigation of cases of rape and other sexual offences on
priority basis and requiring the court to dispose of such cases
expeditiously within a period of four months.

(122) Specialised training should be imparted to the Magistrates in regard to

trial of cases of rape and other sexual offences to instill in them
sensitivity to the feelings, image, dignity and reputation etc of the
victim.

(123) Provision should be made in the Code permitting filing of F.I.Rs in

respect of offences under Sections 376, 376-A, 376-B, 376-C, 376-D
and 377 of IPC within a reasonable time.

17. 18.& 19. ORGANISED CRIME, FEDERAL CRIME AND TERRORISM

Organised Crime and Terrorism have been growing globally and India has not
escaped their pernicious effect. The nexus between organised crime and
terrorism has also been a cause of serious concern to the Country. The
Committee has given deep consideration to inter-twined and inter-dependent
professional crimes in Indian as well as international background. The task of
dealing with the organised crime and the terrorism becomes more complicated
as structured group in organised crime is enmeshed with its counter-part (of
structured group) in terrorism. The former is actuated by financial/commercial
propositions whereas the latter is prompted by a wide range of motives and
depending on the point in time and the prevailing political ideology. The
Committee has given deep consideration to the growth of organised crime,
terrorism and their invisible co-relationship with the avowed objective to
destroy secular and democratic fabric of the country. The Committee feels that
time has come to sink political differences for better governance of the country
and address the task of dealing with theses menaces. In the backdrop of the
States’ reluctance to share political power, through legislatures, for enactment
of federal law to deal with certain crimes, the Committee has made
recommendations to deal with (a) organised crime (b) enactment of central law
to tackle federal crimes and (c) terrorism
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The Committee recommends that:

ORGANISED CRIME

(124) The Government release a paper delineating the genesis of organised

crime in India, its international ramifications and its hold over the
society, politics and the economy of the country.

(125) Enabling legislative proposals be undertaken speedily to amend

domestic laws to conform to the provisions of the UN Convention on
Transnational Organised Crime.

(126) An inter-Ministerial Standing Committee be constituted to oversee the

implementation of the Convention.

(127) The Nodal Group recommended by the Vohra Committee may be given
the status of a National Authority with a legal frame-work with
appropriate composition.
i. This Authority may be mandated to change the orientation and
perception of law enforcement agencies, sensitise the country to
the dimensions of the problem and ensure that investigations of
cases falling within the ambit of the Authority are completed
within a specified time-frame;
ii. The Authority should be empowered to obtain full information on
any case from any agency of the Central or the State
Governments;
iii. It should also have the power to freeze bank accounts and any
other financial accounts of suspects/accused involved in cases
under its scrutiny.
iv. The power to attach the property of any accused.

(128) Suitable amendments to provisions of the Code of Criminal Procedure,

the Indian Penal Code, the Indian Evidence Act and such other relevant
laws as required may be made to deal with the dangerous nexus
between politicians, bureaucrats and criminals.

(129) A special mechanism be put in place to deal with the cases involving a
Central Minister or a State Minister, Members of Parliament and State
Assemblies to proceed against them for their involvement.
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(130) That the Code of Criminal Procedure provide for attachment, seizure
and confiscation of immovable properties on the same lines as available
in special laws.

(131) A Central, special legislation be enacted to fight Organised Crime for a

uniform and unified legal statute for the entire country.

FEDERAL LAW

(132) That in view of legal complexity of such cases, underworld criminals /

crimes should be tried by federal courts (to be established), as
distinguished from the courts set up by the State Governments.

(133) That Government must ensure that End User Certificate for
international sales of arms is not misused (as happened in the Purulia
Arms Drop).

(134) The banking laws should be so liberalized as to make transparency the

corner-stone of transactions which would help in preventing money
laundering since India has become a signatory to the U.N. Convention
against Transnational Organised Crime.

(135) That a Federal Law to deal with crimes of inter-state and / or

international / trans-national ramification be included in List I (Union
List) of the Seventh Schedule to the Constitution of India.

TERRORISM

(136) A Department of Criminal Justice be established to not only carry out

the recommendations of the Committee but also set up a Committee,
preferably under an Act of Parliament, to appraise procedural and
criminal laws with a view to amend them as and when necessary.

(137) Crime Units comprising dedicated investigators and prosecutors and

Special Courts by way of Federal Courts be set up to expeditiously deal
with the challenges of ‘terrorist and organised’crimes.

(138) A comprehensive and inclusive definition of terrorists acts, disruptive

activities and organised crimes be provided in the Indian Penal Code
1860 so that there is no legal vacuum in dealing with terrorists, under-
world criminals and their activities after special laws are permitted to
lapse as in the case of TADA 1987.
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(139) The sunset provision of POTA 2002 must be examined in the light of
experiences gained since its enactment and necessary amendments
carried out to maintain human rights and civil liberties;

(140) Possession of prohibited automatic or semi-automatic weapons like AK-

47, AK-56 Rifles, Machine Guns, etc.) and lethal explosives and
devices such as RDX, Landmines detonators, time devices and such
other components should be made punishable with a punishment of
upto 10 years.

(141) Power of search and seizure be vested in the Intelligence agencies in the
areas declared as Disturbed Areas under the relevant laws.

20. ECONOMIC CRIMES

Inspite of well over 70 laws, apart from earlier laws in the Penal Code, the
magnitude and variety of Economic Crimes is going at a fast rate. The number
of agencies for regulation and investigation have also increased. Yet, the need
for rigorous laws and strong regulatory enforcement and investigation agencies
can not be more obvious. The attempts made in the last few decades to legislate
in the matter have not been quite successful. Our judicial processes have not
been helpful either. It is essential that these crimes are tackled urgently through
legislative and other measures and it is for this purpose that the following
recommendations are made:

(142) Sunset provisions should be continued in statutes and these provisions

be examined keeping in view the continuing changes in economy and
technology. Such statutes should not be allowed to become out-of-date
which can be ensured by comprehensive drafting of those statutes to
cover future crimes.

(143) i) The procedural laws regarding presumption of burden of proof in

the case of economic crimes should not be limited to explanation
of an accused who must rebut charges conclusively.
ii) Adverse inference should be drawn if violation of accounting
procedures are prima facie established and public documents,
including bank documents, should be deemed to be correct (AIR
1957 SC 211: 1957 Cr.LJ 328)

(144) Sentences in economic offences should not run concurrently, but

consecutively. Fines in these cases should be partly based on
seriousness of offence, partly on the ability of the individual/corporation
to pay, but ensuring that its deterrence is not lost.
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(145) Legislation on proceeds of crime be enacted on the lines of similar

legislation in the U.K and Ireland. An Asset Recovery Agency at the
Federal level and similar agency at the State Levels may be created.

(146) In the past, non-compliance with procedures, healthy norms,

institutional rules has led to financial frauds of enormous proportion.
The abdication of responsibility by Regulatory Bodies has also
contributed to the perpetuity of frauds. Keeping this in view, it is
recommended that Regulatory agencies should at all times be vigilant
and launch timely investigation and punish offenders expeditiously.

(147) While bona fide or inadvertent irregularities should normally be ignored

with appropriate advice for remedial action, the failure of the
Regulatory bodies in serious lapses should be viewed adversely by the
Central Government.

(148) Most economic crimes are amenable to investigation and prosecution by

the existing law and institutions, there are still some economic offenders
of such magnitude and complexity that could call for investigation by a
group of different kind of specialists. Therefore, it is recommended that
a mechanism by name ‘Serious Fraud Office’ be established by an Act
of Parliament with strong provisions to enable them to investigate and
launch prosecution promptly.
i. To inspire the confidence of the people and ensure autonomy, the
Chairman and Members of Serious Fraud Office be appointed for a
term of not more than five years following a procedure that itself
should inspire confidence, integrity, objectivity and independence.
ii. In a similar manner, State Government must set up Serious Fraud
Office, but appointment be made in consultation with the Chairman
of the Central Fraud Office to eliminate political influence.

(149) The Committee recommends that the existing Economic Intelligence

Units under Ministry of Finance be not only strengthened suitably by
induction of specialists, state-of-the-art technology and specialised
training. To achieve a common preventive strategy for tackling serious
economic crimes, it is necessary that a closer co-ordination
be maintained between the National Authority, the SFO, the Intelligence
Units and the regulatory authorities as also private agencies. They
should develop and share intelligence tools and database, which would
help investigation and prosecution of cases.
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(150) For tackling serious economic offences, it is necessary that our domestic
laws are made compatible with laws of other Countries. Mutual legal
assistance, under appropriate Conventions/Treaties/Protocols of the
United Nations should be developed for exchange of information of a
continuous basis.

(151) It is recommended that to reduce the work of Judges, the responsibility

of recovery of assets be given to a newly created Assets Recovery
Agency which will deal with not only forfeiture of confiscation on
behalf of courts and government departments but also support in certain
other type of work.

(152) The practice of appointing serving representatives of regulators on the

Board of Directors of financial institutions be discontinued immediately
to avoid conflict of interests. To ensure compliance with guidelines of
Regulators, the Government may consider appointing independent
professionals to represent regulators.

(153) An effective co-ordination mechanism must be introduced between the

Government and Regulators to detect suspicious activities in time and
take prompt action.

(154) Violations of environmental laws having serious economic and public

health consequences must be dealt with effectively and expeditiously.

(155) The Committee recommends the enactment of a law to protect

Informers, covering major crimes.

22. TRAINING – A STRATEGY FOR REFORM

(156) “Government and Judiciary will be well advised to invest in training

according to the eight point agenda (set out in the section on ‘Training
strategy for Reform’) for reaping the benefits of criminal justice
reforms in reasonable time.”

23. VISION FOR THE FUTURE

Society changes, so do its values. Crimes are increasing especially with

changes in technology. Ad hoc policy making and piecemeal legislation is not
the answer. The Committee therefore recommends the following:
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(157) That the Government may come out with a policy statement on criminal
justice.

(158) That a provision be incorporated in the Constitution to provide for a

Presidential Commission for periodical review of the functioning of the
Criminal Justice System.

Dr. Justice V.S. Malimath

Chairman

S. Varadachary, IAS (Retd) Amitabh Gupta,IPS (Retd) Prof(Dr.)N.R. Madhava Menon D.V. Subba Rao
Member Member Member Member

Durgadas Gupta
Member-Secretary

BANGALORE : 28.03.2003