ARC Report on Public Order

8/8/2019 ARC Report on Public Order

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p u b l i c o r

d e r

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public order

FiFth report

Second AdminiStrAtive reformS commiSSion

Justice for each . . . Peace for all

June 2007

S A s a r s c ss

G v nm n f ind a

2nd Fl , V gyan B awan Ann x , Maulana Azad r ad, N w D l 110 011-ma l : a c mm ss n@n c. n w bs : ://a c.g v. n



GOVERNMEN OF INDIA

SECOND ADMINIS RA IVE REFORMS COMMISSION

FIF H REPOR

PublIc ORDER

JuNE 2007



PREFACE

“I real criminals in our society are le t without punishment or years, because o delay in criminal justice or various reasons, it will indeed result in the multiplication o people taking to criminal acts.”

Dr. A.P.J. A d Ka am

Maintenan e o p i order and the r e o aw is a key sovereign n tion o the State, asimportant in its own way as de ending the nation rom externa aggression or maintaining the

nity and integrity o the nation State. “It is thro gh the r e o aw”, wrote Haro d laski, “that we have so ght to avoid not mere y the o vio s dangers o n ettered exe tive dis retion inadministration, we have so ght a so to ens re that the itizen sha have his rights de ided y a ody o men whose se rity o ten re is sa eg arded against the shi ting rrents o p i opinion”.R e o aw has een de ned y Di ey as “the a so te s prema y and predominan e o reg ar

aw as opposed to the in en e o ar itrary power, and ex des the existen e o ar itrariness,o prerogative or even wide dis retionary a thority on the part o government”. Te eminent j rist, lo ke, p t it s in t y, “wherever aw ends, tyranny egins”. by p tting the ives and

i erty o ommon itizens at risk, the possi e o apse o p i order and o the r e o aw has the potentia to destroy the aith o itizens in its government and erode its egitima y. larges a e vio en e and disr ption an threaten a o ntry’s so ia a ri , endanger nationa nity anddestroy prospe ts or e onomi growth and deve opment. I there is a ai re o p i order, itis e a se o the inadeq a ies o the egis at re, the exe tive and the j di iary and we need toaddress them ho isti a y in order to hange things or the etter.

Te po i e have a ways een re ognised as a vita arm o the State, whether in the an ientkingdoms that r ed India or in the ity states o Gree e. O r o onia r ers re ognised theimportan e o maintaining p i tranq i ity thro gh the se o an armed po i e or e knowingthat the ten o s grip o a ew tho sand british over India’s teeming mi ions wo d not s r vive any

arge s a e p i ps rge. Tey did so y esta ishing good omm ni ation inks - the rai waysand the posta servi es - and y sing the strong arm o the State to p t down, with the se o

or e, any sign o ha enge to the a thority o the british crown. Tey there ore deve oped thepo i e in India as an armed or e, as an organisation oriented not to the servi e o the peop e o India t prin ipa y to maintain the a thority o the crown. It was an agen y o oppression, o s j gation, sed or prote ting british interests and to s stain their empire. Te re ationship

etween the po i e and the p i was one o s spi ion.

At Independen e, Sardar Pate , even tho gh a witness thro gho t the reedom str gg e tothe indis riminate se o the et and the athi y the po i e, knew that the po i e and the

ivi servi es were t the instr ments o the government o the day. He e t that i these servi eso d serve a oreign power, e ient y and e e tive y, there was no reason why they o d note expe ted to serve m h more e ient y and with a greater sense o dedi ation, their own

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At the same time, the in iden e o preva ent so ia evi s s h as nto ha i ity, dowry, hi da o r and physi a and menta vio en e against women and hi dren has ontin ed na ated.

Tese evi s are oth a a se and a onseq en e o deep rooted dis riminatory pra ti es againstthe v nera e and deprived se tions o o r so iety. In parti ar, vio en e against women is

omp ex and diverse in its mani estations. Its e imination req ires a omprehensive and systematiresponse. Ending imp nity and ens ring a o nta i ity or vio en e against women are r iato prevent and red e s h vio en e. O ten, the vi tims o s h rimes that are rooted in the

dis riminatory pra ti es o so iety s er se ondary vi timisation at the hands o the po i e and itis riti a there ore to sensitise po i e personne to gender iss es as we as other so ia disparities.Tis has to e a ked y po iti a ommitment, systemati and s stained a tion and strong,dedi ated and permanent instit tiona me hanisms to e iminate s h o en es that stem romso ia disparities.

Te in iden e o rime and vio en e is a reasona y good index o the e a y or otherwiseo the r e o aw. Te onvi tion rate in IPc ases whi h was 64.8% in 1961, has dropped to42.4% in 2005. Rampant rime a ompanied y ow onvi tion rates attest to o r ai re inen or ing the r e o aw and as a res t, we have the phenomenon o g ori ation o vigi antismin o r pop ar t re as testi ed y the s ess o the m –Rang de Basanti.

As has een stated y Di ey, “every o e, rom the Prime Minister to a onsta e is nder thesame responsi i ity or every a t done witho t ega j sti ations as any other itizen”. R e o aw is a ndamenta eat re o o r constit tion. No one, not even the Home Minister in harge o the po i e administration and answera e to Par iament in the matter, has the power to dire t thepo i e as to how it wo d exer ise its stat tory powers, d ties and dis retion. At the same time,as noted y the Nationa Po i e commission in its 1981 report, what is req ired is reation o the awareness o dire t a o nta i ity to the peop e at the vario s eve s in the po i e hierar hy.b t this a so req ires an aware and vigi ant itizenry, e a se, as pointed o t y Montesq ie ,“the tyranny o a prin e in an o igar hy is not as dangero s to the p i we are as the apathy o a itizen in a demo ra y”. Hen e the vision or the t re has to o s on the itizen as depi tedin the a ompanying g re (Evo tion o Po i e - Shi ting Ro es and Perspe tives).

In o r report, we have tried to ha k o t a re orm agenda or the prin ipa agen ies responsi eor en or ing the r e o aw and maintaining p i order, viz. the po i e and the rimina j sti e

system. In respe t o po i e re orms, we have tried to rise a ove the a ophony o the re ent, rathersteri e, de ate on po i e re orms in the o ntry in the ontext o the proposed amendments tothe Po i e A t and have ome o t, instead, with a ho isti and ong term view o what needs to

e done. O r o s is not on pitting one organ o the State against another t on reating new str t res, ased on the est internationa examp es that wo d sher in an era o a o nta i ity,

n tiona a tonomy, transparen y, responsiveness and pro essiona ism in the Indian po i e. Teemphasis is on hanging the hara ter o the po i e rom a “ or e” meant to en or e the writ o the State to a “servi e” meant to se re the ives and i erty and onstit tiona reedoms o the

itizens o a ree and demo rati o ntry.

o ntry when ree. b t, he envisaged q ite a di erent ro e or the po i e in independent India.He o served,“You have served the previous regime under di erent conditions. Te people then had adi erent attitude to you, but the reasons or that attitude have now vanished. Now the time has come when you can secure the a ection and regard o the people.”

However, the trans ormation that Sardar Pate envisaged is sti to e y a hieved in postindependen e India even a ter the apse o more than ha a ent ry. As noted y the Nationa

Po i e commission, “ the present organisation o the po i e, ased on the Po i e A t o 1861, is nots ited or the rrent times e a se an a thoritarian po i e o the imperia regime annot n tion we in a demo rati o ntry.” Te g y a t is that no one appears to e sin ere y interested inmo ding the po i e into what Sardar Pate envisaged. Tis is parti ar y n ort nate e a senew threats to interna se rity in the orm o terrorism and organised rime have emerged whi e the o d pro ems o omm na ism, e t-wing terrorism/naxa ism, paro hia ism and so iadivisions and dis rimination on the asis o aste, gender, ang age and ethni identity sti eset

s. Re igion, whi h sho d e a ni ying or e in so iety, has e ome in India, a or e or dis ordand vio en e. It sho d e re ognised however, that with a these pro ems, we have sti omea ong way in o r growth and deve opment as a nation. At the time o Independen e, many o servers wrote s o as a nation state destined to ai re, teetering on the edge o anar hy anddisintegration, n ike y to s rvive or ong as a nited entity. We ontin e to de y those prophetso doom to this day, maintaining o r demo rati stat s among a sea o ai ed States and repe ingthe re rrent threats to o r nity and integrity y a om ination o grit and determination,

resi ien e and ortit de. Yet, there omes a time when a nation has to a hieve and ens re ong term sta i ity in order

to arry o t s stantia e onomi and so ia trans ormation. India is poised or an e onomips rge that an potentia y hange the ives o its peop e, as it gears p to tap the demographi

dividend avai a e rom its yo th and ta ented pop ation. For the e onomi oom to es stained, the o ntry has to move not on y to a traje tory o high and s stained growth ta so to high eve s o so ia sta i ity and p i tranq i ity. For this to happen, governan e hasto go eyond the dai y dose o risis management and administration has to rise a ove mere y a “ho ding o the ort”.

Whi e threats to nationa se rity rom s h pro ems as ins rgent movements in the NorthEast and the se essionist movement in Jamm and Kashmir have overar hing po iti a dimensionsas we , whi h we propose to dea with separate y in a report on con i t Management, many other threats to interna se rity are exa er ated y o r o e tive ai re in providing goodgovernan e in vast swathes o th e o ntry.

Organised rime in parti ar has emerged as one o the most mena ing ha enges a ed y this o ntry. Tose most s ess in the ommissioning o rimes are o ten the est organisedand garner the most pro t and a se the most harm. Whi e the rea m o organised rime issomewhat id, its rea h r ns deep to over areas ike money a ndering, dr g tra king, i egaimmigration, ra d, armed ro ery et . It is a ig siness and omes with h ge ost.

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Tat is why, in the ontext o re orms to th e po i e set- p in the o ntr y, we have o sed onseparation o and independen e or, the rime investigation ran h o the po i e rom the genera

aw and order ran h nder the s pervision o an independent board o Investigation. Tis wo dins ate rime investigation, whi h is a spe ia ised n tion, oth rom po iti a inter eren e and

rom the day to day aw and order n tions that the po i e are sadd ed with. At the same time we have re ommended an o er oriented ivi po i e with initia re r itment at the eve o the Assistant S Inspe tor (ASI). A tonomy or the aw and order ran h o the po i e is so ght to

e ens red y providing or a o egia system or appointments and trans ers o po i e o ers,a move that wi a so ens re se rity o ten re. Independent a o nta i ity me hanisms have

een re ommended at the state and distri t eve s to ook into omp aints against the po i e. Tetraditiona a o nta i ity str t res s h as the pra ti e o the ann a per orman e report o theSPs/Dy SPs eing written y the co e tors and o the DGP/IGPs y the chie Se retary sho da so e revived. Whi e the timate a o nta i ity o the po i e to the e e ted government o theday annot e di ted, its operationa grip on day to day matters has to e re axed in order tog arantee operationa reedom and a tonomy or the po i e to their stat tory n tions witho t ear or avo r.

Most o a , the mindset o negativism has to go. Po i e stations sho d e ome servi eentres rather than power entres. Tey have a ro e whi h is m ti-dimensiona , en ompassing

responsive po i ing, preventive po i ing, proa tive po i ing and deve opmenta po i ing. Po i estations have to register omp aints immediate y even on emai , and training o the personne

has to e reoriented to o s not on y on str t ra ski s t a so the neg e ted so t ski s s has omm ni ation, o nse ing, team i ding and eadership. Te po i e servi e is the primary agent o the rimina j sti e system and its ro e has to e to prote t h man rights in dingthe parti ar rights o the most v nera e vi tims, s h as women and hi dren. Te ethos o the po i e sho d re e t a ommodation or a , prompt response to emergen ies, pro essionapro em so ving, o rteo s ehavio r, pro ess ased servi e dea ing and p i partnership inpo i ing de isions.

Aristot e had said, “It is in j sti e that the ordering o so iety is entered”. Te rimina j sti esystem is in many ways the edro k o a demo rati so iety sin e it pho ds the r e o aw whi his a ndamenta eat re o a tr e demo ra y. O r rimina aws have to e sensitive to the hangesin so ia str t re and so ia phi osoph y, a re e tion o ontemporary so ia ons io sness and amirror o o r va es as a ivi ization. De ay in j sti e is j sti e denied, denia o j sti e is j sti e

ried and non-a essi i ity o j sti e is j sti e a orted. A st dy ndertaken y Dr. Wo gangKoh ing and the Wor d bank o nd a re ationship etween the q a ity o the j di iary ande onomi deve opment ased on data or Indian states. Q a ity was meas red in terms o a k ogo ases and req en y o appea s. It was o nd that a weak j di iary has a negative e e t on so iadeve opment, e onomi a tivity and on poverty and rime. O r rimina j sti e system, with astaggering 2.63 rore ases pending in the distri t and s ordinate o rts (tho gh the n m er is

ess intimidating when we re ognize that 29.49 akh ases pertain to tra ha ans and motorvehi e aims) is ose to o apse with re ative y nimportant ases ogging the j di ia system.

In these days when modern te hno ogy is avai a e, de ays in the o rts are npardona e. use o e-governan e too s to speed p the pro essing o rimina ases is imperative. Te osts invo vedare q ite insigni ant when ompared to the e onomi and so ia osts o the de ay.

In a o rt o aw, ega te hni a ities m st not override the asi req irement o providing j sti e. In this ontext, wide ranging re ommendations have een made on iss es s h as the

onstit tion o o a o rts, the right to si en e o the a sed, the admissi i ity o a statement

made to a po i e o er, provisions or enhan ed pena ties or those g i ty o instigating andomenting mo vio en e, a n tiona inkage etween rime investigation and prose tionto improve onvi tion rates and a i itating the po i e and o rts to on entrate on their ore

n tion o hand ing serio s rimes y o tso r ing en or ement o so ia egis ations and minoro en es to the on erned departments. Other re evant iss es s h as g ide ines or senten ingso that pena ties are deterrent and not dis retionary, how to ta k e the pro em o perj ry that

edevi s o r o rts, how to se the preventive provisions o o r stat tes to preempt mo vio en eet . have a so een overed in o r Report.

Te rimina j sti e system needs to e rearranged to inspire p i on den e y servinga omm nities air y, to provide onsistent y high standards o servi e or the vi tims and the witnesses, and to ring more o en es to j sti e thro gh a modern and e ient j sti e system with rigoro s en or ement so as to sher in omp ian e with the r e o aw. Te rimina j sti esystem sho d e om ined with modern and we r n po i e and other servi es to render j sti e

or a . It is y ens ring j sti e or ea h that we an ass re pea e or a .

P i order and r e o aw sho d e em edded in the minds o the peop e rom hi dhooditse . Te areas o v nera i ities wi have to e identi ed and dea t with at a yo ng age y means o appropriate ed ation and y remova o dis rimination and ear. Tis app ies to a

omm nities, majority or minorities. Te mind is the reeding gro nd or vio ation o r es whi h grad ates to on i ts and terrorism.

A new do trine o po i ing and rimina j sti e em edded in an in sive approa h togovernan e, with zero to eran e towards those who vio ate the aw is what has een propo ndedhere. When we onsider re orms in the rimina j sti e system or in po i e administration wesho d go or an integrated and ho isti approa h and mere tinkering or expedien y wi disr ptthe re orm pro ess. Te ‘j sti e gap’ etween the n m er o rimes ommitted, re orded y po i eand the n m er where an o ender is ro ght to j sti e in the o rt needs to e s r p o s y

ridged and the r e o aw sho d reign in the rea m. I may state, in on sion, that the approa h

we have taken is to re ommend “ ig ang” re orms that are str t ra , and not in rementa innat re. Tis is not to state that th eir imp ementation annot e in rementa ; it an, and pro a y has to e, on the asis o onsens s i ding among o r po iti a parties and more important y,in p i opinion; t the imp ementation sho d e with a ear t idea o what is the event ao t ome envisaged and what is the road map regarding how to get there. I this Report has senta ear signa to those ommitting o en es that the rimina j sti e system is nited in ens ringtheir dete tion, orre tion and p nishment we wo d have a hieved o r o je tive.

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In on ding, I wo d ike to thank J sti e M. N. Venkata ha iah, ormer chie J sti eo India, J sti e R. c. lahoti, ormer chie J sti e o India, J sti e Y.K. Sa harwa , ormerchie J sti e o India, J sti e N. Venkat ha a, retired J dge o the S preme co rt, J sti eb.N. Srikrishna, retired J dge o the S preme co rt and present y chairman o the Sixth Pay commission, Shri K. Padmana haiah, ormer union Home Se retary, Shri Prakash Singh, ormerDG, bSF, Shri K. .S. si, eminent awyer and Shri Nikhi K mar, M.P. or sharing va a einsights with s d ring o r dis ssions. I may emphasise, however, that the views expressed in

this Report are o the commission’s a one.

New De hi (M. Veerappa Moi y) J ne 1, 2007 chairman

Government o India Ministr o Personnel, Public Grievances & Pensions

Department o Administrative Re orms and Public Grievances

ResolutionNew Delhi, the 31 st August, 2005

No. K-11022/9/2004-Rc. — Te President is p eased to set p a commission o Inq iry to e a ed the se ond Administrative Re orms commission (ARc) to prepare a detai ed

eprint or revamping the p i administration system.

2. Te commission wi onsist o the o owing :

(i) Shri Veerappa Moi y - chairperson

(ii) Shri V. Rama handran - Mem er

(iii) Dr. A.P. M kherjee - Mem er

(iv) Dr. A.H. Ka ro - Mem er

(v) Dr. Jayaprakash Narayan - Mem er

(vi) Smt. Vineeta Rai - Mem er-Se retary

3. Te commission wi s ggest meas res to a hieve a proa tive, responsive, a o nta e,s staina e and e ient administration or the o ntry at a eve s o the government.Te commission wi , inter a ia, onsider the o owing :

(i) Organisationa str t re o the Government o India

(ii) Ethi s in governan e

(iii) Re r ishing o Personne Administration

(iv) Strengthening o Finan ia Management Systems

(v) Steps to ens re e e tive administration at the State eve

(vi) Steps to ens re e e tive Distri t Administration

(vii) lo a Se -Government/Pan hayati Raj Instit tions

(viii) So ia capita , r st and Parti ipative p i servi e de ivery

(ix) citizen- entri administration(x) Promoting e-governan e

(xi) Iss es o Federa Po ity

(xii) crisis Management

(xiii) P i Ordervi



Some o the iss es to e examined nder ea h head are given in the erms o Re eren eatta hed as a S hed e to this Reso tion.

4. he commission may ex de rom its p rview the detai ed examination o administration o De en e, Rai ways, Externa A airs, Se rity and Inte igen e, asa so s je ts s h as centre-State re ations, j di ia re orms et . whi h are a ready

eing examined y other odies. Te commission wi , however, e ree to take

the pro ems o these se tors into a o nt in re ommending re-organisation o thema hinery o the Government or o any o its servi e agen ies.

5. Te commission wi give d e onsideration to the need or ons tation with theState Governments.

6. Te commission wi devise its own pro ed res (in ding or ons tations withthe State Government as may e onsidered appropriate y the commission), andmay appoint ommittees, ons tants/advisers to assist it. Te commission may takeinto a o nt the existing materia and reports avai a e on the s je t and onsider

i ding pon the same rather than attempting to address a the iss es a initio.

7. Te Ministries and Departments o the Government o India wi rnish s hin ormation and do ments and provide other assistan e as may e req ired y the commission. Te Government o India tr sts that the State Governments

and a others on erned wi extend their est ooperation and assistan e to thecommission.

8. Te commission wi rnish its report(s) to the Ministry o Personne , P iGrievan es & Pensions, Government o India, within one year o its onstit tion.

Sd/-(P.I. Suvrathan)

Additional Secretar to Government o India

Government o India Ministr o Personnel, Public Grievances & Pensions

Department o Administrative Re ormsand Public Grievances

……

RESOLU ION

New De hi, the 24th

J y, 2006

No. K-11022/9/2004-Rc (Vo .II) – Te President is p eased to extend the term o these ond Administrative Re orms commission y one year pto 31.8.2007 or s missiono its Reports to the Government.

Sd/-(Rahul Sarin)

Additional Secretar to the Government o India



CON EN S

Chapter 1 Introduction - Public Order, National Securit , 1Economic Development and Social Harmon

Chapter 2 Public Order: A General Perspective 52.1 P i Order 52.2 Some Grave P i Order Pro ems 82.3 ca sative Fa tors o Major P i Order Pro ems 182.4 lessons rom the Past 202.5 Te Need or comprehensive Re orms 23

Chapter 3 Te E isting Police S stem 273.1 Te Po i e Organisation 273.2 Peop e’s Per eption o the Po i e 313.3 De ining convi tion Rate 323.4 Pro ems in the Existing Po i e F n tioning 323.5 Review o Re ommendations or Po i e Re orms in the Past 353.6 Re orms in Other co ntries 54

Chapter 4 Core Principles o Police Re orms 614.1 Responsi i ity o the E e ted Government 61

4.2 A thority, A tonomy and A o nta i ity 624.3 Disaggregation and De on entration 644.4 Independen e o crime Investigation 664.5 Se -esteem o Po i emen 684.6 Pro essiona isation, Expertise and In rastr t re 684.7 Attendant crimina law Re orm 694.8 Po i e to e a Servi e 70

Chapter 5 Police Re orms 725.1 Organisationa Str t re o the Po i e o the F t re 725.2 Po i e A o nta i ity Me hanism - ba an ing A tonomy and

contro 765.3 competent Prose tion and G idan e to Investigation 945.4 lo a Po i e and ra Management 98

5.5 Te Metropo itan Po i e A thorities 1015.6 Red ing b rden on Po i e - O tso r ing Non core F n tions 1035.7 Empowering the ‘c tting Edge’ F n tionaries 1045.8 We are Meas res or the Po i e 1075.9 Independent comp aints A thorities 1085.10 An Independent Inspe torate o Po i e 114

5.11 Improvement o Forensi S ien e In rastr t re - 115Pro essiona isation o Investigation

5.12 Strengthening Inte igen e Gathering 1175.13 raining o the Po i e 1195.14 Po i e and H man Rights 1205.15 comm nity Po i ing 1225.16 Gender Iss es in Po i ing 123

5.17 crime against V nera e Se tions 1255.18 Nationa Se rity commission 1295.19 union-State and Inter-State cooperation and coordination 131

Chapter 6 Maintaining Public Order 1346.1 P i Order Management 1346.2 A o nta i ity o P i Servants charged with

Maintaining P i Order 1486.3 Te Exe tive Magistrates and the Distri t Magistrate 1496.4 capa i ity b i ding o Exe tive Magistrates 1546.5 Inter-Agen y coordination 1556.6 Adoption o Zero o eran e Strategy 157

Chapter 7 Re orms in the Criminal Justice S stem 1597.1 Ro e o the crimina J sti e System 1597.2 Meas res aken in the Re ent Past 1617.3 Fa i itating A ess to J sti e - lo a co rts 1637.4 using In ormation and comm ni ation e hno ogy (Ic )

to Modernise the Indian co rts 1667.5 Re orms in Investigation 1697.6 Prose tion 1877.7 ria 1877.8 c assi ation o O en es 2027.9 Senten ing Pro ess 2047.10 Prison Re orms 2067.11 Amendment to crimina laws 210

Chapter 8 Constitutional Issues and Special Laws 2128.1 Sho d P i Order e In ded in the con rrent list? 2128.2 O igation o the union and the States 2158.3 Federa crimes 2238.4 Organised crimes 2288.5 Armed For es (Spe ia Powers) A t, 1958 2358.6 Te comm na Vio en e (Prevention, contro and 242

Reha i itation o Vi tims) bi , 2005



Chapter 9 Role o Civil Societ , Media and 245Political Parties in Public Order9.1 Ro e o civi So iety 2459.2 Ro e o the Media in P i Order 2469.3 Ro e o Po iti a Parties 248

Conclusion 250

Summar o Recommendations 253

lIS OF bOXESBo No. itle

1.1 P i Order 11.2 So ia Demo ra y 32.1 comm na ism 83.1 Te broken Window Syndrome 273.2 Di ties Expressed y Po i e 343.3 Some Re ommendations o the Indian Po i e commission 1902 365.1 Metropo itan Po i e A thority, london 1025.2 Te consta ary 1045.3 Po i e F n tions 104

5.4 Fake En o nters 1095.5 ccRb New York 1105.6 HMIc (uK) 1145.7 citizen Fo ssed Po i ing in the united Kingdom 1225.8 Gender Vio en e thro gho t the li e cy e 1235.9 crime c o k 1245.10 comparative convi tion Rates 1246.1 Zero o eran e in NYPD 1577.1 Ana ysis o crime Statisti s 1597.2 A a e o wo error ria s 1617.3 De ay in comp eting ria Pro eedings 1627.4 Inq est R es in Karnataka 1737.5 Right to Si en e 192

7.6 De aration o basi Prin ip es o J sti e or Vi tims o crime and 198 A se o Power8.1 Arti e 355 2168.2 Te Mississippi crisis 2208.3 Provisions Simi ar to Arti e 355 Exist in Other co ntries as we 2218.4 Federa crimes - a View Point 2278.5 Magnit de o Organised crime in the uS 229

8.6 De nition o Organised crime 2298.7 Impa t o Zero o eran e Strategy 2318.8 De nition o ‘terrorist a t’ nder the un aw A tivities 239

(Prevention) A t.

lIS OF AblESable No. itle

2.1 Disposa o IPc crime cases y Po i e (De ada Pi t re) 212.2 Disposa o IPc crime cases y co rts (De ada Pi t re) 223.1 Po i e-Pop ation Ratio 273.2 Organisationa Set p o State Po i e (2005) 283.3 San tioned and A t a Strength o civi Po i e In ding 30

Distri t Armed Po i e as on 31.12.20053.4 A comparative Ana ysis o Re orms Proposed 425.1 Te ripartite System nder the Po i e and Magistrates’ 81

co rts A t, 1994 and the Po i e Re orm A t, 20025.2 O tso r ing Some Po i e F n tions 103

lIS OF FIGuRESFigure No. itle

2.1 P i Order, law and Order and Se rity o State 62.2 rend o errorist Vio en e in Jamm and Kashmir 112.3 Mi itan y in North East 152.4 State-wise Extent o Naxa Vio en e 162.5 Instr menta ities o State to Maintain P i Order 263.1 Growth in In iden e o crime (IPc) 323.2 De ine in convi tion Rates (IPc cases) 335.1 Str t re o Po i e in F t re 755.2 O en es nder Sc/S (Prevention o Atro ities) A t 1265.3 Disposa o cases y Po i e { nder the Sc/S 126

(Prevention o Atro ities) A t}5.4 Disposa o cases y co rts { nder the Sc/S 127

(Prevention o Atro ities) A t}, Year 20045.5 ypes o crimes against chi dren, 2005 1286.1 N m er o Riots Per Ann m 1347.1 Penden y o crimina cases in High co rts 1607.2 Penden y o crimina cases in S ordinate co rts 1607.3 Prison Inmates at the End o 2004 206



List of Annexures

Annexure I Details of Consultations Carried out by the Commission

Annexure-II (1) Questionnaire on Public OrderAnnexure-II (2) Analysis of the Replies to the Questionnaire on Public Order

lIS OF AbbREVIA IONS

Abbreviation Full Form Accc A stra ian competition and cons mer commission AFP A stra ian Federa Po i e AFSPA Armed For es (Spe ia Powers) A t ASI Assistant S Inspe tor ASIc A stra ian Se rities and Investments commission A O A stra ian axation O ecbI centra b rea o InvestigationccRb civi ian comp aint Review boardcc V c osed cir it e evisioncHRI commonwea th H man Rights InitiativecID crime Investigation DepartmentcMS case Management SystemcPMF centra Parami itary For escPO centra Po i e OrganisationscPR centre or Po i y Resear hcrPc crimina Pro ed re codecSO civi So iety OrganisationDGP Dire tor Genera o Po i eDM Distri t MagistrateDy SP Dep ty S perintendent o Po i eEc E ropean comm nity FbI Federa b rea o InvestigationFIR First In ormation ReportHMcIc Her Majesty’s chie Inspe tor o consta ary HMIc Her Majesty’s Inspe tors o consta ary

IcAc Independent commission against corr ptionIccPR Internationa convention on civi and Po iti a RightsIcEScER Internationa convention on E onomi , So ia and c t ra RightsIc In ormation and comm ni ation e hno ogy IEA Indian Eviden e A t

IGP Inspe tor Genera o Po i eIO Investigating O erIPc Indian Pena code JuDIS J dgement In ormation SystemlAN lo a Area Network McOcA Maharashtra contro o Organised crime A tMPA Metropo itan Po i e A thority MPS Metropo itan Po i e Servi eNcIS Nationa crimina Inte igen e Servi eNcRb Nationa crime Re ords b reaNcS Nationa crime Sq adNEc North Eastern co n iNGO Non-Governmenta OrganisationNHRc Nationa H man Rights commissionNIc Nationa In ormati s centreNPc Nationa Po i e commissionPAcE Po i e and crimina Eviden e A tPADc Po i e A t Dra ting committeePcA Po i e comp aints A thority Pcb Po i e comp aints board

PIc Po i e Integrity commissionPO A Prevention o errorism A t, 2002PPAc Po i e Per orman e and A o nta i ity commissionRIcO Ra keteer In en ed and corr pt Organisations A tSAP So th A ri an Po i eSHO Station Ho se O erSI S Inspe torSll Spe ia and lo a lawsSOcA Serio s Organised crime Agen y SP S perintendent o Po i eSPcA State Po i e comp aints A thority SPO Spe ia Po i e O er

ADA errorist and Disr ptive A tivities (Prevention) A t, 1999

RAc ransa tiona A ess c earing Ho seuKIS united Kingdom Immigration Servi eulPA un aw A tivities (Prevention) A t, 1967uSA united States o Ameri auSSc united States Senten ing commission



1IN RODUC IONPublic Order, National Securit , Economic Development and Social Harmon

1.1 One o the terms o re eren e o the Se ond Administrative Re orms commissionpertains to P i Order. Te commission has een asked to spe i a y:

(i) s ggest a ramework to strengthen the administrative ma hinery to maintainp i order ond ive to so ia harmony and e onomi deve opment and

(ii) apa ity i ding meas res or on i t reso tion.

1.2 Te commission re ognizes that there is an inextri a e ink etween the maintenan eo p i order and on i t reso tion in view o the a t that the non-reso tion o on i tsmani ests itse in p i disorder. F rther, i on i ts are managed proper y, the ike ihoodo rea hes o p i order is minimised. P i order is arge y a prod t o e ient generaadministration, e e tive po i ing and a ro st rimina j sti e system. con i t managementis a ar more omp ex iss e, invo ving a ompa t etween the State and its itizens. Itentai s the e e tive and harmonio s re on i iation o on i ting interests etween vario sgro ps and a so maintaining a de i ate a an e etween vario s instit tions o the Stateand among severa tiers o government – nationa , state and o a . Te commission hasthere ore de ided to examine the two iss es separate y. Tis Report dea s with p i o rder,po i ing and attendant iss es re ated to the rimina j sti e system. A separate Report wi

e presented on ‘con i t Management’.

1.3 P i order imp ies a harmonio s stateo so iety in whi h a events on orm to theesta ished aw and is synonymo s with pea e,tranq i ity and the r e o aw. ‘P i disorder’ hassevera onnotations depending pon the nat re o the State. In we deve oped so ieties, governed y

the r e o a w, even re ative y minor in ra tions o aw may e regarded as a p i order pro em. In

most i era demo ra ies on y serio s dist r an es whi h a e t the even tenor o i e wo d onstit te a reakdown o p i order. In a to ratiso ieties, however, even order y and pea e protests and demonstrations against the Stateare o ten treated as rea hes o p i order.

1



2 3

1.4 Tere are many a ses o p i disorder. Wide y preva ent rime is a a se as weas an e e t o p i disorder. In a p ra isti demo ra y ike o rs, po iti a po arisationsometimes throws p iss es eading to on i ts whi h es a ate into p i disorder. Evendemonstrations he d on egitimate gro nds an sometimes degenerate into p i disorder.

Given o r histori a ineq ities on the asis o aste and other so ia a tors, these an easi y ead to on i ts that may degenerate into p i disorder. Simi ar y, divisive imp ses ased

on ethni ity, re igion, region, ang age and the sharing o nat ra reso r es an exa er atetensions. With enhan ed itizen awareness and assertion, ai re in the de ivery o servi es

y the State o ten eads to r stration mani esting itse in p i disorder. Tis tenden y is aggravated y in reasing rimina isation o po iti s a nd persistent inter eren e in the d epro ess o aw. With in reasing g o a isation and the omm ni ations revo tion, indigeno sand transnationa rimina organisations have a q ired enormo s reso r es and power withthe apa ity to a se serio s reakdown o p i order and even ndermine the se rity o India. As opposed to organised rime, whi h is motivated y the prospe t o i egitimatee onomi gains, terrorist gro ps are a tivated y rea or imagined ideo ogi a motives.Tey o d e homegrown armed gro ps ike Naxa ites ho ding sway in some po kets, or

oreign sponsored se essionist gro ps ind ging in re k ess vio en e a nd mayhem with theso e o je tive o spreading terror. Te greatest danger to p i order emanates rom the

onj n tion o oreign sponsored se essionist terrorists with or ganised rime networks.

1.5 Whatever e the a se o the reakdown o p i order, it is imperative that pea e andharmony e maintained. P i order a ong with the de en e o the rea m has a ways eenthe raison d’etre o the State thro gho t history. Emphasis on p i order in monar hiesand e da o igar hies was o ten a res t o the desire to perpet ate the domination o r ing e ites. b t in a modern, i era , demo rati , deve opment oriented State, there areother ompe ing reasons to preserve p i order. First, pea e and order are ne essary pre-

onditions or reedom o expression o individ a s and or the reso tion o on i tinginterests in a demo rati so iety. Se ond, vio en e and disorder ne essari y nderminee onomi growth and deve opment, perpet ating a vi io s y e o poverty, r stration andvio en e. Tird, rapid r anization, whi h is a ne essary on omitant o modernisation,tends to promote impersona ives and reate a ienation, th s red ing peer press re andso ia ontro . Fo rth, the State’s onstit tiona ommitment to eq ita e growth and

j sti e itse may n eash so ia tensions, as power o igar hies attempt to perpet ate thestat s q o. Fi th, rapid e onomi growth may sometimes aggravate disparities etweenindivid a s, gro ps and regions eading to es a ation o tension and rea hes o pea e. Sixth, weak en or ement and ai re o the rimina j sti e system reate a t re o aw essnessposing a major threat to p i order. Fina y, organised rime, mi itan y and terrorismhave devastating onseq en es on the mora e o th e p i ; s h a sit ation may even ea d

to the nne essary oss o i e as we as serio s e onomi and po iti a dis o ation in aninterdependent e onomy and po ity.

1.6 Te a tion o non-State p ayers – po iti a parties, media and itizens’ gro ps - have a

vita earing on p i order. However, it is we re ognised that State agen ies s h as theadministration, po i e and the rimina j sti e system have the dire t responsi i ity and theommens rate a thority to maintain p i order. Among State agen ies, po i e, y the

very nat re o their ro e, are the most visi e arm o the government. Te power o theState is expressed in its apa ity to se or e. As po i e are the agen y to en or e the wio the State, the apa ity o the po i e agen ies to respond to a potentia or rea ha engeto p i order - rapid y, e ient y and j st y - is o paramo nt importan e. It is eq a y important to ens re that this power is exer ised in a demo rati so iety within the o ndso the constit tion and the aw. u timate y, the manner in whi h the po i e n tions isan index o so iety’s respe t or ivi i erty and the r e o aw.

1.7 Te Nationa Po i e commission (NPc, 1977-81), whi e dea ing with p i orderiss es and the po i e, o served:

“Increasing violence is seen as the most disturbing eature o the contemporary law and order situation in the country.Newspapers requently report details o violent incidents involving large groups o agitators who clash withthe police while articulating some issue o discontent and rustration. Police action torestore order in such situations requently involves the use o orce, including rearms onsome occasions, which in turn,draws adverse public reactionand escalates tension and hostility between the public and the law en orcement agency.”

P i Order Introd tion



1.8 More re ent y, ommenting on the need or revamping the po i e system in the emerginginterna se rity s enario, the Padmana haiah committee (2000) o served:

“ Internal security is an important element o national security. It would be prudent or the

policy makers to realise that the present-day challenges to internal security, especially those posed by covert designs o the Pakistan ISI, or Maoist-Marxist extremist groups and o the religious undamentalists are o such a nature that to meet them squarely, meaning ully and e ectively, the society and the country need a highly motivated, pro essionally skilled,in rastructurally sel su cient and sophisticatedly trained police orce.”

1.9 However j st and e ient po i ing may e, se rity a gen ies a one annot en or e ther e o aw and maintain p i order. An e e tive and impartia rimina j sti e systemis a ne essary pre ondition or order and harmony in so iety. Tere ore, the preventiveprovisions or maintaining pea e and order and matters re ating to rime investigation,prose tion and tria need to e examined in detai . It is or these reasons that in thisReport the commission has o sed on po i e re orms and a so the attendant re orms inthe rimina j sti e system.

1.10 he iss es invo ved are ontentio s and omp ex, generating de ate andaro sing passions. Severa expert committees and commissions have made importantre ommendations and co rts have made signi ant prono n ements. Te commissionhas e t it ne essary to re on i e the divergent opinions o vario s stakeho ders.Te re ommendations and prono n ements o expert odies and co rts need to eharmonised and examined omprehensive y to nd a a an e etween the en or ement o aw and order and the prote tion o onstit tiona i erties. A ording y, the commission he da series o workshops and intera ted with experts (the detai s o workshops and intera tionsare at Annex re-I). Te commission has are y st died the verdi ts o co rts, reports o di erent commissions and expert odies and est internationa pra ti es. On the asis o these, the commission has identi ed the ore prin ip es o re orms and has made spe iand ar rea hing re ommendations. It is hoped that these wo d he p the o ntry meet theemerging ha enges re ated to p i order in the oming de ades.

4 5

P i Order

2PUBLIC ORDER – A GENERAL PERSPEC IVE

“Internal security is the oundation or peace and development o the nation” 1

2.1 Public Order

2.1.1 A demo rati so iety is ne essari y hara terised y p i expression o dissent.S h dissent arises rom a variety o so io-e onomi , po iti a and t ra a tors. In India,the sit ation is rther ompo nded y a tors s h as aste, re igion, poverty, i itera y,demographi press res, ethni and ing isti diversity. Te o ntry has witnessed many dist r an es – agrarian nrest, a o r and st dent agitations, omm na riots and astere ated vio en e – whi h sometimes es a ate into major disorders, espe ia y when partisanpo iti s ome into p ay and wh ere the administration ai s to a t ea r y in reso ving on i ts.Indeed, a k o good governan e and poor imp ementation o aws are the major a tors

or p i disorder.

2.1.2 P i order imp ies the a sen e o dist r an e, riot, revo t, nr iness and aw essness.Irrespe tive o the nat re o a po ity – demo rati or a to rati , edera or nitary – maintenan e o p i order is niversa y re ognised as the prime n tion o the State. Anar hy wo d res t i the State ai ed to dis harge this d ty. S h persistent anar hy wo d

ead to de ay and destr tion and the event a disintegration o the State.

2.1.3 As stated in the ear ier hapter, di erent types o regimes have di ering perspe tiveso p i order. For an a to rat any dissent wo d mean a threat to his existen e and he wo d ook at it as p i disorder. However, in a i era demo ra y every itizen has aright to dissent and the expression o s h dissent need not in itse rea h p i order.Even within a demo rati so iety, a sit ation viewed as a p i disorder y one stakeho dermay not e disorder or a nother stakeho der. For examp e, i a dominant se tion o so iety ind ges in degrading orms o exp oitation o the nderprivi eged se tions, the res tant

protests y the atter are o ten per eived y aw en or ement agen ies as p i disorder,t or the exp oited se tions, the inj sti e is a rea h o their h man rights against whi hthey have vented their ire. Tis rings s to the distin tion etween ‘esta ished order’ and‘p i order’. Esta ished order may not a ways e as per the tenets o the r e o aw.Perpet ating esta ished order does not ne essari y onstit te p i order in a so iety governed y demo rati norms and the r e o aw. Te aw en or ement ma hinery o ten

1 Te President o India, Dr. A.P.J. A d Ka am; Address at the 150th year o chennai Metropo it an Po i e, chennai (5-01-2007)



tends to on entrate on maintaining stat s q o, sin e, or them, p i order means‘a sen e o any dist r an e’. laws and p i po i ies aimed at desira e so ia hange may sometimes ead to dist r an e or even vio en e and yet s h aws need to e en or ed rm y i the ore va es o the constit tion and h man rights are to e prote ted. In the timate

ana ysis, p i order is strengthened y prote ting the i erty and dignity o itizens andringing a o t so ia hange.

2.1.4 c ari ying the distin tion etween‘ aw and order’, ‘p i order’ a nd ‘p idisorder a e ting the se rity o the State’, J sti e Hidayat ah o served:

“Just as public order apprehends disorders o less gravity than those a ecting the security o state, law and order also apprehends disorders o less gravity than those a ecting public order. One has to imagine three concentric circles. Law and order represents the largest circle within which it is the next circle representing public order and the smallest circle represents the security o state.It is then easy to see that an act may a ect law and order but not public order, just as an act may a ect public order but not the security o state.” [Ram Manohar Lohia v. State o Bihar, 1 SCR 7009(746), 1966].

2.1.5 T s every sit ation in whi h the se rity o the State is threatened is a p i orderpro em. Simi ar y, a sit ations whi h ead to p i disorder, are ne essari y aw and orderpro ems a so. b t a aw and order pro ems are not p i order pro ems. T s, petty

ashes etween gro ps whose impa t is imited to a sma area are minor in nat re withno impa t on p i order. b t widespread vio ent ashes etween two or more gro ps,s h as omm na riots, wo d pose grave threats to p i order. A major terrorist a tivity

o d e assi ed as a p i order pro em impinging on the se rity o the State.

2.1.6 Whi e every vio ation o aw sho d e seen as a ha enge to p i order, theState sho d not pre ipitate a risis y treating every in ra tion as a p i order risis.S perstitions and t ra attit des, or examp e, take time, patien e and ed ation to

hange. India is an over- egis ated o ntry. Te temptation to short ir it the pro ess o modernisation y aw and se o or e sho d e resisted ex ept when o a opinion and

6 7

P i Order P i Order – A Genera Perspe tive

prevai ing so ieta norms are gross y vio ative o the ore prin ip es o the constit tionand demo rati governan e. For instan e, aw m st e app ied with vigo r in e iminatinga orms o aste dis rimination or prote ting the v nera e se tions ike women and

hi dren rom exp oitation. b t when it omes to ending a pra ti e s h as, say, anima

sa ri e, pers asion and ed ation and not se o or e against strong p i sentiment,are a ed or. Te pro em in s h ases is where to draw the ine. I a aw is vio ated withimp nity, even i it is a minor aw, sho d the State remain a m te spe tator and ondonevio ations promoting a t re o aw essness? Or, sho d the State risk triggering a majorp i order risis in its e ort to en or e a aw whose gains are minima and risks are h ge?Te answer ies in two road approa hes. First, the State sho d resist the temptation toover- egis ate ex ept in r ia areas whi h onstit te the essen e o onstit tiona va es orprevent signi ant p i oss or promote vita p i good. Pers asion, p i ed ationand so ia movements are the desira e ro tes to so ia hange in s h ases. Se ond, i s h

aws do exist, e e tive en or ement on ase-to- ase asis thro gh prose tion o o endersis the etter ro te and not the tho ght ess pre ipitation o a p i on rontation. I indeeda on rontation is a ed or, there m st e adeq ate preparation, s ient dep oymento se rity or es, massive p i ampaign and preventive a tion in order to avert majorrioting and oss o i e.

2.1.7 A tho gh ases o vio ation o aws and iso ated rimes may not, y themse vespose a threat to p i order, their m ative e e t may reate onditions or the

reakdown o p i order. Simi ar y, the genera y prevai ing ee ing o Government eingso t, ondonation o ow intensity rimes y so iety, weaknesses in the rimina j sti esystem, omp a en y on the part o the administration and orr ption event a y res tin p i disorders.

2.1.8 In the post-Independen e era, India has a ed severa instan es o arge s a e p idisorder, starting with the omm na on agration d ring Partition. Even now omm nariots pose a grave threat to pea e and order. Te 1950s witnessed vio ent ing isti riots insome parts o the o ntry. Tere have een vio ent se essionist movements in the North-East, P nja and Jamm and Kashmir. Tere are n mero s instan es o agrarian, a o r andst dent nrest. Te ast de ade has seen an ps rge o vio en e y the e t wing extremists,

who have extended their in en e over arge tri a areas. ur anisation has ro ght to theore the short omings in the de ivery o asi servi es, whi h at times, res ts in vio entagitations. With improving awareness eve s, on i ts over sharing o reso r es are in reasingin r ra and tri a areas. Organised gro ps, espe ia y those on erned with the s pp y o essentia servi es, have, on o asion, a sed major p i disorder y resorting to a gitation,o str tion and vio en e.



2.1.9 Te post-independen e Indian experien e o p i order management is markedy s esses in ontro ing vio en e e a se o ing isti agitations, dea ing with Naxa ite

vio en e in West benga and Kera a, ta k ing terrorist vio en e in P nja , and, ontainingsevera mi itant movements. Many serio s o t reaks o vio en e have een ad dressed with

ommenda e e ien y. Notwithstanding these s esses, there have a so een ai reson a o nt o h man rights vio ations and instan es o po i e a ting nder extraneo sin en es. Severa p i order pro ems have e ome hroni in nat re e a se the root

a ses o vio en e – persistent misgovernan e and ai re to ens re a air dea – have not eenaddressed adeq ate y. When ethni identity, re igio s ndamenta ism and extra-territoriasponsorship o vio en e and terror e vio en e and disorder, the ha enge e omesparti ar y grave. S h threats to nationa se rity need to e addressed y on erted and

onsistent State a tion, a ked y swi t j sti e and indeed y ompetent governan e anddemo rati egitima y.

2.2 Some Grave Public Order Problems

2.2.1 comm na Riots

2.2.1.1 comm na ism in a road sense imp iesind a egian e to one’s own omm na gro p

– re igio s, ing isti or ethni – rather than tothe arger so iety or to the nation as a who e. Inits extreme orm, omm na ism mani ests itse in hatred towards gro ps per eived as hosti e,

timate y eading to vio ent atta ks on otheromm nities. Genera amity and the pea eoexisten e o vario s aiths in India have een the

envy o the ivi ised wor d. Nonethe ess given the diversity o o r so iety and o r omp exhistori a aggage, we are o ten eset with omm na tensions whi h o asiona y er ptinto vio en e. At times, either igoted and ndamenta ist eadership, or ns r p o spo iti a operators with an eye on short term e e tora advantage, have de i erate y andma i io s y engineered omm na passions, hatred and even vio en e to a hieve se tarianpo arisation. Most o the omm na are- ps have een etween Hind s and M s ims,tho gh on i ts invo ving other omm nities have a so o asiona y o rred. Simi ar y,there have een other ethni ashes rom time to time.

2.2.1.2 To gh a n m er o omm na riots have een dea t with e e tive y, there havea so een many serio s ai res on the part o the administration in dea ing with omm nasit ations in a prompt and e e tive manner. A n m er o commissions o Inq iry s h asthe J sti e Ragh ir Daya commission (Ran hi riots, 1967), J sti e P Jaganmohan Reddy

commission (Ahmeda ad riots, 1969), J sti e D. P. Madon commission (bhiwandi riots,1970), J sti e Ranganath Misra commission (De hi riots, 1984), J sti e b N Srikrishnacommission (bom ay riots 1992-93) and a so the Nationa H man Rights commissionhave gone into the a ses o these riots and ana ysed the a ses and response o theadministration and the po i e in hand ing them.

2.2.1.3 At times, the aw en or ement ma hinery has een a sed o gross dere i tion o d ty. Te commission o Inq iry appointed to inq ire into the anti-Sikh riots in De hi1984, o served:

“Te riots occurred broadly on account o the total passivity, callousness and indi erence o the police in the matter o controlling the situation and protecting the people o the Sikh community…Several instances have come to be narrated where police personnel were ound marching behind or mingled in the crowd. Since they did not make any attempt to stop the mob rom indulging in criminal acts, an in erence has been drawn that they were part o the mob and had the common intention and purpose… Te Commissionwas shocked to nd that there were incidents where the police wanted clear and de nite allegations against the anti-social elements in di erent localities to be dropped out while recording FIRs.” 2

2.2.1.4 Te o owing o servations were made y the Nationa H man Rights commissionon the G jarat riots in 2002 :

“Te tragic events in Gujarat, starting with the Godhra incident and continuing withthe violence that rocked the State or over two months, have greatly saddened the nation.Tere is no doubt, in the opinion o this Commission, that there was a comprehensive ailure on the part o the State Government to control the persistent violation o the rights to li e, liberty, equality and dignity o the people o the State. It is, o course, essential to heal the wounds and to look to a uture o peace and harmony. But the pursuit o these high objectives must be based on justice and the upholding o the values o the Constitutiono the Republic and the laws o the land. Tat is why it remains o undamental importance that the measures that require to be taken to bring the violators o humanrights to book are indeed taken”.3

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2 Extra ted rom the Report o the J sti e Ranganath Misra commission on the 1984 anti-Sikh riots in De hi.3 Pro eedings o the Nationa H man Rights commission, 31st May 2002; retrieved rom http://nhr .ni .in/ on 5-4-07



2.2.1.5 Te reports o vario s commissions, whi h have inq ired into di erent omm nariots, have pointed to the o owing:

Systemi Pro ems

• con i t reso tion me hanisms are ine e tive;• Inte igen e gathered is not a rate, time y and a tiona e and• bad personne po i ies - poor hoi e o o ia s and short ten res - ead to

inadeq ate grasp o o a onditions.

Administrative Short omings• he administration and the po i e ai to anti ipate and read indi ators

whi h pre ipitated vio en e ear ier;• Even a ter the appearan e o rst signa s, the administration and po i e are

s ow to rea t;• Fie d n tionaries tend to seek and wait or instr tions rom s periors and

s periors tend to inter ere in o a matters ndermining o a initiative anda thority;

• he administration and po i e at times a t in a partisan manner and

• At times there is ai re o eadership, even tota a di ation on the part o those entr sted with maintenan e o p i order.

Post-riot Management De ien ies• Reha i itation is o ten neg e ted, reeding resentment and resid a

anger and• O ia s are not he d to a o nt or their ai res, th s perpet ating s a kness

and in ompeten e.

2.2.1.6 Whi e some omm na riots o d e spontaneo s, many are organised and pre-p anned. Even in the ase o spontaneo s riots it is the nder ying tensions etween the

omm nities, whi h are p at the s ightest provo ation. Te union and State Governmentshave identi ed distri ts/ ities/vi ages whi h are prone to omm na vio en e e a se o their past history. S h areas o vio s y req ire spe ia attention and preventive meas res.

It has een o served that whi e the administration swings into a tion to s ppress riots,s ient and time y attention is not paid to address the a ses eading to s h riots. A so,on e the riots are ontro ed, ases against the g i ty persons are not p rs ed with thereq ired degree o rgen y and tena ity. Even more reprehensi y, o ten as a ‘ ompromise’

o owing omm na riots, serio s ases against the a sed are so ght to e withdrawn romo rts on extraneo s onsiderations. Tere are a so severa instan es o a new government

resorting to en masse withdrawa o ases against those invo ved in ear ier riots d ring theten re o the previo s government. S h po iti a opport nism and short sightedness haveserio s y ontri ted to the erosion o p i order.

2.2.1.7 Most major omm na riots are o owed y commissions o Inq iry. Sometimes,these commissions o Inq iry take a ong time to give their reports and very o ten the r iare ommendations made y them are not a ted pon. A these have ed to perpet ation o the a ses o p i disorder.

2.2.2 errorism

2.2.2.1 errorism has een de ned as the i ega se o or e or vio en e against peop e toreate a wave o terror with the intention o a hieving ertain po iti a or se tarian o je tives.

Te order State o Jamm and Kashmir and some parts o the North East have witnessedpro onged terrorist a tivities. Severa a ts o terror in re ent years – hija king o an air ra t(1999), atta ks on the Par iament in New De hi (2001), on Akshardham emp e in G jarat(2002), and at the Indian Instit te o S ien e, banga ore (2005), om asts in marketp a es in De hi (2005) and in Varanasi (2006), seria om asts in M m ai (2006) andMa egaon (2006), massa re o a o rers in upper Assam (2007) et . – a demonstratethat terrorism is not on ned to a ew po kets and that a most every part o the o ntry isv nera e. Even when the proximate a se o a tion or the po iti a o je tive o the terrorgro p is imited to a part o the o ntry, the existen e o s eeper e s, the spread o modern

omm ni ations, an integrated e onomy and the in reasing se o terror te hno ogy andta ti s, have made it easy or the mer hants o terror to spread their tenta es a over the

o ntry. As a res t, terrorism is not mere y a p i order pro em t has emerged as agrave threat to nationa se rity as we .

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2.2.2.2 Te o ntry has s ered h ge as a ties amongst ivi ians as we as se rity or es, esides o ossa damage to private and p i property, d e to terrorist in idents.

Fig. 2.2 4 gives an idea a o t the impa t o terrorism in the State o Jamm and Kashmira one.

2.2.2.3 An ana ysis o some o the re ent terrorist atta ks indi ates that terrorist organisationshave sed the existing organised rime networks. errorist gro ps and these rime syndi ateshave internationa inks with simi ar organisations and are s pported y oreign agen iesinimi a to o r interests. Teir a tivities are eing nan ed thro gh internationa money

a ndering and dr g tra king th s reating an intri ate we o rime, terror and tra kingin arms and dr gs. Experien e in some o the hroni a y ins rgen y a e ted states showsthat terrorist o t ts with initia po iti a o je tives sooner or ater degenerate into mer enary gro ps.

2.2.2.4 India is among the worst vi tims o terrorist vio en e in re ent de ades. In the a e o this massive threat, despite severe imitations, the Indian State responded with a reasona edegree o s ess. Extra-territoria sponsorship o terrorism, poro s orders, dip omati

omp exities in dea ing with sa e havens a ross the order and the de ien ies in o r ownrimina j sti e system have made the task o o ntering terrorism extreme y ard o s andomp ex. And yet the va o r and sa ri e o o r se rity or es, the a ertness and high degree

o ohesion among vario s agen ies, a road po iti a onsens s a ked y strong p iopinion, demo rati egitima y o the State and the e onomi and so ia strengths that ormthe edro k o o r nation have great y he ped s withstand the ons a ght o terror. TeIndian response to terrorism has had signi ant s ess. errorism was tota y e iminated

rom P nja ; Mizoram, whi h at one point o time was in ested with ins rgen y, is now a pea e state; there has een a de ine in vio en e in Jamm and Kashmir, too. Severaattempts o terrorists have een thwarted y time y a tion in many parts o the o ntry.

2.2.2.5 Te s ess o o nter-terrorism strategies in P nja has a so high ighted theimportan e o a we oordinated strategy. Te se rity or es have to win the on den eand s pport o the o a peop e. High handed a tion y se rity or es, espe ia y vio ationso h man rights tend to a ienate the o a peop e who may then a prey to terroristdesigns.

2.2.2.6 o ta k e the mena e o terrorism, a m ti-pronged approa h is needed. So io-e onomi deve opment needs to e taken p on a priority asis so that the o a peop e donot a into the trap o terrorists; the administration and the servi e de ivery me hanisms

need to e geared p so that the egitimate and ong standing grievan es o the peop e areredressed prompt y and there ore annot e exp oited y terror gro ps. Strong meas res arereq ired to dea with rimina e ements t with respe t or h man rights. o ens re this,the aw en or ement agen ies have to e s pported with an appropriate ega ramework,

adeq ate training, in rastr t re, eq ipments and inte igen e. With the sp rt in terrorismin re ent years, many o ntries have ena ted appropriate and stringent anti-terrorism aws.India too has had two ena tments or dea ing with terrorism in the past – (i) Te erroristand Disr ptive A tivities (Prevention) A t, 1985 (a owed to apse in 1995), and (ii) TePrevention o errorism A t, 2002 (repea ed in 2004). However, oth these egis ations were a owed to apse/repea ed as it was ontended that the powers on erred on the aw en or ement agen ies had the potentia or mis se. Te law commission in its 173rdReport (2000) examined this iss e and high ighted the need or a aw to dea rm y ande e tive y with terrorists. It a so dra ted “Te Prevention o errorist A tivities bi ”. Te

onstit tiona va idity o anti-terrorism aws has a so een phe d y the S preme co rt.Many have rged that a strong ega ramework e reated to dea with terrorism. c ear y there is a e t need to strengthen the hands o se rity or es in the ght against terror,even as h man rights and onstit tiona va es are prote ted. Te commission wo d eexamining these and other iss es re ated to terrorism in a separate Report.

2.2.3 Mi itan y in the North East

2.2.3.1 Te North East region has more than 200 ethni a y diverse gro ps with distin tang ages, dia e ts and so io- t ra identities. Some parts o this region have een s eringrom mi itan y or severa de ades. Mi itan y in the region started with the Naga movement

way a k in the ear y 1950s and rose to serio s eve s in Manip r in the 1960s. large s a eimmigration into rip ra gave irth to mi itan y there in the 1960s. Mi itan y in Assam,on the ‘ oreigners iss e’, has m tip ied and spread to many new areas.

2.2.3.2 Te n mero s mi itant movements in the region have di erent o je tives. A ew movements seek o tright se ession rom the Indian union, some aspire or separate

Statehood whi e others demand greater a tonomy within the existing State. Extortion anda d tion are req ent y resorted to y some o the mi itant gro ps. Apart rom a singh ge oss o h man ives, mi itan y has hampered e onomi deve opment o the region. Tesit ation is ompo nded y the invo vement o some oreign inte igen e agen ies, whi h areproviding materia s pport to the ins rgents. besides, the ong poro s internationa ordershave a i itated the movement o these gro ps and the sm gg ing o arms. corr ption,e onomi deprivation and nemp oyment are driving segments o yo th into the o d o mi itant organisations. Ad ho so tions res ting in wide y varying degrees o ‘a tonomy’to di erent odies – sometimes within a sing e state – have ed to ompetitive demandsand when they are not met, to a ienation and vio en e.12 13


4 So r e: Ann a Report, 2006-07; Ministry o Home A airs, Government o India.



2.2.3.3 Another intra ta e pro em has een reated y migration rom bang adesh.Initia y, this migration represented movement o peasants rom the over pop ated easterndistri ts o benga to the sparse y pop ated and erti e and a ow brahmap tra va ey

onstit ting Assam. Te redrawing o nationa o ndaries o owing Partition provided an

impet s to migrants rom East Pakistan or reasons o persona sa ety to sett e in Assam, where their presen e gave rise to ethni and ing isti tensions. Tis was o owed y reshin x o a omm nities d e to the agrarian risis in East Pakistan. Tis migration has

ontin ed even a ter the emergen e o bang adesh. Te ear among the o a pop a e thatthis immigrant pop ation wo d red e them to a minority, as has in a t happened insome parts, has e ed mi itan y in the region.

2.2.3.4 c rrent y, n mero s mi itant gro ps are a tive in di erent North-Eastern states,parti ar y in Assam, Manip r, Megha aya and rip ra. Some o these are: Assam -united li eration Front o Assam (ulFA) and Nationa Demo rati Front o bodo and(NDFb); Manip r - Peop e’s li eration Army (PlA), united li eration li erationFront (uNlF), Peop e’s Revo tionary Party o Kang eipak (PREPAK), Kang eipak comm nist Party, Kang ei Yao Kan a l p (KYKl), Manip r Peop e’s li eration Front(MPlF) and Revo tionary Peop e’s Front (RPF); Megha aya - A hik Nationa Vo nteer

co n i (ANVc) and Hynniewtrep Nationa li eration co n i (HNlc); rip ra - Arip ra iger For e (A F) and Nationa li eration Front o rip ra (NlF ); Naga and- Nationa ist So ia ist co n i o Naga and (Isak M ivah)-[NScN(IM)] and Nationa istSo ia ist co n i o Naga and (Khap a ng)-[NScN(K)].5

2.2.3.5 Te who e o Manip r (ex ept the Impha M ni ipa area), Naga and and Assam,irap and chang ang distri ts o Ar na ha Pradesh and a 20 km e t in the states having

a ommon order with Assam and some parts o rip ra have een de ared ‘Dist r ed Areas’ nder the Armed For es (Spe ia Powers) A t. Tere have a so een demands orthe repea o this A t.6

2.2.3.6 Te gravity o the pro em o mi itan y in the North-East is indi ated inFig 2.37. Te Government o India is engaging some o the mi itant gro ps in negotiations whi e providing nan ia assistan e to the State Governments or pgrading their po i e

or o ntering vio en e. It is a so ho ding ta ks with neigh o ring o ntries or e e tiveorder management.

2.2.3.7 Severa major initiatives or the deve opment o the North East Region have eena n hed: (a) Te North Eastern co n i (NEc) was esta ished in 1972 thro gh an A t o

Par iament, Te North Eastern co n i A t, 1971, or se ring the a an ed deve opmento the North Eastern Region and or inter-state oordination; ( ) Te Department or

Deve opment o North East Region was set p in Septem er 2001 and e ame a - edgedMinistry in 2004; this Ministry a ts as the noda Ministry o the union Government todea with matters pertaining to the so io-e onomi deve opment o the eight states o the North East and ( ) A union Ministries/Departments earmark at east 10% o their

dget or spe i programme o deve opment in the North Eastern Region; to the extent

o short a in the ti isation o this provision y any Ministry/Department (ex ept someexempted ones) a ording to this norm, the amo nt is trans erred to a new Reserve F nd(Non- apsa e centra Poo o Reso r es).

2.2.3.8 Te pro em o mi itan y in po kets o the North East is o vio s y very omp ex.Te ethni ity, diversity, geography and history o the region demand a omprehensivenation i ding approa h or reso ving the omp ex iss es. Fair re on i iation o on i tinginterests in the region, adeq ate o a empowerment with a o nta i ity, in rastr t redeve opment, e onomi growth, greater e onomi inkages with neigh o ring regions and

etter governan e and demo rati egitima y m st together orm the o ndation o d ra epea e and prosperity in the region. However, in the short term, se rity agen ies need to

e strengthened, extortion and a d tions m st e stopped, mi itan y sho d e r edand a o nta i ity sho d e instit tiona ised in order to prote t h man rights.

2.2.4 le t-Wing Extremism

2.2.4.1 Naxa ism is the name given to radi a , vio ent e t wing extremism. Tis movementtook irth in Naxa ari in West benga in the 1960s. Naxa ites adopted a po i y o annihi ation o their ‘ ass enemies’. Tis o a ised movement was e e tive y dea t with y theGovernment. However, in re ent years there has een a spread o the Naxa ite in en e in

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5 So r e: Ann a Report, Ministry o Home A airs, 2006-076 So r e: i id7 So r e: i id



severa states. Te extent o Naxa vio en e has een ta ated in Fig 2.48. It has ome downsigni ant y in Andhra Pradesh in terms o oth in idents and as a ties t chhattisgarhhas seen higher eve s o vio en e and as a ties. It is a so reported that Naxa gro ps have

een trying to spread to Karnataka, Kera a, ami Nad and uttarakhand9. Apart rom

ind ging in vio en e, Naxa ites ontin e to ho d Jan-Ada ats, a me hanism to dispenser de and instant j sti e.

2.2.4.2 Naxa ism has e ome an iss e o major on ern. Naxa ites operate in the va mreated y the inadeq a y and ine e tiveness o the administrative ma hinery. It is a a t that

the tri a hinter and o the o ntry has emerged as the astion o the Naxa ite movement.Te pro ems o poverty and a ienation, the demand o territoria rights and disp a ement

rom traditiona orest ha itats have aggravated the pro em. besides, neq a sharing o ene ts o exp oitation o reso r es has a so he ped reate a erti e reeding gro nd or

the growth o this mena e. Naxa ites exp oit o a grievan es and take advantage o thes erings o the deprived se tions, gaining o a s pport and re r iting adres. Tey have

a so s ess y mo i ised the s pport o some ivi so iety gro ps to rther their a seovert y. It is reported that they have een a e to esta ish trans- order inkages with ike-minded extremist gro ps or o taining exp osives and arms as a so or organising training

or their own adres. Tese extremists o ten do not a ow major deve opment o the areain ding in rastr t re deve opment or ear o osing their ho d over the peop e. Tey have a so een making se o terror ta ti s to s ppress any opposition and to demora isethe ivi administration.

2.2.4.3 T s what started as an ideo ogi a movement with ‘romanti sa ri ia ism’ asthe main ingredient, has now e ome in reasing y mi itarised and rimina ised. use o

sophisti ated weaponry, training in se o weapons and exp osive devi es, in ding or women and hi dren, resort to a d tions, mass ki ings, extortion ra kets, inks withse essionist and terrorist gro ps, assassination o p i g res and arms tra king arenow the ha mark o Naxa ite vio en e.

2.2.4.4 Initia y, severa gro ps with ideo ogi a di eren es operated separate y and attimes were in on rontation with ea h other. In 2004, two o the main e t wing extremistgro ps in the o ntry ame together nder the sing e anner o the comm nist Party o India (Maoist) (so r e: Ministry o Home A airs, Ann a Report, 2004-05). Tey have a

ommand str t re with provin ia and regiona ommittees and o a p atoons o weapon- wie ding ‘so diers’. Tey are a ked y a hain o ‘ o riers’ and sympathisers and some

ivi so iety organisations. Te ommand and ontro str t re, strategi p anning andoperationa e ien y o the Naxa ites are impressive. Tere a so seems to e s ient o ade egation, whi h gives exi i ity to the o a ormations operating most y in remote andina essi e areas. Te know edge o the terrain o ers a great advantage to Naxa ites, tthey have a so shown the apa ity to target individ a s in towns and ities. Whi e armed

adres get dep eted y iq idation or s rrender, there is ontin o s resh re r itment torep enish the osses.

2.2.4.5 Tere is need to pgrade the existing state po i e or es q antitative y as we asq a itative y with adeq ate in rastr t re, spe ia ised training and so nd inte igen es pport. E e tive oordination among the a e ted states and an overar hing nationastrategy are riti a in om ating e t wing extremism. care m st, however, e taken toinstit tiona ise me hanisms to prevent h man rights vio ations.

2.2.4.6 Government has adopted a m ti-pronged strategy to ontain this serio s threat. Apart rom o ntering vio en e, it is addressing the po iti a iss es invo ved, attending to thedeve opment needs o the a e ted areas and managing p i per eption. Strengthening o inte igen e str t res, nan ia assistan e to the a e ted states, modernisation o the statepo i e, ong-term dep oyment o centra Po i e For es, improved oordination me hanism,ba kward Distri t Initiatives and ba kward Regions Grant F nd are some o the on retemeas res taken y the Government o India. Tese initiatives need to e ose y monitored toens re that their impa t is demonstrated on the gro nd and d e a o nta i ity me hanisms

or this have to e instit tiona ised. In dea ing with th e sit ation, a omprehensive po iti aand administrative strategy is a ed or. Whi e vio en e has to e dea t with y the se rity

or es, other wings o ivi administration have an important ro e to p ay in promotingdeve opment and eq ity and ens ring prompt a tion in ta k ing the pro ems on rontingthe peop e in the a e ted regions.

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8 So r e: Ann a Report, Ministry o Home A airs; 2006-079 So r e: i id



2.2.4.7 Past experien e o s ess y dea ing with Naxa ite vio en e y states ike Kera a,and West benga indi ates that a two-pronged strategy o and re orms and so io-e onomideve opment o p ed with rm po i e a tion and systemati investigation and prose tiono ases o vio en e, is e e tive in weaning away peop e rom s pporting th e Naxa ite reed

o vio en e.2.3 Causative Factors o Major Public Order Problems

2.3.1 Te assi a s hoo in rimino ogy propo nded the theory that every h man einga ts on a rationa asis a nd wo d try to maximise his gains or minimise his pains. Tis wasthe asis o the theory o deterren e. As per this theory the State tries to prevent rimes y instit tiona ising a system o aw en or ement, whi h wo d give adeq ate p nishment tothe o ender to a t as a deterrent. Te neo- assi a s hoo s pports the assi a viewpoint

t p a es emphasis on re orm and reha i itation o the o ender. Tere have een severaother theories o rimino ogy whi h have added so ia , psy ho ogi a and e onomidimensions to the a ses o rime. As post ated y modern theorists, ontro ing rimereq ires a m ti-pronged approa h invo ving so io-e onomi and psy ho ogi a meas res;this does not, however, inva idate the theory o deterren e. Hen e the importan e o a

omprehensive and e ient system o rimina j sti e administration.

2.3.2 Any serio s ana ysis o p i order sho d re ognise the inextri a e ink etweenrime ontro and p i order. Deterioration in the ‘ rime sit ation’ adverse y a e ts p i

order and vi e versa. un he ked, widespread rime reates a t re o aw essness. A so iety, whi h does not dea with rime swi t y and e e tive y, in e e t rewards rimina s and makes

i e inse re or inno ent aw a iding itizens. I s h a imate persists, more and morepeop e tend to per eive that rime pays, and that there is no pena ty or risk atta hed to it.Tis an on y ead to more rime. S h a imate is ond ive to easy re o rse to vio en eand res ts in the reakdown o p i order. In addition, np nished rimina s e omethe agents o disorder in so iety. lo a rimina gangs are a most a ways invo ved deep y inengineering or perpet ating vio en e in times o reakdown o p i order. For instan e,in a most a omm na riots, the rowdy history sheeters and o a rimina s are invo vedin a sing vio en e and mayhem. Any attempt to pgrade the existing arrangements todea with p i order a errations wi e ns ess n ess a ompanied y meas res togenera y o ster the system o administering rimina j sti e.

2.3.3 A ording to David H. bay ey, a we -known a thority on the Indian po i e, in the we ter o disorder to whi h India was s je ted, three road ategories o p i vio en e

an e dis erned: vio en e o remonstran e, vio en e o on rontation, and vio en e o r stration. Tere are ve road a ses o the types o vio en e mentioned a ove. Tesean e ategorised as o ows:

i. So ia : In India, the histori a so ia str t res and ‘hierar hy’ has een a roota se or so ia nrest. caste has een a ndamenta divisive a tor in o r

so iety.ii. comm na : Re igio s orthodoxy and ind adheren e to extreme view points

is another ndamenta a se or nrest. In India, the existen e o every re igionside y side has een the matter o strength in o r m ti- t ra system t

ringe e ements o ten reate nrest.iii. E onomi : underdeve opment is arg a y a a se o tension. Te desire to

improve one’s position in ompetition with others, itse reates stress and inIndia, with 250 mi ion peop e e ow the poverty ine, the strain is signi ant.

iv. Administrative: Te administrative ma hinery is not a ways per eived y peop eto e o je tive and air. S a kness in de ivery o servi es, ethargy in en or emento aws is at times a major reason or r stration in itizens. corr pt and se seeking ehavio r o some o ia s ompo nds the pro em rther. One o the major a sative a tors or the er p tion o p i disorder is the inadeq a y o the administration in en or ing the egitimate onstit tiona , stat tory andtraditiona rights o itizens eading to serio s dis ontentment among them.

v. Po iti a : In a vi rant demo rati system, not a tota itarian regime, divergentpo iti a view points an ead to tension. More important, however, is thepro em o po iti a expedien y where a se tion o the po iti a eadership triesto se the administration or rthering its own po iti a agenda. Te in reasingpropensity to se p i o e or private gain, nwarranted inter eren e in

rime investigation and day to day n tioning o po i e, short-term pop ismat the ost o d ra e so tions, omp exities o a edera po ity – a these make itdi t to address some o the growing threats to p i order. Added to this isthe re ative y ow importan e atta hed to p i order in o r po iti a dis o rse. A these ontri te to reakdown o the p i order a ri .

2.3.4 Hosti ities arising o t o s h tensions and on i ts provide opport nity or exp oitationy externa or es inimi a to the o ntry. Te sit ation has a so een exp oited y radi a

po iti a gro ps or rtheran e o their own agenda and o je tives. Attention has a ready een drawn to the instigation o mi itan y y agen ies inimi a to India. Te om asts

in M m ai in 1993 and again the re ent om asts in trains in M m ai ity and many other simi ar o rren es are mani estations o this. In the North-East a so, ross- orders pport to vario s domesti movements has ed to aggravation o anti-nationa a tivities.In order to prevent s h exp oitation o domesti on i ts y externa or es, we m st ea e to manage s h on i ts witho t a owing them to deve op into pro onged and grave

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disorder. F rther, rapid spread o in ormation, thro gh te hno ogi a deve opments, hasthe potentia to a ent ate the existing ones.

2.4 Lessons rom the Past

2.4.1Sixty years have passed sin e we gained Independen e. Tere is need to now identi y the strengths and weaknesses o o r instit tions and systems ased on past experien eso as to draw se essons rom them. Some o the major strengths o the existing ega

ramework are (a) a ear y aid down demo rati , onstit tiona and ega ramework,( ) an independent j di iary and an e a orate rimina j sti e system and j di ia review o exe tive a tion, ( ) representative instit tions to de ate iss es o p i importan e,(d) a vigi ant media and (e) emerging ivi so iety responsiveness.

2.4.2 Te strong points o the administrative ramework o the o ntr y have een (a) rm y esta ished administrative traditions, ( ) a we -organised po i e ma hinery, ( ) systems o a o nta i ity, even i de ient and (d) the existen e o a pro essiona rea ra y whi h

rings a o t administrative ohesion and ni ormity.

2.4.3 We sho d however re ognise that o r ega and administrative ramework has ertain

weaknesses:

• de ays in the rimina j sti e system;• nresponsiveness o the administration;• a k o n tiona a tonomy or aw en or ement and investigation agen ies;• a k o adeq ate and e e tive a o nta i ity me hanisms;• o tdated and npro essiona interrogation and investigation te hniq es;• tenden y to se nwarranted disproportionate or e and a di ation

o d ties nder partisan press res;• inadeq ate training and in rastr t re or po i e;• a k o oordination etween prose tion and investigation;• ins ien y o aws dea ing with terrorism and organised rime;• peop e’s propensity to perj ry; and• neg e t o vi tim’s rights

Tese are some o the ma aise whi h have to e addressed rgent y, o d y and in aninnovative manner.

2.4.4 Te de ining e a y o the existing systems o investigation and tria is ear y ro ghthome in a es 2.1 and 2.2. Te n m er o rimes ha s in reased over the years t what ismore dist r ing is the ow rate o onvi tion. a e 2.2 shows that whi e the work oad andpenden y at investigation stage are in reasing, a m h higher per entage o ases are now

eing hargesheeted. b t the de ine in onvi tion rates shows that investigation standardsare a ing, th s indi ating that there may e an easy re o rse to hargesheeting witho tadeq ate app i ation o mind and gathering o eviden e. Tis a so re e ts on the q a ity o p i prose tion. I onvi tions res ting rom on ession o the a sed are ex ded,

the rate o onvi tion wo d e even ower.2.4.5 Te a k o a o nta i ity has een one o the main reasons or the tardy response o the government ma hinery. Rare y is an o ia he d to a o nt or his/her a ts o omissionor ommission in dea ing with a p i order pro em. Te government ma hinery rare y attempts to address a rewing on i t. Tere have een ases, where adeq ate pre a tionary steps were not taken even when there was a high pro a i ity o o t reak o vio en e. Insevera instan es, vio en e was not ontro ed with the degree o rmness req ired. Oneo the reasons or this is that in entives are o ten skewed in avo r o not dea ing with asit ation rm y even when the sit ation so demands. using or e to restore order even when

able 2.1: Disposal o IPC Crime Cases b Police (Decadal Picture)

S.No. Year ota No. N m er o cases Investig ated Per entage o caseso cases

orInvestigation

(in dingpending

ases)Fo nd charge- ota r e ota * Investig ated charge-

F/Nc/MF# sheeted cases @ (co . (co .7/ sheeted4-6) co .3x100) (co .5x100/

co .6)

(1) (2) (3) (4) (5) (6) (7) (8) (9)

1 1961 696155 54128 285059 532151 586279 84.2 53.6

2 1971 1138588 83663 428382 810691 894354 78.5 52.8

3 1981 1692060 127655 740881 1208339 1335994 79.0 61.3

4 1991 2075718 118626 1091579 1530861 1649487 79.5 71.3

5 2001 2238379 105019 1303397 1658258 1763277 78.8 78.6

6 2002 2246845 116913 1335792 1670339 1787252 79.5 80.0

7 2003 2169268 105383 1271504 1586562 1691945 78.0 80.18 2004 2303354 103249 1317632 1651944 1755193 76.2 79.8

9 2005 2365658 100183 1367268 1693652 1793835 75.8 80.7

# F/Nc/MF- Fa se/Non ogniza e / Mistake o a t* Ex ding ases where investigation was re sed @ cases harge-sheeted + Fina report tr e s mitted.

So r e: crime in India, 2005; NcRb

20 21




j sti ed, r ns the risk o t re inq iries whereas so t peda ing may e a ‘sa er’ option.Tere have, however, een ases where the se rity or es have over-rea ted.

2.4.6 An eq a y g aring pro em is the propensity to se third degree methods and ha it avio ation o h man rights y aw en or ement agen ies. Re on i iation o the imperativeso p i order with a itizen’s i erty and dignity is a vita req irement in a i era so iety.raining, eq ipments, pro ed res and a ttit des need to e att ned to the itizens’ h man

rights.

2.4.7 Te ivi administration in ding the po i e, today, have to per orm their d ties ndera ar more vigi ant and demanding environment. be a se o an in reasing eve o p iawareness and expe tations, there are greater demands on the administrative ma hinery,

or de ivery o etter servi e. Tere is a so greater p i s r tiny o their a tions e a se o

able 2.2: Disposal o IPC Crime Cases b Courts (Decadal Picture)

S . Year ota No. o No. o cases Per entage o

No. cases or ria cases

(In ding Pending cases)

ried * convi ted ria comp eted convi tion

(co .4/ (co .5 /

co .3) co .4)

(1) (2) (3) (4) (5) (6) (7)

1 1961 8,00,784 2,42,592 1,57,318 30.3 64.8

2 1971 9,43,394 3,01,869 1,87,072 32.0 62.0

3 1981 21,11,791 5,05,412 2,65,531 23.9 52.5

4 1991 39,64,610 6,67,340 3,19,157 16.8 47.8

5 2001 62,21,034 9,31,892 3,80,504 15.0 40.8

6 2002 64,64,748 9,81,393 3,98,830 15.2 40.6

7 2003 65,77,778 9,59,567 3,84,887 14.6 40.1

8 2004 67,68,713 9,57,311 4,06,621 14.1 42.5

9 2005 69,91,508 10,13,240 4,30,091 14.5 42.4

* Ex ding withdrawn/ ompo nded ases.So r e: crime in India, 2005; NcRb

enhan ed ons io sness o the itizens a o t their rights and privi eges and the emergen eo a power media and itizens’ gro ps.

2.5 Te Need or Comprehensive Re orms

2.5.1 Te commission ir ated a q estionnaire overing vario s aspe ts o p i order{Annex res II (1) and II (2)}. On y 12% o the respondents stated that they were satis ed with the existing system o management o p i order in the o ntry. Another 5% weresatis ed with it ‘on y to some extent’; 79% were ategori a in expressing their dissatis a tion.Prominent among the reasons or dissatis a tion mentioned were:

• extraneo s in en e in p i order management;• the root a ses o pro ems not eing addressed y the administrative

agen ies;• a sen e o attempts to nd ong term so tions to pro ems;• administrative de isions eing g ided y po iti a expedien y;• inadeq ate invo vement o ivi so iety, NGOs and so ia workers in p i

order management;• a k o an instit tiona me hanism de ning the ro es and responsi i ities o

the vario s stakeho ders in on i t reso tion;• a k o empowerment o j nior ranks at the tting edge eve s o administration

to e e tive y dea with pro ems at the nas ent stage;• a k o appropriate training or n tionaries o ivi administration and the

po i e on p i order iss es;• a k o modern te hno ogy and eq ipment with the po i e;• a sen e o omp terised data ases on rimina , anti-so ia and anti-nationa

e ements;• a k o spe ia ised, we trained wings in the po i e organisations o many

a e ted states to dea with pro ems ike e t wing extremism;• a k o a ohesive a India po i y and ega ramework to dea with pro ems

o p i order a e ting se rity o state, s h as terrorism and e t wingextremism;

• ine e tive per orman e monitoring systems or p i order managementn tionaries; and

• a k o a o nta i ity o the po i e and administration to the p i .

2.5.2 Severa commissions o Inq iry have examined the a ses and the hand ing o major instan es o p i disorder. Some o th e important ndings o the commission o Inq iry or the riots in M m ai in 1992 and the seria om asts 1993, as one examp e,are as o ows:

22 23




“Te canker o corruption has eaten into the entrails o Indian Society and police department is no exception.”

“Frequent trans ers o police personnel on grounds other than administrative convenience and nepotism and corruption in the matter o posting, allotment o quarters and even grant o leave, have haunted the police administration or long. Political inter erence at all levels, have haunted the police administration or long.”

“Justice delayed is justice denied, more so, in case o a criminal trial. Very o ten the delay is on account o the unpreparedness o the investigating o cer.”

“Tere should be meticulous and e ective consideration o intelligence collected or maintenance o law and order and prevention o crimes.”

“Weapons available with the police in the police stations were inadequate in terms o quantity and quality.”

“Manpower available with police is extremely inadequate and as a result an average policeman is required to work or at least 12 hours.”

“Religious activities in congested areas led to fare up. Similarly, announcements onloudspeakers and religious observances in public places led to avoidable tension among di erent communities.”

Tese extra ts are on y i strative t they emphasise the need or a major overha o thep i order management me hanism.

2.5.3 Te committee on Re orms o crimina J sti e System has o served:

“A ormer Chie Justice o 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 con ronting the Criminal Justice System are huge pendency o c riminal cases and the inordinate delay in disposal o criminal cases on the one hand and the very low rate o conviction in cases involving serious crimes on the other. Tis has encouraged

crime. Violent and organised crimes have become the order o the day. As chances o convictions are remote, crime has become a pro table business. Li e has become unsa e and people live in constant ear. Law and order situation has deteriorated and the citizens have lost con dence in the criminal justice system”.10

2.5.4 Te law commission has given severa reports on re orming the rimina j sti esystem. Te committee on Re orms o crimina J sti e System, 2003 went into this iss e

at great ength and made wide ranging re ommendations. Te Nationa Po i e commission,severa State Po i e commissions and State Administrative Re orms commissions havegone into the iss e o po i e re orms. Te Nationa H man Rights commission has madere ommendations or pro essiona ising investigations y the po i e with a view to minimise

h man rights vio ations. Ear ier, the A India committee on Jai Re orms re ommended wide ranging prison re orms (1980-83). More re ent y, the Po i e A t Dra ting committee,2006 re ommended a Mode Po i e A t to e adopted y the states. Te S preme co rthas a so iss ed dire tions overing severa aspe ts o po i e re orms11.

2.5.5 A these reports and prono n ements emphasise the rgen y or re orms in the po i eand the rimina j sti e system. Attaining a sit ation where there is per e t p i order isno do t topian. Perhaps a more rea isti target wo d e to esta ish the r e o aw. Ithas een said that a State esta ishes r e o aw y making it easier or peop e to do rightand making it di t or them to do wrong. Tis is a hieved thro gh a om ination o preventive and deterrent meas res. Te State reates a ongenia atmosphere y egis atingand reating vario s instit tions. Mere existen e o good aws does not ens re r e o aw.Tese aws have to e imp emented in right ea rnest. Te State has to provide air, o je tiveand transparent governan e so that itizens have aith in it. Te State an prevent p i

disorder y anti ipating potentia pro ems and attempting to reso ve them. Visi e po i ingis an extreme y e e tive instr ment to prevent rimes in so iety. In spite o a preventivemeas res, there are e ements in so iety whi h wi vio ate aws. Tere ore in order to ens re j sti e to the persons wronged and to deter others, the rimina j sti e system seeks to p nishthe wrong doers. In order to ens re the r e o aw, a the instr menta ities mentioned inthe pre eding paras have to n tion e e tive y and in harmony (Fig 2.5). A so any e ortto move towards an idea p i order sit ation wo d req ire a omprehensive ook at athe instr menta ities.

2.5.6 Severa stakeho ders have to work in harmony to esta ish the r e o aw. Essentia y s h a r e o aw wo d entai :

• a ega ramework, whi h is air and j st and provides eq a opport nities ora ;

• an e e tive, air and j st ivi administration whi h in ses respe t or aw;• an e e tive, e ient, a o nta e and we eq ipped po i e system whi h

prevents any threat to r e o aw;• a strong, a tonomo s and e e tive rime investigation ma hinery a ked y

a pro essiona y ompetent prose tion and a air and swi t rimina j sti esystem;

24 25


10 Extra ted rom the Report o the committee on Re orms o crimina J sti e System 11 Writ Petition (civi ) No. 310 o 1996



• a ivi so iety whi h is vigi ant a o t its rights and d ties; and• an a ert and responsi e media.

2.5.7 Te commission, in this Report, has ooked at a these aspe ts in a omprehensiveand harmonio s manner and a so examined the inkages etween di erent organisationsinvo ved in this pro ess.

26 27

P i Order

3HE ExIS ING POLICE SyS EM

3.1 Te Police Organisation

3.1.1 ‘P i order’ and ‘Po i e’ g re as Entry 1 and 2 respe tive y, in list II (State list) inthe Seventh S hed e o o r constit tion,there y making State Governments primari y responsi e or maintaining p i order.Invaria y, po i e, whi h is a part o the

ivi administration, is at the ore ront inmaintaining aw and order. In the e d, thedistri t administration (the Distri t Magistrate

and the S perintendent o Po i e) and inigger ities in some states the commissionero Po i e ass me the responsi i ity or p iorder. As exp ained ear ier, the day-to-day po i ing and rime management a so havea pro o nd earing on the r e o aw andthere y p i order (see box 3.1 on Tebroken Window Syndrome). Tis hapterthere ore dea s with the existing po i e systemas we as p i order management.

3.1.2 Arti e 355 o the constit tion enjoinspon the union to prote t every state against

externa aggression and interna dist r an e

and there y to ens re that the governmento every state is arried on in a ordan e with the provisions o the constit tion. TePo i e A t, 1861 is sti the asi instr mentgoverning the n tioning o the Indianpo i e. under this A t, the Inspe tor Genera



Sl.No. State/UT No. of No. of No. of No. of No. of No. of No. of No. of PopulationZones Ranges Police Sub Circles Rural Urban Women per Police

Districts Divisions Police Police Police StationStations Stations Stations

18 Mizoram 0 1 8 15 0 15 19 0 26134

19 Naga and 2 7 10 24 17 19 24 1 45228

20 Orissa 0 9 34 35 91 291 168 6 79150

21 P nja 3 5 15 96 51 166 93 3 92973

22 Rajasthan 0 8 33 0 172 417 294 13 78049

23 Sikkim 1 1 4 11 0 8 19 0 20032

24 ami Nad 4 12 37 243 287 507 715 196 44010

25 rip ra 1 2 4 20 29 33 22 0 58167

26 uttar Pradesh 7 17 70 309 376 1106 340 12 113990

27 uttaran ha 0 2 13 71 34 66 40 2 78605

28 West benga 4 8 27 81 106 235 228 0 173167

ota (States) 109 176 669 2098 2557 8083 4190 291

Union erritories

29 A&N Is ands 0 0 2 4 4 18 3 1 16189

30 chandigarh 0 0 0 3 0 0 11 0 81876

31 D&N Have i 0 0 1 13 0 1 1 0 110245

32 Daman&Di 0 0 2 2 0 0 2 0 79102

33 De hi 0 3 9 41 0 0 129 0 107368

34 lakshadweep 1 1 1 1 1 9 0 0 6739

35 Pondi herry 0 0 1 6 15 16 24 3 22659

ota (u s) 1 4 16 70 20 44 170 4

ota (A -India) 110 180 685 2168 2577 8127 4360 295

**Pop ation g res are as per ‘Primary cens s A stra t’, cens s o India 2001 p ished y O e o the RegistrarGenera , India.

So r e: Nationa crime Re ords b rea (crime in India, 2005)

Te strength o the Po i e For e in vario s states is given in a e 3.313

28 29

P i Order Te Existing Po i e System

12 So r e: Nationa crime Re ords b rea (crime in India, 2005) 13 So r e: Nationa crime Re ords b rea (crime in India 2005)

o Po i e (now designated as the Dire tor Genera and Inspe tor Genera o Po i e) is thehead o a state po i e. States are divided into distri ts and a S perintendent o Po i e headsthe distri t po i e. A ew states have a so passed their own State Po i e A ts. besides, other

aws ike the Indian Pena code (IPc) o 1862, the Indian Eviden e A t (IEA) o 1872

and the code o crimina Pro ed re (crPc) o 1973 a so govern the n tioning o thepo i e. An idea a o t the organisation o po i e in the states an e had rom a e 3.212.

able 3.2 Organisational Setup o State Police (2005*)

Sl.No. State/UT No. of No. of No. of No. of No. of No. of No. of No. of PopulationZones Ranges Police Sub Circles Rural Urban Women per Police

Districts Divisions Police Police Police StationStations Stations Stations

1 2 3 4 5 6 7 8 9 10 11

S A ES

1 Andhra Pradesh 14 10 26 153 496 1159 397 23 48265

2 Ar na ha Pradesh 1 2 15 5 17 54 15 0 15913

3 Assam 0 6 27 27 43 116 116 1 114401

4 bihar 5 12 46 110 202 643 114 0 109641

5 chhattisgarh 4 4 21 41 0 194 144 3 61096

6 Goa 0 0 2 7 0 9 16 1 51833

7 G jarat 12 7 30 95 86 388 80 4 107354

8 Haryana 0 5 21 49 0 158 51 1 100688

9 Hima ha Pradesh 0 3 12 23 0 58 29 0 69861

10 Jamm & Kashmir 2 6 21 38 0 123 49 2 58297

11 Jharkhand 3 6 24 33 112 250 79 0 81902

12 Karnataka 10 10 31 119 230 447 358 10 64847

13 Kera a 2 4 17 52 192 311 133 3 71233

14 Madhya Pradesh 0 16 51 145 0 600 330 9 64268

15 Maharashtra 32 7 54 263 0 650 292 0 102844

16 Manip r 2 4 9 21 0 45 13 1 36725

17 Megha aya 0 2 7 12 16 15 12 0 85882



3.2.5 A st dy on petty orr ption ndertaken y ransparen y Internationa India andcentre or Media St dies whi h invo ved a samp e o 14,405 respondents in 20 Indianstates and overed 151 ities and 306 vi ages revea ed that 80% o the respondents hadpaid a ri e to the po i e. Te st dy a so on ded a ter a s rvey o 11 p i servi e

agen ies that po i e were regarded as the most orr pt agen y and 74% o the respondents who intera ted with the po i e were dissatis ed with the servi e.14

3.3 Declining Conviction Rate

3.3.1 A st dy o the onvi tion rate orvario s types o rimes (Fig 3.2) showsthat there has een a genera de ine in the

onvi tion rate or a types o o en es inthe period etween 1960 and 2005 whereasthe n m er o ases harge-sheeted as aper entage o ases investigated has in reased.Data a so indi ates that onvi tion rates orm rder showed a genera de ine with a steeper de ine noti ed in the So th Indian states.Tere is a so a dist r ing trend o in rease in the n m er o stodia deaths whi h went

p rom 207 in 1995 to 88915 in 1997. Tis g re rose rther in 2002-2003 to 1340.Tese statisti s point to major str t ra pro ems whi h afi t the Indian Po i e and the

rimina j sti e system. A deeper ana ysis o these pro ems wo d e o va e in order toidenti y the re orms req ired to set things right.

3.4 Problems in the E isting Police Functioning

3.4.1 Te major pro ems in the n tioning o the Indian po i e have een ro ght tothe ore re ent y thro gh high pro e ases s h as the disappearan e and ki ings o a

arge n m er o hi dren in Nithari Vi age o u.P. and the Jessi a la and PriyadarshaniMattoo m rder ases, wherein a o sness, o sion, shoddy investigation and ‘hosti e witnesses’ made a mo kery o the entire rimina j sti e system. A media- ed o t ry andinterventions y the j di iary have ens red e ated remedia a tion in a ew ases. b t the

ai re in o nt ess other ases ontin es naddressed.

3.4.2 Te instan es mentioned a ove are symptomati o the deeper ma aise that afi tsIndian po i ing with its o s on maintaining aw and order rather than trying to nderstandand reso ve nder ying pro ems. It is arg ed that the traditiona sno ery and systemo patronage has ontin ed, orr ption eve s have gone p and so a so the extent o po iti a inter eren e. Tere is a propensity to resort to physi a vio en e and oer ion

even d ring investigations ratherthan taking re o rse to s ientiand sophisti ated methods to gathereviden e. Te emphasis, there ore,

is on ora eviden e or on ession,rather than on orensi eviden e.

3.4.3 It is there ore not s rprisingthat the po i e are o ten per eived,not as itizen riend y g ardians o p i se rity and pho ders o the r e o aw, t as eing iasedagainst the oppressed and dishonest.Perhaps nowhere is the asymmetry o power in a so iety so evident asin the ehavio r and attit de o the po i e parti ar y towards thedisadvantaged se tions o so iety.

3.4.4 It wo d not, however, e air to p a e the entire ame on the po i e or the ai reo the rimina j sti e system, e a se there are many a tors responsi e or the presentsit ation. Tese o d e road y assi ed as o ows:

i. Pro ems re ated to genera administration • Poor en or ement o aws and genera ai re o administration;

• large gap etween aspirations o the peop e and opport nities withres tant deprivation and a ienation; and

• la k o oordination etween vario s government agen ies.

ii. Pro ems re ated to po i e • Pro ems o organisation, in rastr t re and environment;

o unwarranted po iti a inter eren e;o la k o empowerment o the tting edge n tionaries;

o la k o motivation at the ower eve s d e to poor areer prospe ts, andhierar hi a sha k es;

o la k o modern te hno ogy/methods o investigation;o O so ete inte igen e gathering te hniq es and in rastr t res; ando Divor e o a thority rom a o nta i ity.

32 33


14 India corr ption St dy 2005 to improve governan e. Retrieved rom http://www. msindia.org/ ms/events/ orr ption.pd 15 So r e: Ann a Reports, NHRc



• Pro ems o organisationaehavio r;

o Inadeq ate training; ando Entren hed attit des o

arrogan e, insensitivity and patronage.

• Pro ems o stress d e toover rdening;

o M tip i ation o n tions, with rime

prevention andinvestigationtaking a a k seat;

o Shortage o personne andong working ho rs; and

o oo arge a pop ation tohand e.

• Pro ems re ated to ethi an tioning;o corr ption, o sion and

extortion at di erenteve s;

o Insensitivity to h manrights; and

o A sen e o transparentre r itment andpersonne po i ies.

iii. Pro ems re ated to prose tion• best ta ent not attra ted as p i prose tors;• la k o oordination etween the investigation and the prose tion

agen ies; and• Mistr st o po i e in admitting eviden e.

iv. Pro ems re ated to the j di ia pro ess/ rimina j sti e administration • large penden y o ases;• low onvi tion rates;

• No emphasis on as ertaining tr th; and• A sen e o vi tims’ perspe tive and rights.

3.5 Review o Recommendations or Police Re orms in the Past

3.5.1 Te indigeno s system o po i ing in India was very simi ar to the Ang o Saxon system;oth were organised on the asis o and ten re. As with the system in the medieva days

o King A red, thezamindar 16 was o nd to apprehend a dist r ers o p i pea e. Tevi age responsi i ity was en or ed thro gh the headman. I a the t was ommitted withinthe vi age o nds, it wa s the headman’s siness to tra e the g i ty. I he ai ed to re overthe sto en property, he was o iged to make good the amo nt to the extent his meanspermitted. Te Mogh system o po i ing o owed ose y on the ines o the indigeno ssystem.17 Extortion and oppression o rished thro gh a gradations o o ia s responsi e

or the maintenan e o pea e and order.

3.5.2 o re orm the then existing system, the rst step taken y the british was to re ievethe zamindars o their ia i ity or po i e servi e and their p a e was taken over y theMagistrates in the distri t. A tho gh severa attempts were made to re orm the po i ed ring the british R e, the rst major step was the onstit tion o the Po i e commission

o 1860. Te commission re ommended the a o ition o the mi itary po i e as a separateorganisation and the onstit tion o a sing e homogeno s or e o ivi onsta ary. Tegenera management o the or e in ea h provin e was to e entr sted to an Inspe torGenera . Te po i e in ea h distri t were to e nder a Distri t S perintendent. Tes pervision and the genera management o the po i e y the Distri t Magistrate was

ontin ed. Te commission s mitted a bi , ased on the Madras Po i e A t, to givee e t to these re ommendations, and this e ame a aw.

3.5.3 Te Indian Po i e commission was onstit ted in 1902. It o nd on rete eviden eo rampant orr ption in the po i e department. Te commission o served o thanedars 18 in parti ar:“Tis corruption has many orms, and is noticeable at all levels o work in a police station. A police o cer accepts ee or gi t or every work he does. Generally a plainti gives some ee to get his complaint registered. He bribes the investigation o cer or an immediate action inhis avour. As the investigation progresses, more money is given. When the investigation o cer

reaches the spot o incident, he becomes a burden not only to plainti and witness but to the entire village. People are harassed in such a way that they have to visit the police o cer daily or days together. Sometimes he goes to their houses along with his colleagues. Teir women olk are threatened with dire consequences in case men disagree with the o cial attitude about their cases. Tey are told that their houses would be attached and their wealth inquired into. Tey

34 35


16 Zamindar is a Hindi/urd word meaning a and owner who eased and to tenant armers ‘ and ord’17 So r e: compendi m o the Re ommendations o the Po i e commissions o India; ompi ed y the Nationa crimes Re ords b rea18 Tanedar means o er in harge o a Po i e Station



are sometimes imprisoned and humiliated in anumber o ways. People bribe policemen in order to get rid o such harassment.” 19

3.5.4 In the post independen e period, po i ere orms have een the s je t o a n m er o commissions and committees, appointed

y vario s State Governments as we as theGovernment o India.

3.5.5 Te uP Po i e commission, headed y Shri Ajit Prasad Jain, M.P., was appointed in1960. Te commission ame to the on sionthat rimes were in reasing t the o iastatisti s or the period 1950 to 1959 showeda de ine o 10% in the in iden e o rime. Ito served that on ea ment and minimisationo re orded rimes is a nat ra oro ary o asystem where the work o the Station Ho seO er is j dged y the n m er o rimes

ommitted in his j risdi tion. Some o thereasons identi ed y it or the in rease in

rime are de ine in respe t or aw, reakdowno the o d vi age po i e system, ine e tivenesso po i e, poor q a ity o investigation and prose tion, po iti a inter eren e, a tiona ismin the r ing party and asso iation o rimina s with po iti a parties. Te commissionopposed the proposa to trans er some po i e n tions to o a odies. It o served that– “Tere is little doubt that corruption is rampant in the non-gazetted ranks o the police orce.Imputations o corruption against gazetted ranks are not wanting, but they are not so pervading in their character”.

3.5.6 Te West benga Po i e commission onstit ted in 1960 re ommended that the work o investigation sho d e separated rom other work in thethanas 20 at the distri theadq arters, in heavi y ind stria ised r an areas and in other towns. It a so re ommendedthat the ca tta Po i e and West benga Po i e sho d remain separate or es. It o servedthat the pra ti e o not re ording rimes or red ing their gravity arise rom a e ie a mongs ordinate o ers that redit o d on y e gained y maintaining a ow ret rn o rime.Tey s ggested strengthening o the orensi s ien e a oratory and made a n m er o

on rete s ggestions to red e orr ption.

3.5.7 Te bihar Po i e commission, 1961, made wide ranging re ommendations rangingrom registration o FIRs to the we are o po i e personne . It o served that the genera

impression seemed to e that the in iden e o orr ption was onsidera e in a ranks pto the Inspe tor o Po i e; it was rare in the rank o Dep ty S perintendent o Po i e and

insigni ant in the rank o S perintendent o Po i e and the administrative ranks o thepo i e or e were ree rom emish. It emphasised the importan e o p i ooperationand on ded that prin ipa s pport to the po i e sho d ome rom the so iety itse .

3.5.8 Te ami Nad Po i e commission was appointed in 1969 to go into the onditionso servi e, d ties and responsi i ities, modernisation et . o the po i e or e. It madere ommendations or re onstit tion o the Servi e cadres, improvement o servi e

onditions, reorganisation o po i e esta ishments, modernisation and improvement o operationa e ien y and the re ationship etween po i e, p i and po iti s. It ame tothe on sion that the onsta es were heavi y overworked (some o them had to work

or over 14 ho rs a day on an average). Te Report on ded y stating –“… the strains and stresses in the unctioning o the Police Force, which have arisen almost entirely as a result o politics are indeed cause or serious concern; but not yet or alarm”.

3.5.9 At the na tiona eve , the Gore committee on Po i e raining (1971-73) was set pto review the training o the po i e rom the onsta ary eve to IPS o ers. Governmento India appointed the Nationa Po i e commission in 1977. Te commission s mittedeight Reports overing di erent aspe ts o po i e administration in the o ntry.

In the First Report iss es re ating to the onsta ary and interna administrations h as pay-str t re, ho sing, order y system, redressa o grievan es, areerp anning or onsta ary, omp aints against po i e et . were ana ysed.

Te Second Report dea t with we are meas res or po i e ami ies, po i e ro es,d ties, powers and responsi i ities; inter eren e in the working o po i e; GramNyaya ayas; maintenan e o rime re ords and statisti s and how to avoid po iti aand exe tive press re on the po i e or e. Te re ommendations in ded the

onstit tion o state se rity ommissions and se rity o ten re or o ia s.

Te Tird Report o sed on the po i e or e and the weaker se tions o so iety,

vi age po i e, spe ia aw or dea ing with serio s and widespread rea hes o p iorder, orr ption in the po i e, e onomi o en es and modernisation.

Te Fourth Report addressed the iss es o investigation, o rt tria s, prose tion,ind stria disp tes, agrarian pro ems, so ia egis ation and prohi ition.

36 37


19 http:// prd.ni .in/writereaddata/ inkimages/25908814608.pd ; retrieved on 10-4-0720 Tana means a po i e station



Te Fi th Report ana ysed and made re ommendations on iss es pertaining tore r itment o onsta es and s -inspe tors, training o po i e personne , distri tpo i e and the exe tive magistra y, women po i e and po i e p i re ations.

Te Sixth Report dea t with po i e eadership – the Indian Po i e Servi e, po i e and

st dents, omm na riots and r an po i ing.Te Seventh Report dis ssed the organisation and str t re o the po i e, state anddistri t armed po i e, de egation o nan ia powers to po i e o ers, trareg ation, ministeria sta , per orman e appraisa o po i e personne , dis ip inary

ontro and ro e o the union Government in p anning, eva ation andoordination.

Te Eighth Report overed the s je t o a o nta i ity o po i e per orman e.It a so re ommended a dra t Po i e bi whi h in orporated severa re ommendationso the commission.

3.5.10 Te Ri eiro committee was set p in 1998 on the orders o the S preme co rto owing a P i Interest litigation (PIl) on po i e re orms. It re ommended the settingp o Po i e Per orman e and A o nta i ity commissions at the State eve , onstit tion

o a Distri t comp aints A thority, rep a ement o the Po i e A t, 1861 with a new A tet . In 2000, the Padmana haiah committee on Po i e Re orms was onstit ted to st dy,inter a ia, re r itment pro ed res or the po i e or e, training, d ties and responsi i ities,po i e o ers’ ehavio r, po i e investigations and prose tion.

3.5.11 Te Government o India onstit ted in Septem er 2005 a Po i e A t Dra tingcommittee (PADc) with Shri So i Sora jee as chairman, to dra t a new Po i e A t to rep a ethe Po i e A t o 1861. Te committee has dra ted a mode Po i e bi keeping in view the

hanging ro e/responsi i ity o po i e and the ha enges e ore it, espe ia y on a o nt o the growth and spread o ins rgen y/mi itan y/Naxa ism et . Te new bi a so has meas res

or attit dina hanges o po i e in ding working methodo ogy to e i it ooperation andassistan e o the omm nity. Some o the major eat res o the dra t bi are:

• S perintenden e o State po i e to vest in the State Government; StateGovernment to exer ise s perintenden e over po i e thro gh aying downpo i ies and g ide ines, a i itating their imp ementation and ens ring thatthe po i e per orms its task in a pro essiona manner with n tionaa tonomy.

• Appointment o the Dire tor Genera o Po i e y the State Governmentrom amongst three senior most o i ers, empane ed or the rank.

Empane ment to e done y th e State Po i e board.

• en re o minim m o two years or the Dire tor Genera o Po i eirrespe tive o his date o retirement.

• Se rity o ten re or key po i e n tionaries.• Distri t Magistrate to have a oordinating ro e.

• Initia appointment at civi Po i e O er Grade-II and S -Inspe tor eve s.• constit tion o a State Po i e board, headed y the Home Minister. TeState Po i e board to rame road po i y g ide ines or promoting e ient,e e tive, responsive and a o nta e po i ing, in a ordan e with aw;prepare pane s or appointment o the Dire tor Genera o Po i e; identi y per orman e parameters to eva ate the n tioning o the po i e servi es andreview and eva ate organisationa per orman e o the po i e servi e in thestate.

• constit tion o Po i e Esta ishment committee.• De nition o the ro e, n tions, d ties and so ia responsi i ities o the

po i e.• constit tion o a vi age po i e system.• creation o Spe ia Se rity Zones.• constit tion o a State Po i e A o nta i ity commission to inq ire into

p i omp aints aga inst po i e.• constit tion o a Distri t A o nta i ity A thority.

3.5.12 Te commission has examined the important re ommendations o the So i Sora jeecommittee. Te commission appre iates the omprehensive exer ise ndertaken y thecommittee, whi h has een o onsidera e va e to the commission in orm ating itsviews. Te road ramework proposed y PADc is very re evant to making po i e a seinstr ment o p i servi e in the 21st ent ry. Te dra t bi prepared y the committeeen ompasses virt a y a areas o po i e n tioning. Te commission agrees with the

orm ations in the proposed egis ation on grant o n tiona a tonomy, treating po i e asa ‘servi e’, nders oring the n tiona ins ation o the servi e, se rity o ten re, insisten eon minim m eve o in rastr t ra a i ities and the attempt to ay down a road hartero d ties or the po i e personne et . Whi e endorsing the road dire tion indi ated y PADc, the commission is o the view that a ho isti examination o the n tioning o the po i e and rimina j sti e system is needed or omprehensive re orms.

3.5.13 Te PADc Dra t bi advo ates ‘One Po i e Servi e’ or ea h state. Te commission iso the view that ‘po i e n tions’ are not per ormed on y y the po i e. certain government

38 39




departments/agen ies have a ready een given po i e powers. c rrent y, the state po i ehave een entr sted with the en or ement o so many aws that they are over rdenedand are na e to devote adeq ate time to their ore n tions. T s, there is need tored e this rden y empowering the departmenta agen ies to en or e their reg ations.

Simi ar y, o a governments esta ished p rs ant to the Seventy Tird and Seventy Fo rth Amendments, wo d grad a y req ire their own en or ement wings. No do t the statepo i e wo d ontin e to p ay the entra ro e, t the need or other po i e servi essho d e re ognised, and reation o new servi es needs to e a i itated to meet t rereq irements.

3.5.14 Te two most important n tions o the po i e in addition to rime prevention areinvestigation o rime and maintenan e o aw and order. Tese two n tions are q itedistin t req iring di erent apa i ities, training and ski s. More important y they req iredi erent types o a o nta i ity me hanisms and di erent degree o s pervision rom thegovernment. Te onstit tion o the State Po i e board as re ommended y the PADc wo d give po i e the req ired degree o a tonomy. b t a separate me hanism sho d ep t in p a e to ins ate rime investigation, eviden e gathering and prose tion rom thevagaries o partisan po iti s. For this p rpose, there wi have to e a separate po i e servi eto dea with investigation o rimes ex sive y with a me hanism to ins ate the pro ess

rom nwarranted inter eren e.

3.5.15 Some other re ommendations in ded in the Dra t bi proposed y PADc may a so need modi ation and these have een dea t with in the s eeding hapters.

3.5.16 Te S preme co rt, in Writ Petition (civi ) NO. 310 o 1996, (22-9-2006),o served:

“ It is not possible or proper to leave this matter only with an expression o this hope and to await developments urther. It is essential to lay down guidelines to be operative till the new legislation is enacted by the State Governments.

Article 32 read with Article 142 o the Constitution empowers this Court to issue suchdirections, as may be necessary or doing complete justice in any cause or matter. All

authorities are mandated by Article 144 to act in a id o the orders passed by this Court.Te decision in Vineet Narain’s case ... notes various decisions o this Court where guidelines and directions to be observed were issued in absence o legislation and implemented till legislatures pass appropriate legislations.”

3.5.17 Te S preme co rt has dire ted the union and the State Governments to takeimmediate steps or the o owing:

i. constit tion o the State Se rity commissions;ii. Noti ying the pro ed re or se e tion and minim m ten re o DGP;iii. Se rity o ten re or other Po i e o ers;iv. Separation o investigation n tion rom aw and order;v. constit tion o a Po i e Esta ishment board in ea h state;vi. Esta ishment o State and Distri t comp aints A thorities;vii. constit tion o a Nationa Se rity commission;

3.5.18 State Governments have started taking a tion as per the dire tions o the S premeco rt. A omparative a na ysis o the S preme co rt’s dire tions, the PADc orm ationsand the provisions o the Kera a Po i e Ordinan e21 and the bihar Po i e A t, 2007 (asexamp es o emerging state aws) are s mmarised in a e 3.4.

40 41


21 Te Kera a Po i e Ordinan e was prom gated on 12th Fe r ary, 2007



Te State Governmentsare dire ted to onstit tea State Se rity commission in every State to ens re that theState Government doesnot exer ise nwarrantedin en e or press re onthe State po i e and or

aying down the roadpo i y g ide ines so thatthe State po i e a waysa ts a ording to the

aws o the and andthe constit tion o the

o ntry. Tis wat hdogody sha e headedy the chie Minister

or Home Minister aschairman and have theDGP o the State asits ex-o io Se retary.Te other mem ers o the commission sha

e hosen in s h amanner that it is a e ton tion independent o

Government ontro . Forthis p rpose, the Statemay hoose any o themode s re ommended

y the Nationa H manRights commission, theRi eiro committee or theSora jee committee.

Te re ommendationso this commissionsha e inding on theState Government. Te

n tions o the StateSe rity commission

wo d in de ayingdown the road po i ies

and giving dire tionsor the per orman e o the preventive tasks andservi e oriented n tionso the po i e, eva ationo the per orman e o theState po i e and preparing

State Po i e board

Te State Governmentsha , within six monthso the oming into or e

o this A t, esta ish aState Po i e board toexer ise the n tionsassigned to it nderthe provisions o thischapter. (S.41)

F n tions o the StatePo i e board

Te State Po i e boardsha per orm the

o owing n tions:

(a) rame road po i y g ide ines orpromoting e ient,e e tive, responsiveand a o nta epo i ing, ina ordan e with the

aw;( ) prepare pane s o

po i e or the rank o Dire tor Generao Po i e againstpres ri ed riteria

with the provisions o Se tion 6 o chapterII;

( ) identi y per orman eindi ators to eva atethe n tioning o the Po i e Servi e.Tese indi atorssha , inter a ia,in de: operationae ien y, p isatis a tion, vi timsatis a tion vis-à-vispo i e investigationand response,a o nta i ity,optim m ti isationo reso r es, ando servan e o h manrights standards; and

Te Government may, y noti ation in the O iaGazette, onstit te a StateSe rity commission.

Te commission shahave the o owingn tions, name y: —

(a) to rame the roadpo i y g ide ines orthe n tioning o the po i e or e in theState;

( ) to iss e dire tions orthe per orman e o the preventive tasksand servi e, oriented

n tions o thepo i e;

(e) to eva ate, romtime to time, theper orman e o thepo i e in the State in

genera ;(d) to prepare and s mit

an year y report o its n tions to theGovernment; and

(e) to dis harge s hother n tions as may

e assigned to it y theGovernment.

Notwithstandingany g ide ines ordire tions iss ed y the commission, theGovernment may iss es h dire tions as itdeems ne essary on the

matter, i the sit ationso warrants, to meet any emergen y.

State Po i e board

Te Government sha , within six months o the oming into or e o

this A t, esta ish a StatePo i e board to exer isethe n tions assigned toit nder the provisions o this chapter. (S.23)

Te State Po i e boardsha onsist o :

(a) chie Se retary - chairperson

( ) Dire tor Genera o Po i e - mem er and

( ) Se retary in hargeo the HomeDepartment -mem er-se retary.(S.24)

Te State Po i e board

sha per orm theo owing n tions:

(a) rame road po i y g ide ines orpromoting e ient,e e tive, responsiveand a o nta epo i ing, ina ordan e with the

aw;

( ) identi y per orman eindi ators to eva atethe n tioning o the Po i e Servi e.Tese indi atorssha , inter a ia,in de: operationae ien y, p i

satis a tion, vi timsatis a tion vis-à-vispo i e investigationand response,a o nta i ity,optim m ti isationo reso r es, and

Te Dire tor Generao Po i e o the Statesha e se e ted y the State Government

rom amongst the threesenior-most o ers o the Department whohave een empane ed

or promotion to thatrank y the union P iServi e commission onthe asis o their ength o servi e, very good re ordand range o experien e

or heading the po i eor e. And, on e he haseen se e ted or the

jo , he sho d have aminim m ten re o twoyears irrespe tive o hisdate o s perann ation.Te DGP may, however,

e re ieved o hisresponsi i ities y theState Governmenta ting in ons tation

with the State Se rity commission onseq ent

pon any a tion takenagainst him nder the AIndia Servi es (Dis ip ineand Appea ) R es or

o owing his onvi tionin a o rt o aw in a

Se e tion and term o o e o the Dire torGenera o Po i e

(1) Te State Governmentsha appoint the Dire torGenera o Po i e romamongst three senior-most

o ers o the state Po i eServi e, empane ed orthe rank.

(2) Te empane mentor the rank o Dire tor

Genera o Po i e sha edone y the State Po i eboard reated nderse tion 41 o chapter V o this A t, onsidering,inter a ia, the o owing

riteria:(a) length o servi e

and tness o hea th, standards aspres ri ed y the StateGovernment;

( ) assessment o theper orman e appraisa

reports o the previo s15 years o servi e y assigning weightagesto di erent grading,name y, ‘O tstanding’,‘Very Good’, ‘Good’,&‘Satis a tory’ ;

( ) range o re evant

Te Dire tor Genera o Po i e sha e appointed

y the Government romamongst those o erso the state adre o theIndian Po i e Servi e

who have either a ready een promoted to s h

rank or are e igi e to epromoted to s h rank,

onsidering his overare ord o servi e andexperien e or eading thepo i e or e o the state.

Se e tion and term o o e o the Dire torGenera o Po i e

(1) Te Dire tor Generao Po i e sha eappointed rom a paneo o ers onsisting

o the o ers a ready working in the rank o the Dire tor Genera o Po i e, or the o ers whohave een o nd s ita e

or promotion in the rank o Dire tor Genera o Po i e a ter s reening y a committee nder ther es made nder the A -India Servi es A t, 1951(centra A t 61 o 1951).

(2) Te Dire tor Generao Po i e so appointedsha norma y have aten re o two years:

Provided that theDire tor Genera o

Po i e may e trans erredrom the post e ore theexpiry o his ten re y theGovernment onseq ent

pon:

2

42 43


1

able 3.4 : A Comparative Anal sis o Re orms Proposed

S.No Supreme Court PADC Formulation Kerala Police Bihar Police Act, 2007Directions Ordinance

(d) in a ordan e with theprovisions o chapter

XIII, review andeva ate organisationaper orman e o thePo i e Servi e in thestate as a who e as

we as distri t-wiseagainst (i) the Ann aP an, (ii) per orman eindi ators as identi edand aid down, and(iii) reso r es avai a e

with and onstraints o the po i e. (S.48)

o servan e o h manrights standards; and

( ) review and eva ateorganisationa

per orman e o thePo i e Servi e in thestate as a who e as

we as distri t-wiseagainst per orman eindi ators as identi edand aid down andreso r es avai a e

with and onstraintso the po i e. (S.25)

a report thereon or eingp a ed e ore the State

egis at re.




Po i e O ers onoperationa d ties in the

e d ike the Inspe tor

Genera o Po i e in-harge Zone, Dep ty Inspe tor Genera o Po i e in- harge Range,S perintendent o Po i ein- harge distri t andStation Ho se O erin harge o a Po i eStation sha a so havea pres ri ed minim mten re o two years n essit is o nd ne essary toremove them premat re y

o owing dis ip inary pro eedings against themor their onvi tion ina rimina o en e orin a ase o orr ptionor i the in m ent isotherwise in apa itated

rom dis harging hisresponsi i ities. Tis

wo d e s je tto promotion andretirement o the o er.

erm o o e o key po i e n tionaries

(1) An o er posted asa Station Ho se O erin a Po i e Station oras an o er in- hargeo a Po i e cir e orS -Division or as aS perintendent o Po i eo a Distri t sha havea term o a minim mo two years and amaxim m o three years:

Provided that any s ho er may e removed

rom his post e ore theexpiry o the minim mten re o two years

onseq ent pon:

(a) promotion to a higherpost; or

( ) onvi tion, or hargeshaving een ramed,

y a o rt o aw in arimina o en e; or

( ) p nishment o dismissa , remova ,

Te Government may ens re a norma ten re o two years rom the date

o ass ming harge o the post to the Dire torGenera o Po i e; and toa o ers ho ding hargeo Po i e Stations, Po i ecir es. Po i e S -divisions, Po i e Distri ts,Po i e Ranges and Po i eZones.

Te Government or theappointing a thority may, witho t prej di eto any other ega ordepartmenta a tion,trans er any po i e o er

e ore omp eting thenorma ten re o twoyears, on eing satis edprima a ie that it is

ne essary to do so on any o the o owing gro nds,name y:—

(a) i he is o ndin ompetent andine ient in thedis harge o d ties

rans ers & Postings

(i) Te trans ers andpostings o the Po i eo ers and personneo S pervisory rankssha e governed y the r es o Exe tiveb siness and s hother r es ramed y the Government romtime to time.

(ii) Te o ers shaordinari y have aten re o two years.

Provided that any s ho er may e trans erred

rom his post e ore theexpiry o the ten re o two years onseq ent

pon:




( ) in apa itation y

3

experien e, in dingexperien e o work in centra Po i eOrganisations, andtraining o rses

ndergone;(d) indi tment in any

rimina or dis ip inary pro eedings or on the

o nts o orr ptionor mora t rpit de; or

harges having eenramed y a o rt o aw in s h ases.

(e) d e weightage toaward o meda s orga antry, disting ishedand meritorio sservi e:

(3) Te Dire tor Generao Po i e so appointedsha have a minim mten re o two yearsirrespe tive o his norma

date o s perann ation :Provided that the Dire torGenera o Po i e may

e removed rom thepost e ore the expiry o his ten re y the StateGovernment thro gh a written order spe i yingreasons, onseq ent pon:(a) onvi tion y a o rt

o aw in a riminao en e or where

harges have eenramed y a o rt

in a ase invo vingorr ption or mora

t rpit de; or( ) p nishment o

dismissa , remova , oromp sory retirementrom servi e or o

red tion to a owerpost, awarded nderthe provisions o the A India Servi es(Dis ip ine and Appea ) R es 19- orany other re evant

(a) onvi tion y a o rto aw in a riminao en e or where

harges have eenramed y a o rt

in a ase invo vingorr ption or mora

t rpit de; or

( ) in apa itation y physi a or mentai ness or otherwise

e oming na e todis harge his n tionsas the Dire torGenera o Po i e; or

( ) promotion to a higherpost nder either theState or the centraGovernment, s je tto the o er’s onsentto s h a posting.

(d) any otheradministrative reasons

whi h may e in theinterest o e ientdis harge o d ties.(S.6)

44 45

rimina o en e or ina ase o orr ption,or i he is otherwisein apa itated romdis harging his d ties.

r e; or( ) s spension rom

servi e in a ordan e with the provisions o the said r es; or

(d) in apa itation y physi a or mentai ness or otherwise

e oming na e todis harge his n tionsas the Dire tor Generao Po i e; or

(e) promotion to a higherpost nder either theState or the centraGovernment, s je tto the o er’s onsentto s h a posting. (S.6)






dis harge oromp sory retirementrom servi e or o

red tion to a owerrank awarded nder

the re evant Dis ip ine& Appea R es; or

(d) s spension romservi e in a ordan e

with the provisions o the said R es; or

(e) in apa itation y physi a or mentai ness or otherwise

e oming na e todis harge his n tionsand d ties; or

( ) the need to p ava an y a sed y promotion, trans er,or retirement.

(2) In ex eptiona

ases, an o er may e removed rom hispost y the ompetenta thority e ore theexpiry o his ten re

or gross ine ien y and neg igen e or

where a prima a iease o a serio s nat re

is esta ished a ter apre iminary enq iry:

Provided that in a s hases, the ompetent

a thority sha reportin writing the matter

with a detai s to thenext higher a thority as

we as to the Dire torGenera o Po i e. It sha

e open to the aggrievedo er, a ter omp ying

with the order, to s mita representation againsthis premat re remova tothe Po i e Esta ishmentcommittee, whi h sha

onsider the same on

Te Government may,having regard to thepop ation in an areaor the ir mstan esprevai ing in s h area,

y order, separate theinvestigating po i e

rom the aw and orderpo i e in s h area asmay e spe i ed in theorder to ens re speedierinvestigation, etterexpertise and improved

rapport with peop e.

State Inte igen e andcrime InvestigationDepartments

(1) Tere sha e aState Inte igen eDepartment or

o e tion, o ation,ana ysis anddissemination o inte igen e, and acrime InvestigationDepartment orinvestigating inter-

state, inter-distri trimes and otherspe i ed o en es, ina ordan e with theprovisions o this A t.

(2) Te Government shaappoint a po i e o ero or a ove the rank o Inspe tor Generao Po i e to headea h o the a oresaiddepartments.

(3) Te crimeInvestigationDepartment shahave spe ia ised wings to dea withdi erent types o

rime req iring

o sed attention orspe ia expertise orinvestigation. Ea h o these wings sha eheaded y an o ernot e ow the rank o a S perintendent o

4 Te invest igat ing po i esha e separated romthe aw and order po i eto ens re speedierinvestigation, etterexpertise and improvedrapport with the peop e.It m st, however, eens red that there is

oordination etweenthe two wings. Teseparation, to start with,may e e e ted in towns/

r an areas whi h have apop ation o ten akhsor more, and grad a y extended to sma ertowns/ r an areas a so.

State Inte igen e andcrimina InvestigationDepartments

(1) Every state po i eorganisation sha havea State Inte igen eDepartment or

o e tion, o ation,ana ysis anddissemination o inte igen e, and acrimina InvestigationDepartment orinvestigating inter-state, inter-distri t

rimes and otherspe i ed o en es, ina ordan e with theprovisions o chapter

X o this A t.

(2) Te State Governmentsha appoint a po i eo er o or a ovethe rank o Dep ty Inspe tor Generao Po i e to headea h o the a oresaiddepartments.

(3) Te criminaInvestigationDepartment sha

have spe ia ised wings to dea withdi erent types o

rime req iringo sed attention or

spe ia expertise orinvestigation. Ea h o

46 47

so as to a e t then tioning o the

po i e or e;

( ) i he is a sed in a

rimina ase invo vingmora t rpit de;

( ) initiation o departmentapro eedings againsthim;

(d) i he exhi its apa pa e ias in thedis harge o d ties;

(e) mis se or a se o powers vested in him;

( ) in apa ity in thedis harge o o iad ties.”

physi a or mentai ness or otherwise

e oming na eto dis harge his

n tions and d ties;

or(d) the need to p

a va an y a sed y promotion, trans er,or retirement; or

(e) any otheradministrativereasons, whi h may

e in the interest o e ient dis harge o d ties. (S.30)

merit and re ommendd e o rse o a tion tothe ompetent a thority.

Exp anation: competent

a thority means ano er a thorised to ordertrans ers and postings

or the rank on erned.(S.13)






Po i e.

(4) Te Governmentsha appoint anappropriate n m er o o ers rom di erentranks to serve in thecrime InvestigationDepartment, andthe State Inte igen eDepartment, asdeemed appropriate with d e regard to thevo me and variety o tasks to e hand ed.(S.14)

creation o Spe ia crimeInvestigation units

Te Government may reate, in rime prone

areas, Spe ia crimeInvestigation units, ea hheaded y an o er not

e ow the state adre rank o S -Inspe tor o Po i e, with s h strength o o ers and sta as may

e deemed ne essary orinvestigating e onomiand heino s rimes.Te personne postedto this nit sha not ediverted to any other d ty,ex ept nder very spe ia

ir mstan es with the written permission o theDire tor Genera o Po i e.(S.36)

creation o Spe iaInvestigation ce s

At the headq arters o ea h Po i e Distri t,one or more Spe ia

Investigation ce s wi ereated, with s h strengtho o ers and sta , asthe State Governmentmay deem t to take pinvestigation o o en eso a more serio s nat reand other omp ex rimes,

in ding e onomirimes. Tese ce s wi

n tion nder the dire tontro and s pervision

o the Additiona

S perintendent o Po i e/Dep ty S perintendent o Po i e. (S.41)

crime InvestigationDepartment

Te crime InvestigationDepartment o the statesha take p investigationo s h rimes o inter-state, inter-distri t oro otherwise serio snat re, as noti ed y theGovernment rom timeto time, and as may espe i a y entr sted to it

y the Dire tor Genera o Po i e in a ordan e withthe pres ri ed pro ed resand norms. (S.43)

Spe ia ised units orInvestigation

Te crime InvestigationDepartment wi havespe ia ised nits orinvestigation o y er

rime, organisedrime, homi ide ases,

e onomi o en es, andany other ategory o o en es, as noti ed y the Government and whi h req ire spe ia isedinvestigative ski s. (S.44)

Tere sha e a Po i eEsta ishment board inea h State whi h shade ide a trans ers,postings, promotionsand other servi e re atedmatters o o ers o and

e ow the rank o Dep ty S perintendent o Po i e.Te Esta ishment board

Po i e Esta ishmentcommittees

(1) Te StateGovernment sha

onstit te a Po i eEsta ishmentcommittee (hereina terre erred to as the‘Esta ishment

Te State Governmentmay onstit te aPo i e Esta ishmentboard whi h sha ea departmenta ody

onsisting o the Dire torGenera o Po i e aschairman and o r othersenior Po i e O erso the Department o

rans er & Posting o S ordinate ranks

(1) Te Po i e O ersranging rom the rank o Inspe tor to consta e

wi e posted to aparti ar post withinthe j risdi tion o theDistri t S perintendent

5

48 49

these wings sha eheaded y an o ernot e ow the rank o a S perintendent o Po i e.

(4) Te State Inte igen eDepartment sha havespe ia ised wings,to dea with and

oordinate spe ia isedtasks s h as meas res

or o nter terrorism,o nter mi itan y and

VIP Se rity.

(5) Te StateGovernment shaappoint y r espres ri ed nder this

A t, an appropriaten m er o o ers

rom di erent ranksto serve in thecrimina Investigation

Department, andthe State Inte igen eDepartment, asdeemed appropriate

with d e regard to thevo me and variety o tasks to e hand ed.(S.16)






sha e a departmentaody omprising the

Dire tor Genera o Po i e and o r othersenior o ers o the

Department. TeState Governmentmay inter ere withde ision o the board inex eptiona ases on y a ter re ording its reasons

or doing so. Te boardsha a so e a thorizedto make appropriatere ommendations tothe State Governmentregarding the postingand trans ers o o erso and a ove the rank o S perintendento Po i e, and theGovernment is expe tedto give d e weight tothese re ommendations

and sha norma y a ept it. It sha a son tion as a or m o

appea or disposing o representations romo ers o the rank o S perintendent o Po i eand a ove regardingtheir promotion/trans er/dis ip inary pro eedingsor their eing s je tedto i ega or irreg arorders and genera y reviewing the n tioningo the po i e in the State.

committee’) with theDire tor Genera o Po i e as its chairpersonand o r other senior-most o ers within the

po i e organisation o thestate as mem ers.

(2) A ept and examineomp aints rom po i e

o ers a o t eings je ted to i ega orders.Te Esta ishmentcommittee shamake appropriatere ommendation tothe Dire tor Generao Po i e or ne essary a tion:

Provided that i thematter nder reportinvo ves any a thority o or a ove the rankso the mem ers o

the Esta ishmentcommittee, it shaorward s h report

to the State Po i ecommittee or rthera tion.

(3) Te Esta ishmentcommittee share ommend nameso s ita e o ers tothe State Government

or posting to a thepositions in the rankso Assistant/Dep ty S perintendents anda ove in the po i eorganisation o the state,ex ding the Dire torGenera o Po i e. Te

State Government shaordinari y a ept thesere ommendations, andi it disagrees with any s h re ommendation,it sha re ord reasons ordisagreement.

the rank o AdditionaDire tor Genera o Po i e as mem ers.

Te n tions o theboard sha e

(a) to de ide on atrans ers, postings,promotions andother servi e re atedmatters o po i eo ers o and e ow the rank o Inspe toro Po i e, s je t tothe provisions o there evant servi e aws asmay e app i a e toea h ategory o po i eo ers;

( ) to make appropriatere ommendations tothe State Governmentregarding the postingsand trans ers o o ers o and a ovethe rank o Dep ty S perintendent o Po i e;

o Po i e y the Distri tS perintendent o Po i e.Tey wi have a ten reo six years in a Distri t,eight years in a Range

and ten years in a Zone.rans ers rom one

distri t to another withinthe Range wi e done y a ommittee onsisting o the Range DIG and theDistri t S perintendentso Po i e o the Range.

rans ers rom oneRange to anotherRange wi e made y a ommittee onsistingo the Zona IG and athe Range DIGs o theZone. rans ers romone Zone to anotherZone wi e made y a

ommittee onsisting o the Additiona Dire tor

Genera o Po i e and athe Zona IGs.

(2) An o er posted asa Station Ho se O erin a Po i e Station oras an o er in- hargeo a Po i e cir e orS -Division or as aS perintendent o Po i eo a Distri t sha have aterm o minim m twoyears:

Provided that any s ho er may e trans erred

rom his post e orethe expiry o the ten reo two years or more

onseq ent pon:




(4) Te Esta ishmentcommittee sha a so

onsider and re ommendto the Dire tor Generao Po i e the names o

o ers o the rankso S -Inspe tor andInspe tor or postingto a Po i e Range oninitia appointment, or

or trans er rom onePo i e Range to another,

where s h trans er isonsidered expedient or

the Po i e Servi e.

(5) Inter-distri t trans ersand postings o non-gazetted ranks, withina Po i e Range, sha ede ided y the RangeDep ty Inspe torGenera , as ompetenta thority, on there ommendation o acommittee omprisinga the Distri tS perintendents o Po i eo the Range.

(6) Postings andtrans ers o non-gazettedpo i e o ers within aPo i e Distri t sha ede ided y the Distri tS perintendent o Po i e,as ompetent a thority,on the re ommendationo a Distri t- evecommittee in whi ha Additiona /Dep ty/

Assistant S perintendentso Po i e posted in theDistri t sha e mem ers.

(7) Whi e e e tingtrans ers and postings o po i e o ers o a ranks,the on erned ompetenta thority sha ens re thatevery o er is ordinari y a owed a minim m

50 51

( ) in apa itation y physi a or mentai ness or otherwise

e oming na e todis harge his n tions

and d ties; or(d) the need to p

a va an y a sed y promotion, trans er, orretirement; or

(e) any otheradministrative reasons

whi h may e in theinterest o e ientdis harge o d ties.(S.10)






Tere sha e a Po i ecomp aints A thority at the distri t eve to

ook into omp aintsagainst po i e o ers o and p to the rank o Dep ty S perintendento Po i e. Simi ar y, theresho d e another Po i ecomp aints A thority at the State eve to ook into omp aints againsto ers o the rank o

perintendent o Po i eand a ove. Te distri t

eve A thority may e headed y a retired

Distri t J dge whi e theState eve A thority may e headed y aretired J dge o theHigh co rt/S premeco rt. Te head o theState eve comp aints

A thority sha e hoseny the State Government

o t o a pane o namesproposed y the chie

J sti e; the head o the

distri t eve omp aints A thority may a so e

hosen o t o a paneo names proposed y the chie J sti e or a

J dge o the High co rtnominated y him.

Po i e A o nta i ity commission

Te State Governmentsha , within threemonths o the ominginto e e t o this A t,esta ish a State- evePo i e A o nta i ity commission (“the

commission”), onsistingo a chairperson,Mem ers and s h othersta as may e ne essary,to inq ire into p i

omp aints s pported y sworn statement againstthe po i e personne

or serio s mis ond tand per orm s h other

n tions as stip ated inthis chapter. (S.159)

Distri t A o nta i ity A thority

(1) Te State Governmentsha esta ish in ea hpo i e distri t or agro p o distri ts in a

po i e range, a Distri t A o nta i ity A thority to monitor departmentainq iries into ases o

omp aints o mis ond tagainst po i e personne ,as de ned in Se tion167(3). (S. 173)

Te Governmentsha esta ish a Po i ecomp aints A thority at the State eve to ook into omp aints o gravemis ond t against po i eo ers o and a ove therank o S perintendento Po i e as we as serio s

omp aints in dingdeath, grievo s h rt orrape or mo estation o

women in po i e stody against o ers o aranks.

(2) Te State A thority sha onsist o the

o owing mem ers,name y:—

(i) a retired j dge o aHigh co rt who sha

e the chairman o the A thority;

(ii) a serving o ero the rank o Prin ipa Se retary toGovernment; and

(iii) a serving o er o the rank o AdditionaDire tor Genera o Po i e.

Te Governmentsha esta ish Po i e

Distri t A o nta i ity A thority

(1) Te Government shaesta ish in ea h distri t“Distri t A o nta i ity

A thority” or s hn tions as mentioned in

Se tion 61.

(2) Te Distri t A o nta i ity A thority sha e presidedover y the Distri tMagistrate and sha haveS perintendent o Po i eas a mem er and senior-most Additiona Distri tMagistrate/ Additionaco e tor as Mem er-Se retary. (S.59)

F n tions o Distri t A o nta i ity A thority

(1) Te Distri t A o nta i ity A thority sha :

(a) monitor the stat s o departmenta inq iries or

a tion on the omp aintso “mis ond t” againsto ers e ow the rank o Assistant/ Dep ty S perintendent o Po i e,thro gh a q arter y reporto tained periodi a y

comp aints A thority atthe distri t eve to ook into omp aints againstpo i e o ers o and pto the rank o Dep ty

S perintendent o Po i e.Te Distri t A thority sha onsist o the

o owing mem ers,name y:—

(i) a retired Distri t J dge, who sha ethe chairman;

(ii) the Distri t co e tor;and

(iii) the Distri tS perintendent o Po i e:

Te re ommendationso the A thority or

A thorities, or any a tion, departmentaor rimina , againsta de inq ent po i eo er sha e indingin so ar as initiationo departmentapro eedings orregistration o a rimina

ase is on erned. S hre ommendation sha ,however, not prej di ethe app i ation o mind

y the enq iry o er orthe investigating o er

when he is ond tingthe departmenta enq iry or rimina investigation,as the ase may e.

rom the Distri tS perintendent o Po i e;

( ) iss e appropriateadvi e to the Distri tS perintendent o Po i e or expeditio s

omp etion o inq iry,i , in the A thority’sopinion, the inq iry isgetting nd y de ayed inany s h ase;

(2) Te A thority may a so, in respe to a omp aint o “mis ond t” against ano er e ow the rank o Assistant/ Dep ty S perintendent Po i e,

a or a report rom, andiss e appropriate advi e

or rther a tion or, i ne essary, a dire tion or

resh inq iry y another

o er, to the Distri tS perintendent o Po i e when a omp ainant,

eing dissatis ed y an inordinate de ay in the pro ess o departmenta inq iry into his omp aint o “mis ond t” or o t omeo the inq iry i theprin ip es o nat ra

j sti e have een vio atedin the ond t o thedis ip inary inq iry,

rings s h matter to itsnoti e;

Provided that theprovisions ontained ins -se tions (1) and

(2) a ove sha not eonstr ed to, in any manner, di te thedis ip inary, s pervisory and administrative

ontro o Distri tSuperintendent of Police. (S.60)

52 53

ten re o two years in aposting. I any o er is to

e trans erred e ore theexpiry o this minim mterm, the ompetenta thority m st re orddetai ed reasons or thetrans er.

(8) No a thority otherthan the a thority havingpower nder this A t toorder trans er sha iss eany trans er order. (S.57)

6






Te centra Governmentsha a so set p aNationa Se rity commission at theunion eve to prepare

a pane or eing p a ede ore the appropriate

Appointing A thority, orse e tion and p a emento chie s o the centraPo i e Organisations(cPOs), who sho d a so

e given a minim mten re o two years. Tecommission wo da so review rom timeto time meas res to

pgrade the e e tivenesso these or es, improvethe servi e onditionso its personne , ens rethat there is proper

oordination etweenthem and that the or es

are genera y ti izedor the p rposes they were raised and makere ommendations inthat eha . Te NationaSe rity commission

o d e headed y theunion Home Ministerand omprise heads o the cPOs and a o p eo se rity experts asmem ers with the unionHome Se retary as itsSe retary.

3.6 Re orms in Other Countries

Te commission has spe i a y st died the po i e systems as we as po i e re ormsndertaken in three o ntries viz. So th A ri a, united Kingdom and A stra ia (with

parti ar re eren e to New So th Wa es). Tese o ntries were se e ted e a se they havemany ommona ities with not on y o r po i e system t a so with o r po ity and governan estr t res. So th A ri a, or examp e, restr t red their entire governan e system, in dingthe po i e, a ter the end o apartheid and has th s trans ormed a repressive o onia or e into

54 55

Te Existing Po i e System

22 Po i e Re orm and So th A ri a’s ransition y Janine Ra h Paper presented at the So th A ri an Instit te or Internationa A airson eren e, 2000; retrieved rom http://www. svr.org.za/papers/papsaiia.htm

7

P i Order


a po i e servi e a o nta e to the peop e. O r present po i e system has many simi aritiesin its organisation and d ties with the po i e in the uK. Tat government arried o tmajor re orms in their governan e and po i e str t res in the ast two de ades and today the po i e in the uK is niversa y a know edged or its high standards o pro essiona ismand itizen riend iness. A stra ia is a edera o ntry with the po i e eing a s je t o the provin ia government as in o r o ntry. Tey have introd ed new me hanisms o po i e a o nta i ity whi h have een wide y a aimed. Some se essons, re evant too r o ntry, have een drawn rom a these re orms.

3.6.1 So th A ri a

3.6.1.1 In the ear y nineties, So th A ri a em arked pon an am itio s programme o po i ere orm ased on demo rati prin ip es. Ever sin e its esta ishment, the So th A ri an Po i e(SAP) had per ormed the o onia ro e o s j gating the o a pop ation. Ear ier, the po i e

or es in So th A ri a were known or their r ta ity, orr ption and ineptit de. Te po i e was str t red on mi itary ines. contro o rime was not thro gh investigation and re o rseto o rts t thro gh heavy handed a tion o the po i e. Investigations meant extra ting

on essions and stodia tort re was the norm. However, with the end o apartheid, theSo th A ri an Po i e em arked on an interna re orm initiative - a response oth to the

hanging po iti a environment signa ed y the re ease o Dr. Mande a, the i ting o thean on the i eration movements in 1990 and to the press re o hanging rime trends and

internationa s r tiny. Te SAP’s 1991 Strategi P an high ighted six areas o hange22 :

• Depo iti isation o the po i e or e;• in reased omm nity a o nta i ity;• more visi e po i ing;• esta ishment o improved and e e tive management pra ti es;• re orm o the po i e training system (in ding some ra ia integration); and• restr t ring o the po i e or e.

3.6.1.2 In 1991, an Om dsman was appointed to investigate a egations o po i emis ond t. besides, the re r itment o a k po i e personne was in reased, a ivi ianriot- ontro nit that was separate rom the SAP was ormed, a ode o po i e ond t was

evo ved and training a i ities were enhan ed. In 1992, the restr t ring o SAP into athree-tiered or e started - a nationa po i e, primari y responsi e or interna se rity andor serio s rime; a tonomo s regiona or es, responsi e or rime prevention and or

matters o genera aw and order; and m ni ipa po i e, responsi e or o a aw en or ementand or minor rimina matters. Po i e/ omm nity or ms were ormed in a most every po i e station.



3.6.1.3 Te Interim constit tion, 1993 aid the o ndation o a demo rati a y ontro edpo i e system in So th A ri a. Te prin ip es o str t ring the po i e were stip ated y theconstit tion o the Rep i o So th A ri a, 1996, whi h mandates that the nationa po i eservi e m st e str t red to n tion in the nationa , provin ia and, where appropriate,

o a spheres o government. It a so provides that a nationa egis ation m st esta ish thepowers and n tions o the po i e servi e and m st ena e the po i e servi e to dis hargeits responsi i ities e e tive y, taking into a o nt the req irements o the provin es. Tepro ess o trans orming a repressive po i e or e into a demo rati a y ontro ed po i eservi e orma y started with the ena tment o the So th A ri a Po i e Servi es A t, 1995.Te sa ient eat res o this A t are:

• he South A rican Police Service shall be structured at both National and Provincial levels and shall unction under the direction o the National as well as Provincial Governments.

• National and Provincial “Secretariats or Sa ety and Security”, which would advise the political executives in the provinces on police policy matters, would monitor the adherence o the police to new policy, promote democratic accountability and transparency, evaluate the unctioning o police etc.

• he Police Service shall liaise with the community through community orums and area and provincial Community Police Boards. (Sections 18-23).

• “Independent Complaints Directorate” to be established, which would receive and investigate public complaints o police misconduct. Te Directorate would be independent o the police and would report directly to the Minister o Sa ety and Security (Sections 50-54).

• Local governments were empowered to establish municipal or metropolitan police service.23

3.6.2 united Kingdom

3.6.2.1 A str t red po i e or e was rst esta ished y the Metropo itan Po i e A t,1829. Te Po i e A t, 1919 ro ght in some re orms in ding a g aranteed pension orthe po i e and prohi ition o trade nions among the po i e (however a Po i e Federation was set p). Te Po i e A t, 1946 provided or the ama gamation o sma er oro gh po i e

or es with o nty onsta aries in Eng and and Wa es. Fo owing this merger, there were133 po i e or es in the uK.

3.6.2.2 As a seq e to a o p e o high pro e s anda s invo ving oro gh po i e or es,the Roya commission on the Po i e was appointed in 1960 nder the hairmanship o Henry Wi ink to“to review the constitutional position o the police throughout Great Britain,

the arrangements or their control and administration and, in particular, to consider:- (1)the constitution and unctions o local police authorities; (2) the status and accountability o members o police orces, including chie o cers o police; (3) the relationship o the police with the public and the means o ensuring that complaints by the public against the police are e ectively dealt with; and (4) the broad principles which should govern the remuneration o the constable, having regard to the nature and extent o police duties and responsibilities and the need to attract and retain an adequate number o recruits with the proper quali cations”.24

Some o its re ommendations were25:

• No single national orce was to be ormed, but central government should exercise more powers over local orces

• Retention o small police orces o between 200 and 350 o cers “justi able only by special circumstances such as the distribution o the population and the geography o the area”

• Te optimum size or a police orce was more than 500 members, with the police area having a population o at least 250,000

• Tere was “a case” or single police orces or major conurbations

3.6.2.3 Fo owing the re ommendations o the Roya commission, the Po i e A t re eivedRoya assent in 1964. Te o d o nty and oro gh po i e a thorities were rep a ed with‘po i e a thorities’ omposed o two-thirds e e ted representatives and one-third magistrates.Tese new po i e a thorities had ar ess powers than the ear ier o nty and oro gha thorities. Te powers o the Home Se retary over the po i e were in reased. One o thee e ts o this A t was the red tion in the n m er o po i e or es.

3.6.2.4 Te Po i e and crimina Eviden e A t, 1984 (PAcE) instit ted a egis ativeramework or the powers o po i e o ers in Eng and and Wa es to om at rime, as

we as provide odes o pra ti e or the exer ise o those powers. Te aim o the PAcE A t was to esta ish a a an e etween the powers o the british po i e and the rights o mem ers o the p i . In 1996, an A t to onso idate the Po i e A t, 1964, Part IX o thePo i e and crimina Eviden e A t, 1984, chapter I o Part I o the Po i e and Magistrates’co rts A t, 1994 and ertain other ena tments re ating to the po i e, was ena ted as thePo i e A t, 1996. under this A t, Po i e A thorities were esta ished or ea h po i e or e.

Every po i e a thority had the responsi i ity o se ring the maintenan e o an e ientand e e tive po i e or e or its area (No Po i e A thority was onstit ted or the londonMetropo itan city nder this A t). under the A t, the Se retary o State was given theovera powers o s perintenden e and ontro o a po i e or es. It was a so stip ated thatthe hie onsta e o a po i e or e sha e appointed y the po i e a thority responsi e

or maintaining the For e, t s je t to the approva o the Se retary o State. Te A t

56 57


23 So th A ri a’s metropo itan m ni ipa ities o Ethekwini (D r an), cape own, Johannes rg, Ek rh eni (Greater East Rand) and shwane (Pretoria)have esta ished Metropo itan Po i e Departments. Te n tions o m ni ipa po i e in de tra po i ing, rime prevention and m ni ipa y- aw en or ement

24 So r e: http://www. op ris.a . k/ opa /re 10994.htm ; retrieved on 5-4-0725 So r e-Wikipedia



a so esta ished the Po i e comp aints A thority. Te Po i e A t, 1997 onstit ted theNationa crime Inte igen e Servi e A thority. Te Po i e Re orm A t, 2002 esta ishedthe Independent Po i e comp aints commission.

3.6.2.5 Te Greater london Metropo itan A thority A t amended the Po i e A t, 1996 andesta ished the Metropo itan Po i e A thority (MPA). Te Metropo itan Po i e A thority has twenty-three mem ers – twe ve rom the london Assem y appointed y the Mayor,

o r magistrates appointed y the Greater london Magistrates co rts Asso iation and sevenindependent mem ers, one appointed dire t y y the Home Se retary, with other mem ersappointed on the asis o open advertisements. Mem ers are appointed or a period o o ryears. Te chairperson o the MPA is hosen y the mem ers among themse ves.

3.6.2.6 One o the key strategies identi ed y the Metropo itan Po i e Servi e (MPS) ispromoting omm nity ohesion and integration. Te MPS has onstit ted a Diversity and citizen Fo s Dire torate to ons t omm nities so as to nderstand and get a eed

a k rom them. besides, the MPS has a so introd ed Sa er Neigh o rhood eams in ao a ities.26

3.6.2.7 Te Serio s Organised crimes and Po i e A t, 2006 esta ished the Serio s

Organised crime Agen y (SOcA). Te Agen y has een ormed y the ama gamation o the Nationa crime Sq ad (NcS), Nationa crimina Inte igen e Servi e (NcIS), that parto HM Reven e and c stoms (HMRc) whi h dea s with dr g tra king and asso iated

rimina nan e and a part o uK Immigration dea ing with organised immigrationrime(uKIS). Tis A t seeks to ena e SOcA sta and po i e to ompe peop e to o-

operate with investigations; stream ine po i e powers o arrest a nd sear h in the Po i e andcrimina Eviden e A t and extend the powers o comm nity S pport O ers and otherpo i e s pport sta .

3.6.3 A stra ia

3.6.3.1 Organised po i ing started in New So th Wa es (NSW) in the ear y nineteenthent ry. In 1862, the Po i e Reg ation A t ama gamated severa independent po i e nits in

one po i e or e. Te Po i e Reg ation A t, 1899 rep a ed the ear ier A t and reg ated thepo i e or e nti 1990 when the Po i e A t, 1990 ame into or e. As per the provisions o this A t, the commissioner is the head o the po i e or e and is appointed y the Governoron the advi e o the on erned Minister. Te A t stip ates that the Minister sha ons tthe Po i e Integrity commission as to the integrity o the per son eing re ommended. Tecommissioner ho ds o e or a period spe i ed in the the instr ment o appointment. Appointments to exe tive positions are made y the Governor on the re ommendation

o the commissioner, whi e appointments to non exe tive positions are made y the commissioner y way o trans er or promotion or otherwise. Te A t a so a thorisesthe commissoner to ond t ‘integrity testing programmes’ to test the integrity o any po i e o er.

3.6.3.2 Fo owing a de ate in the legis ative Assem y in 1994 on po i e per orman e,a Roya commission to ook into the New So th Wa es Po i e Servi e was onstit ted. Among other iss es, the commission was req ired to investigate the existen e or oth erwiseo systemi or entren hed orr ption in the po i e. At that time the anti- orr ptionme hanism was a mix o interna and externa oversight. Te commission on ded thata state o systemi or entren hed orr ption existed and the investigative ramework todea with ases o orr ption was serio s y inadeq ate. Te commission re ommendedthe setting p o a permanent Po i e Integrity commission. Tis ed to the passage o thePo i e Integrity commission A t, 1996. Te prin ipa o je tives o th e A t were:27

• to esta ish an independent, a o nta e ody whose prin ipa n tion is todete t, investigate and prevent po i e orr ption and other serio s po i emis ond t,

• to provide spe ia me hanisms or the dete tion, investigation and prevention

o serio s po i e mis ond t and other po i e mis ond t, • to prote t the p i interest y preventing and dea ing with po i e

mis ond t, and • to provide or the a diting and monitoring o parti ar aspe ts o the

operations and pro ed res o the NSW Po i e For e.

3.6.3.3 Te Po i e Integrity commission (PIc) is a one Mem er commission appointed y the Governor. Its primary n tion is to prevent po i e mis ond t. It has een a thorisedto investigate or oversee other agen ies to investigate po i e mis ond t. It has wide rangingpowers that in de en or ing attendan e o witnesses, iss ing sear h warrants, seiz re o do ments, se o istening devi es (s h as or tapping phones), and an even re ommendp nishment or ontempt. Te right to si en e whi h is genera y avai a e to the a sedis not avai a e in the pro eedings nder the Po i e Integrity commission A t. It has a so

een stip ated that the commission may omp ete its investigation despite any pro eedings

that may e e ore any o rt. F rthermore, an Inspe tor (a State S preme co rt J dge) isappointed y the Governor to a dit the operations o the Po i e Integrity commission orthe p rpose o monitoring omp ian e with the aw o the State. both the Po i e Integrity commission and the Inspe tor report dire t y to the legis at re and have a the powerso investigation and s mmoning witnesses. besides, the system xes responsi i ity at ea h

eve and sim taneo s y vests them with orresponding a thority.

58 59


26 So r e: We site o the Metropo itan Po i e Servi e, london; http://www.met.po i e. k/d /index.htm 27 Se tion 3, Po i e Integrity commission A t. 1996



3.6.3.4 Te Po i e Integrity commission is in addition to the Independent commissionagainst corr ption (IcAc) and an Om dsman. However, in order to prevent over ap o j risdi tion it has een provided that any omp aint made to IcAc or the Om dsmansho d e re erred y them to the PIc, i it is onne ted to po i e mis ond t. Te A stra ian mode is a good examp e o the intri ate we o a o nta i ity and he ksand a an es req ired in dea ing with po i e agen ies in a demo rati so iety seeking toharmonize imperatives o p i order and e e tive rime investigation with h man rightsand integrity.

3.7 In India, re ommendations pertaining to po i e re orms, as mentioned ear ier, haveeen made y a n m er o commissions/committees. However, the o ow- p on these

re ommendations has een somewhat ad ho and most y minima . Tere ore, in thea sen e o a omprehensive approa h to po i e re orms, the po i e system in most o the states ontin es to e eset with many short omings and the trans ormation o theFor e as envisaged y vario s commissions into an e e tive instr ment o p i servi egoverned y the r e o aw and sa eg arding pea e and order has not rea y taken p a e.Te commission in this Report has tried to redress this sit ation y taking a omprehensiveview o the reports o ear ier commissions, as we as th e orm ations proposed y PADc,the dire tions o the S preme co rt and the est pra ti es in vario s o ntries.

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P i Order

4CORE PRINCIPLES OF POLICE REFORMS

Tat there is need or po i e re orms in keeping with the req irements o a modern,demo rati State is se -evident. A are examination o the iterat re on the s je t andthe s ggestions o vario s expert odies show, however, that there is signi ant divergen e o opinion on severa iss es o re orm. A so, severa re ommendations have een made in thepast in iso ation, witho t regard to the inkages with other a ets o po i e administrationand the j di iary. Te commission there ore ee s that it wo d e se to o t ine theoverar hing prin ip es o re orm in the po i e and rimina j sti e system. On e s hprin ip es nd a eptan e, a re orm pa kage an e evo ved in an integrated manner.Po i e onstit te the key e ement o the power o the State to en or e omp ian e withthe aws o the and and a vita ontin ing instit tion to sa eg ard itizens and p iproperty. Tere ore, po i e re orms m st ens re minima dis o ation. Re orm m st meet

the growing ha enges o r anization and emerging threats to onstit tiona order, even asa h mane, e e tive, itizen- riend y po i e is instit tiona ised. On the asis o the ana ysisand re ommendations o vario s expert odies and inp ts rom itizens, ivi so iety gro psand pro essiona s, the commission is o the view that the o owing eight ore prin ip essho d orm the edro k o po i e and rimina j sti e re orms:

4.1 Responsibilit o the Elected Government

4.1.1 In a demo ra y, the government is e e ted to serve the peop e. Peop e trans er a parto the right over their ives to government in order to serve the ommon goa o ens ringp i order and prote ting the i erties o a itizens. It is t nat ra that s h an e e tedgovernment m st have a thority. In o r system, government is a o nta e to the egis at reand to the peop e. Government m st exer ise rea a thority on e e e ted to o e. Teimperatives o impartia investigation and air tria demand a tonomo s n tioning o theinvestigative and prose tion wings. b t the overa a o nta i ity to the e e ted egis at reand road dire tion and s pervision o the d y onstit ted g overnment annot e di ted. A so, severa other n tions o po i e in ding prote tion o p i property, ght againstterrorism, riot ontro and maintenan e o aw and order and inte igen e gathering toanti ipate threats need to e monitored and s pervised y the po iti a exe tive. Any



re orm proposa m st re ognise this req irement o demo rati a o nta i ity and theresponsi i ity o the po iti a exe tive and e e ted egis at res. A po i e ree rom po iti adire tion an easi y degenerate into an na o nta e or e with the potentia to nderminethe o ndations o demo ra y. Te oer ive power o the po i e an easi y exting ish i erty

n ess it is tempered y responsi e po iti a dire tion. A oro ar y or we ome onseq en eo responsi e po iti a dire tion wi e the m h needed depo iti isation o the po i e.

4.2 Authorit , Autonom and Accountabilit

4.2.1 At the same time, the vario s wings o po i e sho d have the a thority and reso r esto their responsi i ities. Ea h s h wing sho d have n tiona and pro essionaa tonomy ommens rate with its req irements. For instan e, inte igen e wings need tohave the exi i ity to re r it personne at short noti e thro gh s mmary pro ed res andthe a thority to pro re sensitive inte igen e-gathering te hno ogy witho t having to gothro gh norma pro rement pro esses. ra po i e need the reso r es to dea with thein reasing y omp ex r an transport ha enges, the q asi-j di ia a thority to impose

nes on o enders when a ts are in ontroverti e or n ontested and exi e ndingme hanisms witho t tort o s nan ia earan es. Po i e or riot ontro need a ear and

nam ig o s ramework in whi h to operate, ready rein or ements when ne essary and

the on den e that ona de se o or e wi not ead to vi timisation. For ea h arm o the po i e, these req irements o a thority and a tonomy need to e spe t o t ear y and

odi ed. However, s h a tonomy and a thority sho d e a ompanied y ear y de nedorma systems o a o nta i ity. O rs is an evo ving demo ra y and o r instit tions need

to e onstant y re ashioned to s it hanging needs. In o r system o ompensatory errors,o ten the ai ings and distortions o one instit tion are ompensated y the distortions o another instit tion. I po i emen resort to third degree methods, po iti a oversight o po i e

n tioning an nearth s h tort re and prote t the itizen. Tere ore any a tonomy m st e a ompanied y strong and veri a e systems o a o nta i ity so that th e itizenis prote ted rom a se o a thority. In a demo ra y str gg ing to re orm its o oniainstit tions, there is nothing more rightening and en ee ing to a itizen than to e at there eiving end o po i e ex esses. Any re orm wi yie d dividends on y when the e a y o the system is enhan ed whi e ens ring that the propensity or a se o a thority is r ed. As Paster Niemo er said“Man’s capacity or justice makes democracy possible; man’s inclinationto injustice makes democracy necessary!”

4.2.2 A tho gh no one disp tes that the po i e has to e a o nta e, there are di eringviews as to whom the po i e sho d e a o nta e to. It has o ten een arg ed that thepo i e are answera e and a o nta e to too many a thorities and instit tions. Tey are

answera e to their higher- ps in the organisation, they are answera e to the j di iary andthe exe tive magistra y, to the po iti a exe tive and to the p i . Tere is another view that the existing a o nta i ity me hanisms espe ia y o tside the po i e hierar hy are in

a t too weak to extra t any kind o a o nta i ity.

4.2.3 Tere is a s hoo o tho ght that the po i e sho d e a o nta e to the aw andaw a one. Tis, it is arg ed, wo d give the po i e the req ired a tonomy to n tion in aair and impartia manner and wo d tota y ins ate them rom po iti a and rea rati

inter eren e. Tis arg ment is ased on lord Denning’s histori a j dgement28 (1968):

“I have no hesitation in holding that, like every constable in the land, he [the Police Commissioner] should be, and is, independent o the executive. He is not subject to the orders o the Secretary o State, save that under the Police Act, 1964, the Secretary o State can call upon him to give a report, or to retire in the interests o e ciency.

I hold it to be the duty o the Commissioner o Police o the Metropolis, as it is o every chie constable, to en orce the law o the land. He must take steps so to post his men that crimes may be detected; and that honest citizens may go about their a airs in peace.He must decide whether or not suspected persons are to be prosecuted; and, i need be,

bring the prosecution or see that it is brought.But in all these things he is not the servant o anyone, save the law itsel . No Minister o the Crown can tell him that he must, or must not, keep observation on this place or that; or that he must, or must not, prosecute this man or that one. Nor can any police authority tell him so. Te responsibility or law en orcement lies on him. He is answerable to the law and the law alone.”

4.2.4 Te Patten commission, 29 however, had j st the opposite view:

“Lord Scarman noted that the constitutional control o accountability meant that, while the police should exercise independent judgment, they were also the servants o the community and could not e ectively en orce their judgment without the support o that community. We strongly agree with this, and we disagree with Lord Denning’s view that the police o cer “is not a servant o anyone, save o the law itsel ”; accountability to the law is vital but accountability is a much wider concept than that. It raises questions both o structure – the institutional relationship between the police and government both at central and local levels – and the style and purpose o policing.It involves partnerships – “constructive and inclusive partnerships with the community at all levels”, in the words o the Agreement. And it involves transparency – the police being open and in ormative about their work and amenable to scrutiny”

62 63

P i Order core Prin ip es o Po i e Re orms

28 Extra ts rom lord Denning’s j dgement in R V Metropo itan Po i e commissioner; ex parte b a k rn [1968] 2 Qb 118; Ann a Report o cbI, 2004; retrieved rom http:// i.ni .in/Ann a Report/cbI_Ann a _Report_2004_1.pd ; retrieved on 26-3-07.29 Te Independent commission or Po i ing in Northern Ire and, 1998-99.



4.2.5 Tis commission is o the onsidered view that a o nta i ity to aw means a egian eto the aw o the and and this is nex eptiona e. Te mode and manner o a o nta i ity o p i servants, in ding po i e personne has, however, to e aid down y aw itse

or the o vio s reason that witho t the ena ing ramework, a o nta i ity wo d erendered meaning ess. In o r sovereign demo rati rep i the itizen is the o s o ap i servi e and it is there ore imperative that a government n tionaries have itizen

entered a o nta i ity aid down in s ient detai in the aws o the and. Tis is a themore ne essary in a s enario where a p i servi es are est exe ted in a parti ipativemode. Te commission, there ore, ee s that apart rom eing a o nta e to aw, p iservants are a so a o nta e to the p i and p i instit tions esta ished y aw.

4.3 Disaggregation and Deconcentration

4.3.1 One o the major pro ems impeding po i e re orms stems rom the traditionaapproa h o ing a variety o disparate n tions in a sing e po i e or e and on entratinga a thority at one eve . A sing e, mono ithi or e now dis harges severa n tions:maintaining aw and order, riot ontro , rime investigation, prote tion o State assets, VIPprote tion, tra ontro , eremonia and g ard d ties, servi e o s mmons and prod tiono witnesses in o rts, anti-terrorist and anti-extremist operations, inte igen e gathering,

bandobast 30 d ring e e tions, rowd ontro and severa other mis e aneo s d ties. O ten,even re prote tion and res e and re ie are treated as po i e n tions. In addition, givings pport to state n tionaries in remova o en roa hments, demo ition o na thorisedstr t res and s h other reg atory a tivities are a so treated as po i e responsi i ities. Aggregation o a these n tions in a sing e po i e or e is ear y dys n tiona or o rreasons: First, the ore n tions are o ten neg e ted when the same agen y is entr sted withsevera n tions. Se ond, a o nta i ity is great y di ted when d ties annot e ear y and nam ig o s y stated and per orman e annot e meas red and monitored. Tird,the ski s and reso r es req ired or ea h n tion are niq e and a om ination o o ten

nre ated n tions ndermines oth mora e and pro essiona ompeten e. Fo rth, ea hn tion req ires a di erent system o ontro and eve o a o nta i ity. When a sing e

agen y is entr sted with a n tions, the nat ra propensity is to ontro a n tions y virt e o the need to ontro one n tion.

4.3.2 As a ready stated, mere me hani a and ni orm app i ation o aw in a sit ations wido irrepara e damage to p i interest. Tere ore, the e e ted government and exe tivemagistra y sho d road y g ide the se o or e in riot sit ations. crime investigation isa q asi-j di ia n tion o the po i e, and painstaking pro essiona methods are invo ved

in interrogation, gathering o eviden e and orensi examination. Tere is no ase hereor s pervision y the po iti a exe tive or exe tive magistra y. However, as ivi ian

s pervision o po i e is inevita e in order to g ide riot ontro and dep oyment o or es,s h s pervision wi inevita y transgress into rime investigation when the same po i e

or e dis harges oth n tions. by horizonta sion o disparate n tions, the exe tiveontro ne essary or aw and order and other servi e n tions a so spi s over to the domain

o rime investigation.

4.3.3 raditiona y the po i e or es have een str t red on the pattern o the armed or es.Insignia simi ar to those o the armed or es, hierar h i a ontro extending rom the SHOto DGP, a t re o demanded o edien e, and a str t re o nits and ormations havemade po i e a high y entra ised or e. Inevita y, the Inspe tor Genera o Po i e in theear ier de ades and now the hie o po i e designated as the Dire tor Genera and Inspe torGenera (DG & IGP) has e ome the o s o a thority o a vast po i e or e dis hargingdiverse n tions. M h there ore hinges on the persona ity o the DG & IGP, the methodo appointment, ten re, ompeten e, integrity and a i ity to ommand oya ty o the or e. Whi e s h a o s o a thority has ertain advantages ike potentia or oordination, it isarg a y dys n tiona e a se o over- entra isation.

4.3.4 At the same time, disaggregation and de on entration annot e p shed to theextreme. Tere is need to strike a a an e etween a thority and a o nta i ity, and etweena tonomy and oordination. Ex essive ragmentation o the po i e or e is as detrimentato p i good as over- on entration. Te commission is o the view that three road

ategories o n tions an e ear y identi ed and the po i e or e an e str t red onthose ines, whi e setting p me hanisms or e e tive oordination to prevent water-tight

ompartmenta isation; no agen y o state an e an is and, and ea h m st s pport anddraw strength rom others. Te three ategories are:

Crime investigation – this n tion wo d, in parti ar dea with serio s o en es.crime investigation an e treated as a q asi-j di ia n t ion and an e ite agen y an e

reated to dis harge this r ia n tion.

Law and order – maintenan e o aw and order is another important n tion

o po i e. Tis n tion in des inte igen e gathering, preventive meas res and riotontro . Per orman e o this n tion req ires ose intera tion with other governmentagen ies, espe ia y the Exe tive Magistrates. Tis n tion sho d e with the ‘ aw andorder’ po i e. besides, a rimes not investigated y the crime Investigation Agen y

o d a so e hand ed y this po i e Agen y. Tese n tions and other servi e n tionsan e om ined nder the ontro o the hie o law and Order po i e in the state. Other

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30 bandobast is a Hindi/urd word, meaning arrangements



periphera servi es ike prote tion o State assets, eremonia d ties, servi e o s mmons et . an e progressive y o tso r ed.

Local policing - Many n tions ike en or ement o ivi aws, tra ontro ,investigation o petty rime, patro ing and management o minor aw and orderpro ems an e e e tive y s pervised y o a governments. Apart romthese o a n tions, other n tions per ormed y aw and order po i e an eprogressive y trans erred to e e ted o a governments over a de nite period o time,

t with adeq ate instit tiona he ks and sa eg ards to prevent a se o o e.

4.4 Independence o Crime Investigation

4.4.1 Te per eption o an average itizen is that the po i e is essentia y a rime preventionand investigation agen y. unearthing eviden e in a rime, identi ying the prit, esta ishingthe means, motive and opport nity, presenting eviden e in a o rt o aw thro gh theprose tion, and se ring a onvi tion are a riti a n tions o the po i e. Many itizens,

ed on a stap e o dete tive tion, rime thri ers and te evision seria s portraying po i en tioning, regard painstaking rime investigation and po i e assistan e in prose tion as

the key n tions o the po i e. However, in rea i e this ore n tion, o ten, is re egated

to the a kgro nd. Ex essive re ian e on ‘ rawn’ in other areas has nted the pro essionaski s req ired or e e tive investigation. Te se o third degree methods to extra t aon ession rom an a sed or o tain ooperation o the prit to re over sto en goods

or nearth other eviden e sometimes rep a e ana yti a investigation. Fai re to ink athe threads in a rimina ase and prod e in hing eviden e o ten eads to over-re ian eon ora testimony in o rt. In o r o ntry, where perj ry does not have serio s ega orso ia onseq en es, witnesses o ten t rn hosti e e a se o ind ement or ea r. Tis again

eads to ower onvi tion rates. Te net res t o de ien ies in rime investigation is the widespread e ie that rime pays and the perpetrator an es ape the t hes o aw. It is

s a y the poor and i iterate who are vi tims o third degree methods and are onvi tedon the asis o ora eviden e. Te we - onne ted and etter-o se tions o so iety o ten

nd it easy to es ape the onseq en es o their rimes as they are a e to s vert rimeinvestigation and the d e pro ess o aw.

4.4.2 Over the years, the ai re o the rimina j sti e system has ed to a pervasiveatmosphere o aw essness. Tere has een a pro i eration o rimina gro ps providingro gh and ready j sti e thro gh r ta means. Tere is a growing ‘market demand’ or s hgangs to ‘sett e’ and disp tes, ‘en or e’ ontra ts, or o e t ‘d es’. Tere are instan es o

nan ia instit tions hiring m s emen to re over d es rom orrowers. Over time, these

‘ rime ords’ who make a pro ta e areer o t o dispensing ro gh and ready ‘j sti e’ haveo nd po iti s attra tive as a se ond areer. Tis is e a se experien e has ta ght them

that on e a person dons po iti a ro es, he an ‘ ontro ’ the po i e and in en e rimeinvestigation to his advantage. What is worse, po i e an at times even e prote tors anda ies o rime syndi ates. Tis pro ess has ed to the rimina isation o po iti s. It is in this

a kgro nd that many expert odies and j rists have een rging that rime investigationsho d e separated rom other po i e n tions and needed a tonomy, pro essiona ski sand improved in rastr t re provided to dea with the ha enges o rising rime.

4.4.3 When a po i e or e is e ieved to e nresponsive to ommon itizens and p iantto po iti ians, the inno ent vi tims o rime are or ed to seek the he p o po iti ians andmidd emen even or the registration o an FIR, or p rs ing an investigation. Te a k o pro essiona ism in an over rdened, nder- nded and poor y-ski ed po i e or e, o p ed with nd e inter eren e has ed to ower eve o tr st in aw en or ement. Many honest andhard-working po i emen and o ers do their est to serve so iety, t they are power essto reverse the de ine in standards o rime investigation. As a res t, en or ement o r eo aw and prose ting and p nishing the g i ty have e ome major ha enges in o rgovernan e.

4.4.4 Given these ir mstan es, the commission is o the view that a separate, e ite rimeinvestigation agen y o po i e sho d e reated in ea h state and it m st e omp ete y ins ated rom nd e po iti a and partisan in en es. Whi e separating rime investigation

rom other n tions, are m st e taken to ens re that the rime investigation agen y is notover rdened with petty o en es, na e to apportion s ient time or th e investigationo serio s rimes. It is there ore advisa e to entr st on y spe i ed ases to the separate y

reated e ite rime investigation agen y. S h an investigative agen y m st e we -trainedand s pported y adeq ate in rastr t re in ding a network o orensi a oratories.Tis wo d in e e t mean that the existing set- p or spe ia investigation o rimes( rime ran h/cID/cOD et ) wo d e rep a ed y an a tonomo s rime investigationagen y with stat tory j risdi tion.

4.4.5 Te rime investigation agen y wi e impervio s to po iti a a nd partisan in en eson y when the re r itment, p a ements and s pervision are pro essiona y managed in a

transparent and e ient manner. Yet, the po iti a exe tive m st have the opport nity togive road g ide ines.

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4.5 Sel -esteem o Policemen

4.5.1 Near y 87% o a po i e personne are onsta es31. Te onsta e is the owest eveat whi h re r itment takes p a e. Te ed ationa req irement or se e tion o a onsta eis a s hoo eaving erti ate. A onsta e an genera y expe t on y one promotion in a

i e time and norma y retires as a head onsta e. An average onsta e has itt e hope o e oming a Station Ho se O er (SHO). Te stat tor y powers o investigation are with

the Station Ho se O er who is s a y a s -inspe tor in r ra po i e stations, and aninspe tor in r an po i e stations. As a res t, onsta es h ave e ome ‘ma hines’ arryingo t the dire tions o their s periors with itt e app i ation o mind or initiative. constantpo iti a inter eren e in trans ers, p a ements and rime investigation, ong and di t working ho rs, the menia d ties they are o ten or ed to per orm as order ies to senioro ers, and the emphasis on rawn rather than rain in most sit ations tend to r ta iseand deh manise po i emen. A onsta e devoid o dignity, a king opport nities or verti amo i ity, onstant y pi oried y s periors and po iti ians, o ten derided y the p i andha it ated to easy re o rse to vio en e and or e annot genera y e expe ted to s stainhis/her se -esteem or a q ire the pro essiona ski s to serve the itizens.

4.5.2 Apart rom the onsta ary, the po i e or e is top heavy. Tere is over- rowding at

the top with no rea strength at midd e-management eve s. Re r itment in most states is atsevera eve s – onsta ary, s -inspe tor, dep ty s perintendent o po i e, and the IndianPo i e Servi e. Severa tiers o re r itment have diminished opport nities or promotionand the eve o re r itment y the a ident o an examination o ten determines areerprogression, not ompeten e, pro essiona ism, integrity and ommitment. latera entry to the po i e is not easi e, as rigoro s training, experien e, expertise and know edge o peers and o eag es are vita to the po i e servi e. Sin e this is a sovereign n tion, noagen y or experien e o tside government prepares o tsiders or po i e work. At the sametime, in entives or per orman e within the po i e agen ies are ee e.

4.5.3 Te commission is o the view that po i e re r itment needs to e restr t redsigni ant y in order to enhan e motivation and mora e, pro essiona ism and ompeten eo the personne . Tis wo d req ire empowerment o the tting edge n tionaries and

ommens rate pgradation o their a i re and ski s.

4.6 Pro essionalisation, E pertise and In rastructure

4.6.1 E e tive rime investigation, ompetent aw and order management and seinte igen e gathering demand high standards o pro essiona ism and adeq ate in rastr t raand training s pport. Spe ia ised training a i ities are vita to hone ski s and onstant y

pgrade them. Forensi a oratories need to e esta ished or every distri t or a gro po distri ts – at east one per 3 to 4 mi ion pop ation. On y s h we -endowed orensi

a i ities wi he p po i e agen ies to meet the growing ha enge o om ating rime ina rapid y r anising so iety. Strong omm ni ations s pport, state-o -the-art weapons,non- etha , modern too s or riot ontro and a high degree o mo i ity are prereq isites

or modern po i ing. Adeq ate reso r es, te hno ogy and manpower need to e dep oyedon a ontin ing asis to meet these req irements. like nationa de en e, interna se rity and p i order annot e ompromised nder any ir mstan es, i the integrity o theState and onstit tiona va es are to e prote ted.

4.7 Attendant Criminal Law Re orm

4.7.1 Po i e re orms y themse ves, tho gh ne essary, are not s ient. Tere is a growingper eption in the minds o peop e that getting a rimina p nished is a di t proposition.Te ow onvi tion rates and the de ays in disposa o ases rea rm this e ie . It isthere ore ne essary that other parts o the rimina j sti e system are a so made e e tiveand e ient.

4.7.2 Te n m er o o rts is India is inadeq ate to meet the req irement o j sti e. It is

we -known that o r j dge-pop ation ratio is o the order o 11 to 1 mi ion32

, whereas inmany deve oped demo ra ies it is o the order o 100 to 1 mi ion, or near y ten times thato the strength o the Indian j di iary. Te res tant ina essi i ity, o p ed with ar hai and

omp ex pro ed res has made o r j sti e system s ow, ina essi e and in rea ity na orda e.Te penden y o over 25 mi ion ases is a testimony to this. It is there ore not s rprisingthat peop e, parti ar y the poor and v nera e, have itt e aith in the system’s apa ity to de iver j sti e or en or e their rights. conseq ent y, they hesitate to approa h o rtsand are o ten or ed to a ept inj sti e and s er si ent y. Some even resort to extra- egamethods to o tain ro gh and ready j sti e thro gh m s emen and organised gangs. Tisis eading to a t re o aw essness in so iety and is a serio s threat to p i order in the

roader sense o the term. Tere ore, enhan ing the strength o j dges and reation o o ao rts to sett e disp tes and p nish rimes swi t y are vita .

4.7.3 In addition, there is need to amend pro ed ra aspe ts o aw in keeping with the times.On e the po i e a t independent y t with a o nta i ity, there wo d e need to tr stthem and amend the provisions o aw to restore this tr st, s h as y making statementsre orded y the po i e, admissi e. Given the propensity o witnesses to perj re themse vesin o r o rts, we need to strengthen the aw against perj ry, and make tr th eviden ethe norm in o rts. Te ha enge posed y terrorists and armed gro ps to nationa nity and integrity m st e o ntered y appropriate ega provisions. Te ro e o the union

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32 Te san tioned strength o s ordinate j dges was 14582 and the working strength was 11723 on 30th Apri , 2006. Extra ted rom the spee h o Hon’ e J sti e Y K Sa harwa , chie J sti e o India, 25th J y 2006.

31 So r e: Te Padmana haiah committee Report, 2000.



government in respe t o inter-state rimes, organised rime, terrorism et a so needs to erede ned to e a e to prote t nationa interests.

4.8 Police to be a Service

4.8.1 Te pream e o the united Nations basi Prin ip es on the se o For e and Firearmsre ognises that “the work o aw en or ement o ia s is a so ia servi e”. Te E ropean

ode o Po i e Ethi s states that the po i e sha e organised with a view to earning p irespe t. D ring the o onia era the po i e was primari y sed as a ‘ or e’ in the hands o the government o the day to s ppress any prisings y the o a s. Even today the po i eis not tota y ree rom this stigma. In a demo ra y, the po i e has to n tion as any otherp i servi e, whi h renders servi es to the omm nity and not as ‘ or e’. In this onne tionit has een stated:

“Every member o the orce must remember his (sic) duty is to protect and help members o the public, no less than to app rehend the guilty persons. Consequently, whilst prompt to prevent crime and arrest criminals, he must look upon himsel as the servant and guardian o the general public and treat all law abiding citizens, irrespective o their position, with un ailing patience, courtesy and good humour”. 33

4.8.2 Prime Minister Dr. Manmohan Singh has o served:

“ oday, police orces have to serve the interests o the people, not rulers. In a democratic ramework as we are in today, there is a need to have in the police orces a managerial philosophy, a value system and an ethos in tune with the times. I had emphasized the need to ensure that police orces at all levels change rom a eudal orce to a democratic service. Te spirit o public service, o respect or the rights o individuals, o being just and humane in one’s actions must permeate the entire police orce”. 34

4.8.3 Te Po i e A t Dra ting committee has a so s ggested that “Tere sha e a Po i eServi e or ea h State”. Te commission is a so o the view that this trans ormation isan rgent ne essity. b t this wo d req ire oth ega and str t ra hanges that wo d

ring peop e oser to the po i e, invo ve itizens in po i ing and give itizens some say inpo i ing. besides, a tota hange in the mindset o the po i e as we as the itizenry wo d

e req ired. Te reorientation o a po i e wo d e essentia .

4.8.4 Te on ept o po i e as a ‘Servi e’ instead o a ‘For e’ en ompasses the ideas o e e tive a o nta i ity, itizen entri ity and respe t or h man rights and the dignity o the individ a , Tese va es sho d permeate a aspe ts o po i ing. Arg a y the inordinateemphasis on po i e as the oer ive apparat s o the State and its ndenia e ro e in rime

investigation ontri tes to an impression that the herished rights o individ a s aresomehow s sidiary to the assi a on ept o po i e d ties. It m st e re ognised th at thepower o the State to se or e is not an a so te power. It is tempered with the F ndamentaRights in orporated in Part III o the constit tion. A a an e needs to e str k etweenthe imperative to se or e, to pho d the aw and respe t the h man rights o a on erned– the vi tim, the a sed and the so iety at arge. Tis is the essen e o the r e o aw.Te re ommendations o the commission have een ormed y this perspe tive o po i eas a servi e and the invio a i ity o h man rights in a ivi ised, modern demo ra y.

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33 Patten commission Report, q oting the very rst Metropo itan commissioners, char es Rowan and Ri hard Mayne.34 Prime Minister’s address to the Ann a con eren e o DGPs / IGPs o States and u s; O to er 6, 2005; New De hi; retrieved romhttp://pmindia.ni .in/spee h/ ontent.asp?id=207



5 POLICE REFORMS

5.1 Organisational Structure o the Police o the Future

5.1.1 based on the ore prin ip es o t ined in the pre eding hapter, the commission,a ter exha stive ons tations and dis ssions has evo ved a on ept a ramework or thepo i e o the t re. Te t re po i e organisation and n tioning sho d address theemerging ha enges in a ompetent, honest, h mane and air manner. Pie e-mea attemptsm st give way to a omprehensive and ho isti approa h. Interest o the State m st e

a an ed y prote tion and promotion o onstit tiona va es, respe t or h man rights,and re ognition o vi tim’s rights. Te po i e o the t re sho d o s m h more on

rime investigation and prose tion. centra ised, hierar hi a ontro sho d yie d p a e ton tiona spe ia isation, o a a o nta i ity and a itizen- entri approa h. Hierar hi a

re ationships and a t re o nq estioned o edien e sho d e a an ed y horizontainkages and o s on tasks and teams. Given the awesome power o the po i e and its

a thority to se or e when needed, an intri ate we o instit tions needs to e reated toen or e a o nta i ity and prevent a se o a thority or o str tion o j sti e.

5.1.2 Te re orms envisaged and the rationa e or the hanges proposed are dis ssed indetai in the o owing pages. However, a ird’s eye view o the ho isti restr t ring o th epo i e as envisioned y the commission wi ring arity and a i itate etter nderstanding. A ording y, the key eat res o po i e re orm envisaged are o t ined here, and Fig 5.1i strates the re orms, inkages and re ationships proposed y the commission.

5.1.3 Investigation o rimes (ex ept o en es entai ing a pres ri ed p nishment o , say,three years prison term or ess) wo d e entr sted to a separate, y a tonomo s, e ite,pro essiona , investigation agen y in ea h state. Tis agen y and the prose tion wing, wo d e managed y an independent board headed y a retired High co rt J dge,

and appointed y a high-powered o egi m. crime investigation wi e omp ete y ins ated rom partisan in en es and po iti a ontro . It wi e a high y pro essiona , we -eq ipped, adeq ate y sta ed orps o o ers, with its nits at the distri t ands -distri t eve s. O ers o this agen y annot e trans erred to other po i e agen ies.

5.1.4 An independent prose tion wing, sta ed y serving tria j dges on dep tation,spe ia prose tors appointed rom time to time, and p i prose tors appointed or arenewa e ve year term wo d n tion nder the s pervision o the same board, and work in ose oordination with the rime investigation agen y.

5.1.5 Te po i e station (a part o the aw and order po i e), wo d e the rst point o onta t or itizens. A rimes (entai ing pres ri ed p nishment o ess than three years

imprisonment) wo d e investigated y the aw and order po i e, and more serio s o en es wi e trans erred to the independent crime Investigation Agen y. Tere wo d e e e tiveme hanisms or oordination etween o a po i e, rime investigation agen y, and riot

ontro ( aw and order) po i e. A system o o a o rts wo d ens re speedy j sti e thro ghair, t s mmary pro ed res ( overing ases entai ing pres ri ed p nishment o p to

one year). Tese o a o rts wo d e an integra part o the independent j di iary and wo d n tion nder the ontro o the High co rt and S ordinate co rts. Many

n tions whi h need not e dis harged y the po i e dire t y – servi e o s mmons, es ortand genera d ties, et . – wo d e o tso r ed or trans erred to appropriate agen ies. D ties

nder spe ia aws wo d e trans erred progressive y to the on erned departments.

5.1.6 lo a po i e ( nder o a a thorities), in addition to investigation o petty rimes,

wo d attend to other o a po i e n tions in ding tra management and minor o aaw and order maintenan e. More po i e n tions wo d e progressive y ro ght nder

the s pervision o o a governments.

5.1.7 Tere wo d e a strong orensi division, with we -eq ipped a oratories inea h distri t, to s pport the crime Investigation Agen y (and other po i e agen ies).Te Forensi division wo d e nder the ontro o a board o Investigation whi h isdis ssed ater in this Report.

5.1.8 Te rest o the po i e (ex ding rime investigation and o a po i e) wo donstit te the aw and order agen y. Te commission envisages timate trans er o most

po i e n tions a ong with the personne to the o a governments over a period o time.Metropo itan ities with over one mi ion pop ation an e entr sted with some o thesed ties immediate y. unti the o a po i e are trans erred to o a governments, the aw andorder agen y wo d ontin e to s pervise a o a po i e stations. Tis agen y wo d eheaded y a po i e o er and s pervised y an a tonomo s State Po i e Per orman e and A o nta i ity commission. As aw and order annot e y ins ated rom the po iti aexe tive, this commission wo d have oth o ia representatives and independentmem ers and the e e ted government wo d ha ve a egitimate say in de isions to the extentreq ired or e e tive maintenan e o aw and order, and demo rati a o nta i ity.

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Po i e Re orms



5.1.9 With the n tiona restr t ring o po i e as proposed a o t, and the reation o three distin t agen ies, there wo d e need or a oordinating me hanism among theseagen ies to ens re harmonio s n tioning. Within ea h agen y, the day to day operationa

ontro wo d vest with the hie o the agen y, and an Esta ishment board wo d adviseon trans ers, postings and servi e matters and wo d dea with interna omp aints.

5.1.10 A the po i e wings, ex ept the armed po i e atta ions, wo d e sta ed y o ers.Te crime Investigation Agen y wo d e an o er orps sin e in eption, and in other wings there wo d e a progressive shi t y attrition (retirement, promotion and trans erto armed atta ions) o onsta es. Tere wo d e no t re re r itment o onsta es,ex ept to the req ired extent in armed po i e atta ions, in ding at the tting edge eve where the onsta e wo d e rep a ed y an o er (Assistant S Inspe tor o Po i e).

5.1.11 Tere wo d e State and o a Po i e comp aints A thorities to investigate serio somp aints o a se o a thority, orr ption and o str tion o j sti e. Tese A thorities

wo d have adeq ate reso r es and powers to investigate, s mmon, and p nish, and dire tprose tion Teir de isions wo d e inding.

5.1.12 Te centra armed po i e nits orm part o the nationa se rity apparat s, and

have no day-to-day intera tion with the p i ex ept when dep oyed or aw and orderd ties. Teir str t re and top management wo d ontin e to remain as at present, withertain me hanisms to ens re pro essiona management, proper se e tion o hie s and

ten ria se rity. When dep oyed on aw and order d ties, they wo d e a o nta e in thesame manner as the state aw and order po i e and wo d e s je t to Po i e comp aints A thorities.

5.1.13 Te str t re as envisaged wo d app y to a union erritories with appropriatemodi ations, depending on size and o a onditions.

5.1.14 Te commission is pain y aware that hanges in the str t re and methods o management, however omprehensive, wo d not, in themse ves ring a o t the needed

asi hanges o t re and mindset among the on erned p ayers. o the extent s horganisationa and methodo ogi a re orms he p restrain partisan and npro essiona ond tand provide or he ks and a an es as we as disin entives and pena ties, there wo d ea hange in the desired dire tion over a period o time. What is ne essary to ring a o tthis hange is an honest and some e ort to adopt and imp ement the entire pa kage o re orms and not di te it in any way.

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P i Order Po i e Re orms



5.2 Police Accountabilit Mechanism - Balancing Autonom and Control

5.2.1 State Government and the Po i e

5.2.1.1 Te rst and oremost iss e req ired to e addressed in po i e re orms is th e re ation

etween the State Government and the Po i e. P i Order and Po i e are state s je ts.Te main instr ment whi h ays down the ramework o the po i e system in India isthe Po i e A t, 1861 (a ew states have ena ted their own Po i e A ts, t the nder yingprin ip es are simi ar). Te A t gives the power o ontro and s perintenden e o the po i eto the State Government.

5.2.1.2 Te Nationa Po i e commission (NPc) examined the iss e o ontro o governmentover the po i e in great detai in its Se ond Report and stated that the arrangement thatexisted etween the po i e and the oreign power e ore Independen e was a owed to

ontin e with the on y hange that the oreign power was s stit ted y the po iti aparty in power. Te NPc a so st died iss es o str t re o the Po i e Department and itsinter a e with the State Government and other ivi a thorities. It stated as o ows:

“A ter long years o tradition o law en orcement subject to executive will under the British rule the police entered their new rule in Independent India in 1947. Te oreign power was replaced by a political party that came up to the democratic process laid down in our constitution. For a time things went well without any notice o any change, because o the corrective infuences that were brought to bear upon the administrative structure by the enlightened political leadership. However, as years passed by there was a qualitative change in the style o politics as the ervour o the reedomstruggle and the concept o sacri ce that it implied aded out quickly yielding place to new styles and norms o behaviour by politician to whom politics became a career by itsel .Prolonged one party rule at the centre and in the states or over 30 years coupled with the natural outcome o ruling party men to remain in positions o power resulted in the development o a symbiotic relationship between politicians on the one hand the civil services on the other. What started as a normal interaction between politicians and the services or the avowed objective o better administration with better awareness o public expectations, soon de-generated into di erent orms o intercession, interventionand inter erence with mala de objectives unconnected with public interest.”

5.2.1.3 Te NPc was there ore not in avo r o se tion 3 o the Po i e A t o 1861, whi hreads as o ows:

“Section 3. Superintendence in the State Government:- Te superintendence o the police throughout a general police-district shall vest in and shall be exercised by the State

Government to which such district is subordinate, and except as authorized under the provisions o this Act, no person, o cer o Court shall be empowered by the State Government to supersede or control any police unctionary.”

5.2.1.4 Te NPc stated that the powers o the s perintenden e o the State Government overthe po i e sho d e imited or the p rpose o ens ring that po i e per orman e is in stri ta ordan e with aw. Te NPc a so s ggested the onstit tion o a stat tory commissionin ea h state to e a ed the State Se rity commission. Tis commission was to ay down

road po i y g ide ines, eva ate per orman e o state po i e and n tion as a or m orappea rom po i e o ers and a so review the n tioning o the po i e in the state.

5.2.1.5 Tis iss e has a so een examined y the Po i e A t Dra ting committee (PADc),2005. Te PADc has given a orm ation to de ne the re ationship etween the StateGovernment and the po i e y s ggesting Se tion 39 o the dra t bi whi h reads as

o ows:

“Superintendence o police to vest in the State Government:

(1) It shall be the responsibility o the State Government to ensure an e cient,e ective, responsive and accountable Police Service or the entire state. For this purpose, the power o superintendence o the Police Service shall vest in and be exercised by the State Government in accordance with the provisions o this Act.Te State Government shall exercise its superintendence over the police in such manner and to such an extent as to promote the pro essional e ciency o the police and ensure that its per ormance is at all times in accordance with the law. Tis shall be achieved through laying down policies and guidelines, setting standards or quality policing, acilitating their implementation and ensuring that the police per orms its task in a pro essional manner with unctional autonomy.”

Te orm ation has a hieved a sa tary a an e etween the government’s power o s perintenden e and the a tonomy req ired y the po i e. Te commission road y agrees with the a ove orm ation s ggested y the PADc with the aveat that there sho d

e severa po i e agen ies – aw and order, rime investigation, o a po i e, spe ia awsen or ement agen y et . to dea with di erent n tions – as exp ained ear ier.

5.2.1.6 However, onsidering the a t that orma and in orma instr tions (sometimesatant y i ega ) on every detai are iss ed, it has een rged that mere in orporation o

a provision, “Te State Government shall exercise its superintendence over the police in such76 77




5.2.2 Separation o Investigation rom other F n tions

5.2.2.1 A o nta i ity means an o igation or wi ingness to a ept responsi i ity or toa o nt or one’s a tions.36 It is a so de ned as the prin ip e tha t individ a s, organisationsand omm nity are responsi e or their a tions and may e req ired to exp ain them

to others.37 A o nta i ity in the ontext o governan e means that p i o ia s havean o igation to exp ain their de isions and a tions to the itizens. Tis a o nta i ity isa hieved thro gh vario s me hanisms - po iti a , ega , and administrative.

5.2.2.2 A po i e n tionary is a o nta e to his/her interna departmenta hierar hy andth s to the e e ted government. He/she is a so a o nta e to the o rts or any wronga t and with the setting p o vario s Stat tory commissions ike the H man Rightscommissions, he/she is a so a o nta e to them. With this m tip e system o a o nta i ity the iss e whi h arises is whether the a o nta i ity me hanism existing today is e e tiveand s ient or ex essive.

5.2.2.3 Ex essive a o nta i ity has got severa negative a o ts. It may r initiativeand in a ni ormed servi e ike the po i e it may a so demora ise the or e. Tere ore,setting p e e tive a o nta i ity me hanisms req ires a de i ate a an e etween ontro

and initiative.5.2.2.4 Severa State Po i e commissions have reiterated the pro ems a sed y nd epo iti a inter eren e in po i e n tioning.

5.2.2.5 Te Kera a Po i e Reorganisation committee (1959) said:

“Te greatest obstacle to e cient police administration fows rom the domination o party politics under the State administration. Pressure is applied in varying degrees and so o ten a ects di erent branches o administration. Te result o partisan inter erence is o ten refected in lawless en orcement o laws, in erior service and in general decline o police prestige ollowed by irresponsible criticism and consequent widening o the cleavage between the police and the public a ecting the con dence o the public in the integrity and objectives o the police orce.”

5.2.2.6 Te Nationa Po i e commission a so stated:“In the process, individual crimes a ecting the interest o individual citizens by way

o loss o their property or threat to their physical security got progressively neglected.Police got progressively nearer to the political party in power and correspondingly arther rom the uncommitted general public o the country. Since most o the law and order

manner and to such an extent as to promote the pro essional e ciency o the police and ensure that its per ormance is at all times in accordance with the law…” wo d not s e. Tecommission has onsidered this and is o the view that a provision in the aw sho d emade that iss ing i ega or ma a de instr tions/dire tions y any government n tionary to any po i e n tionary and o str tion o j sti e wo d e an o en e. Tis has eendea t with in the commission’s Fo rth Report on ‘Ethi s in Governan e’.

5.2.1.7 Te commission in its Report on Ethi s in Governan e has o served that o str tiono or perversion o j sti e y nd y in en ing aw en or ement agen ies and prose tionis a ommon o rren e in o r o ntry. Again in most s h ases, partisan onsiderations,nepotism and prej di e, and not pe niary gain or grati ation may e the on y motive.Te res tant ai re o j sti e ndermines p i on den e in the system and reedsanar hy and vio en e. Te commission is o the view that the iss e o i ega or ma a deinstr tions y any government n tionary to any po i e n tionary sho d e made ano en e.

5.2.1.8 Recommendations :

a. Te ollowing provision should be incorporated in the respective Police

Acts :It shall be the responsibility o the State Government to ensure e cient,e ective, responsive and accountable unctioning o police or the entirestate. For this purpose, the power o superintendence o the police service shallvest in and be exercised by the State Government in accordance with theprovisions o law.

Te State Government shall exercise its superintendence over the police insuch manner and to such an extent as to promote the pro essional e ciencyo the police and ensure that its per ormance is at all times in accordancewith the law. Tis shall be achieved through laying down policies andguidelines, setting standards or quality policing, acili tating theirimplementation and ensuring that the police per orms its task in a pro essionalmanner with unctional autonomy.

No government unctionary shall issue any instructions to any policeunctionary which are illegal or malafde.

b. ‘Obstruction o justice’ should also be de ned as an o ence 35 underthe law.

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36 Meriam-We ster’s On ine Di tionary,37 www2.warwi k.a . k/servi es/ar hive/rm/po i ies/rmpo i y/g ossary/

35 Re er the Re ommendation made y the commission in para 3.2.1.10 in its Report on Ethi s in Governan e.



situations tended to have political overtones, the political party in power got habituated to taking a direct hand in directing and infuencing police action in such situations.Tis has led to considerable misuse o police machinery at the behest o individuals and groups in political circles. Police per ormance under the compulsions o such anenvironment has consequently allen ar short o the requirements o law and impartial per ormance o duties on several occasions”.

5.2.2.7 Te Nationa Po i e commission ame to the o n sion that:

i. political inter erence is seen by the public as a major actor contributing to the poor image o the police and mani ests itsel in the misuse and abuse o police powers and disregard o the law by police;

ii. people consider political inter erence with police as a greater evil than evencorruption; and

iii. political inter erence appears more pronounced in rural than in urban areas.

5.2.2.8 Te commission has examined the system o po i e a o nta i ity in some othero ntries. In the uK, the po i e are not a nitary ody. In Eng and and Wa es, 43 or esndertake territoria po i ing on a geographi a asis. In S ot and, there are eight regiona

po i e or es. In Northern Ire and, the Po i e Servi e o Northern Ire and (PSNI) wasonstit ted in 2001 o owing the re ommendations o the Patten commission.

5.2.2.9 Te uK has a tripartite system o po i e a o nta i ity. Tis system was esta ishednder the Po i e A t, 1964 and rea rmed y the Po i e A t 1996 and the Po i e Re orm

A t, 2002. In this tripartite system, a o nta i ity to Par iament is thro gh the HomeSe retary (who has responsi i ity or po i ing po i y orma ised thro gh a Nationa Po i ingP an). Te po i e is a o nta e to the o a itizens thro gh the o a po i e a thorities, whi h omprise e e ted o a o n i ors, magistrates and eminent persons. Te third armo this tripartite arrangement is the chie consta e, to whom his entire po i e or e isa o nta e or their per orman e. Tis arrangement is s mmarised in a e.5.138

5.2.2.10 In the uS, there are 17,000 po i e or es and ea h is nder the ontro o their respe tive o a governments. Te Federa Government and the States a so have

ertain spe ia ised or es. However, o a po i e or es are tota y a o nta e to the e e tedo a governments.

5.2.2.11 T s there is a omp ex task o a an ing ontro s over the se o po i e powersto ho d them a o nta e and the need or operationa a tonomy. In order to appre iatethis pro em in its tota ity, it is ne essary to examine the n tions per ormed y the po i e.For the ease o ana ysis, po i e tasks an e ategorised as o ows:39

(a) Prevention;( ) Investigation; and

( ) Servi e provision.

5.2.2.12 Preventive tasks over a tions s h as preventive arrests nder Se tion 151 o crPc, initiation o se rity pro eedings, arrangement o eats and patro s, o e tion o inte igen e and maintenan e o rime re ords to p an and exe te appropriate preventive

80 81


38 So r e: http://www.h manrightsinitiative.org/programs/aj/po i e/res_mat/po i e_a o nta i ity_in_ k.pd 39 Tis ategorisation is ased on the Report o the Nationa Po i e commission

Home Secretar / Home O ce Local Police Authorit Chie Constable

Determines key Nationa Po i ing Responsi e or maintaining an Responsi e or dire tiono je tives. Prod es Ann a Nationa e e tive and e e ient or e ontro o the or e

Po i ing P an and presents it to t hePar iamentDire ts Po i e a thorities to esta ish Determines o a po i ing priorities. Responsi e or Operaionaper orman e targets. can req ire a Prod es a 3 year strategy onsistent with controPo i e For e to take remedia a tion i Nationa Po i ing P anHMIc j dges them ine e ient or ine e tiveDetermines cash grant or po i e a thorities Determines arrangements or p i Dra ts o a po i ing p an in

ons tation onj n tion with o a po i ea thority

Approves appointment o hie onsta es Esta ished as per epting ody responsi e Responsi e or a hieving o aor dgeting and reso r e a o ation and natinoa po i ing o je tives

Iss es stat tory odes o pra ti e and dire tions Responsi e or appointment and dismissa Responsi e or reso r eto po i e a thorities o the hie onsta e (s je t to rati ation a o ation

y the Se retary o State). can req ires spension o ear y dismissa on p iinterests gro nds

Iss es stat tory odes o pra ti e to chie Mem ership o 17 ( s a y) : chie onsta es and dep ty/O ers 9 rom o a government assistant hie onsta es on xed

5 o a independents term ontra ts3 magistrates

Has a thority to order ama gamations

able 5.1: he ripartite S stem under the Police and Magistrates’ Courts Act 1994 and thePolice Re orm Act, 2002

So r e : Maw y and Wright 2003



a tion, dep oyment o po i e or e as a preventive meas re when rea h o pea e isthreatened, hand ing o n aw assem ies and their dispersa , et . Investigative tasksin de a a tions taken y the po i e in the o rse o investigating a ase nder chapter XII o the code o crimina Pro ed re. Te Nationa Po i e commission was o the view that the investigative tasks req ire omp ete pro essiona independen e and to that extent theinvestigative tasks o the po i e annot e ro ght nder any exe tive ontro or dire tion.Servi e-oriented n tions wi in de rendering servi e o a genera nat re d ring airs and

estiva s, res ing hi dren ost in rowds, providing re ie in distress sit ations arising romnat ra a amities, et . Te Nationa Po i e commission o served that in the per orman eo preventive tasks and servi e oriented n tions, the po i e wi need to intera t withother governmenta agen ies and servi e organizations; here the po i e sho d e s je tto the overa g idan e rom the Government, whi h sho d ay down road po i ies oradoption nder di erent sit ations rom time to time t there sho d e no instr tionsin regard to a t a operations in the e d.

5.2.2.13 Te commission is o the view that the iss e o a o nta i ity o the po i e is very sensitive. Tere is no do t that the po i e have to e a o nta e, t to whom sho dthe po i e e a o nta e and to what extent? Te po i e per orm di erent n tions andthe a o nta i ity req ired or ea h one o these is q ite di erent. For examp e, or rimeinvestigation, the po i e sho d not e s je ted to exe tive ontro , whereas the preventiveand servi e n tions req ire ivi ian oversight.

5.2.2.14 Te Nationa Po i e commission re ommended as o ows:

“Te deployment o police personnel in law and order at the expense o investigational work in police stations arises primarily rom inadequacies o manpower resources at the police station. Tere is not always a separate allocation o sta on law and order duties and these make heavy demand on police manpower resources. Once adequate manpower resources are available at the police station, the need or utilization o investigation sta or law and order duties may not arise so requently as is presently taking place.[Para 50.21]”

5.2.2.15 Te committee on Re orms o crimina J sti e System (2003) re ommended:

“Te sta in all stations in urban areas should be divided as Crime Police and Law and Order Police. Te strength will depend upon the crime & other problems in the PS area.

a. In addition to the o icer in-charge o the police station, the o icer incharge o the Crime Police should also have the powers o the o icer incharge o the police station.

b. Te investigating o cers in the Crime Police should be at the least o the rank o ASI and must be graduates, pre erably with a law degree, with 5 years experience o police work.

c. Te category o cases to be investigated by each o the two wings shall be noti ed by the State DGP.

d. Te Law & Order police will report to the Circle o cers/SDPO. Detective constables should be selected, trained and authorised to investigate minor o ences. Tis will be a good training ground or them when they ultimately move to the crime police.

e. A post o additional SP (Crimes) shall be created in each district. He shall have crime teams unctioning directly under him. He will carry out investigations into grave crimes and those having inter-district or inter-state rami cations. He shall also supervise the unctioning o the Crime Police inthe district.

. Tere shall be another Additional SP (Crime) in the district who will be responsible or (a) collection and dissemination o criminal intelligence; (b)maintenance and analysis o crime data: (c) investigation o important cases;(d) help the Crime Police by providing logistic support in the orm o Forensic and other specialists and equipment. Investigations could also be entrusted to him by the District SP.

g. Each state shall have an IG in the State Crime Branch exclusively to supervise the unctioning o the Crime Police. He should have specialised squads working under his command to take up cases having inter district. & and inter-state rami cations. Tese could be (a) cyber crime squad; (b) anti -terrorist squad; (c) organised crime squad; (d) homicide squad; (e) economic o ences squad; ( ) kidnapping squad (g) automobile the t squad; (h) burglary squad etc. He will also be responsible or (a) collection and dissemination o criminal intelligence (b) maintenance and analysis o crime data (c) co-ordination with other agencies concerned with investigation o cases”.

5.2.2.16 Te Padmana haiah committee (2000) a so re ommended separation o theinvestigation work rom aw and order and other d ties. Ea h distri t SP sho d e givenan additiona SP ex sive y to s pervise the work re ating to investigation [Para 103]. Tisre ommendation has a so een made y the committee on Re orms o crimina J sti eSystem and ear ier y the Gore committee on Po i e raining.

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5.2.2.17 Te law commission in its 154th Report (1996) a so re ommended separationo investigation rom maintenan e o aw and order or the o owing reasons:

“Firstly, it will bring the investigating police under the protection o judiciary and greatly reduce the possibility o political or other types o inter erence. Te Punjab Police

Commission (1961-62), the Delhi Police Commission (1968), the Gore Committee on Police raining (1972), the National Police Commission (1977-80), the MP Public Police Relations Committee (1983) have unanimously criticised political inter erence in the work o the police.

Secondly, with the possibility o greater scrutiny and supervision by the magistracy and the public prosecutor, as in France, the investigation o police cases are likely to be more in con ormity with the law than at present which is o ten the reason or ailure o prosecution in courts.

Tirdly, e cient investigation o cases will reduce the possibility o unjusti ed and unwarranted prosecutions and consequently o a large number o acquittals.

Fourthly, it will result in speedier investigation which would entail speedier disposal o cases as the investigating police would be completely relieved rom per orming law and order duties, VIP duties and other miscellaneous duties, which not only cause unnecessary delay in the investigation o cases but also detract rom their e ciency.

Fi thly, separation will increase the expertise o investigating police.

Sixthly, since the investigating police would be plain clothes men even when attached to police station will be in a position to have good rapport with the people and thus will bring their co-operation and support in the investigation o cases.

Seventhly, not having been involved in law and order duties entailing the use o orce like tear gas, lathi charge and ring, they would not provoke public anger and hatred which stand in the way o police-public co-operation in tracking down crimes and criminals and getting in ormation, assistance and intelligence which the police have aright to get under the provisions o Sections 37 to 44 o the Code o Criminal

Procedure.Tere should be a separate cadre o investigating agency in every district, subject tosupervision by the higher authorities. When a case is taken up or investigation by ano cer o such agency, he should be in charge o the case throughout till the conclusion

o the trial. He should take the responsibility or production o witnesses, production o accused and or assisting the prosecuting agency. As observed in the Fourteenth Report o the Law Commission, there need not be absolute separation between the twobranches.

We recommend that the police o cials entrusted with the investigation o grave o ences should be separate and distinct rom those entrusted with the en orcement o law and order and other miscellaneous duties. Separate investigating agency directly under the supervision o a designated Superintendent o Police be constituted. Te hierarchy o the o cers in the investigating police orce should have adequate training and incentives or urthering e ective investigations. We suggest that the respective Law and Home Departments o various State Governments may work out details or betterment o their conditions o service”.

5.2.2.18 Te S preme co rt in Writ Petition (civi ) No.310 o 1996 in Prakash Singh andothers vs. union o India and others has iss ed the o owing dire tions:

“Te investigating police should be separated rom the law and order police to ensure speedier investigation, better expertise and improved rapport with the people. It must

however be ensured that there is ull coordination between the two wings. Te separation,to start with, may be e ected in towns/urban areas which have a population o tenlakhs 40 or more, and gradually extended to small towns/urban areas also.”

5.2.2.19 Separation o ‘ rime investigation’ rom other d ties a ready exists to some extentin those po i e stations where there are separate ‘ rime’ and ‘ aw and order’ wings. b tthis separation does not pre de personne rom one wing per orming d ties in the other wing, whi h in a t they do. Existen e o the crimina Investigation Department in statesis a so a type o separation. b t here a so there is req ent inward and o tward movemento o ers, whi h does not he p in deve opment o the req ired degree o spe ia isation inand tota ommitment to rime investigation. In any ase, the pro essiona req irementso an investigation agen y are q ite di erent rom that o a ‘ aw and order’ maintenan ema hinery.

5.2.2.20 Te commission has are y examined this iss e and ee s that a ear separationo investigation rom aw and order d ties is req ired. Te entire po i e wo d have to erestr t red so as to have two separate agen ies - one dea ing with ‘Investigations’ and theother dea ing with ‘law and Order’. Te commission is aware o the ose inkages req ired

etween rime investigation and maintenan e o aw and order. Tis o d e a hievedthro gh appropriate oordination me hanisms/ inkages at vario s eve s. b t the agen ies

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40 1 mi ion is eq a to 10 akhs



have to e separate and personne sho d e non-trans era e or the reasons exp ainedear ier.

5.2.2.21 On e the investigation n tion is separated rom ‘ aw and order’, reatingseparate a o nta i ity me hanisms or the two n tions and providing ea h the req ired

degree o a tonomy, e omes possi e. Te investigation po i e sho d e p a ed nder anindependent Po i e chie who wo d in t rn e s pervised y a board o Investigation.Tis board o Investigation sho d oversee the investigation and ho d the investigationpo i e a o nta e. Tis arrangement wo d omp ete y ins ate the investigation po i e

rom nwarranted po iti a and administrative inter eren e as the board o Investigation wo d have administrative ontro over the Investigation Po i e. Te ro e o the StateGovernment vis-a-vis the board wo d e to ay down road po i y ramework andg ide ines within whi h the board sho d n tion. Te board o Investigation sho da so s pervise the Forensi Department and the Prose tion Department.

5.2.2.22 Te board o Investigation sho d have a retired High co rt J dge as its head,and an eminent awyer, an eminent itizen, a retired po i e o er, a retired ivi servant,the Home Se retary (ex-o io), the Dire tor Genera o Po i e (ex-o io), the chie o Investigation (ex-o io) and the chie o Prose tion (ex-o io) as Mem ers. Te

chairman and non o ia Mem ers o the board sho d e appointed y a high poweredo egi m, headed y the chie Minister and omprising the Speaker o the Assem y, chie J sti e o the High co rt, Home Minister and leader o the Opposition in the legis ative Assem y. Te board o Investigation sho d rnish ann a reports on its n tioning to theState legis at re. S h a me ha nism wi instit tiona ise a tonomy, impartia investigationand pro essiona ompeten e whi e ens ring e e tive a o nta i ity.

5.2.2.23 Te chie o Investigation sho d e appointed y the State Government rom apane o o ers re ommended y the board o Investigation. Te chie o Investigationsho d e appointed or a minim m ten re o three years, and he sha not e removed

e ore the expiry o this ten re ex ept with the approva o the board o Investigation.

5.2.2.24 Te investigation agen y sho d e sta ed with persons with adeq ate q a i ationand know edge in investigation, good ana yti a a i ity and so nd training. Te crimeInvestigation Agen y wi e an o er orps, and the o ers wi e drawn rom theexisting po i e agen ies on a one-time se e tion asis. S seq ent y, the agen y wi haveits own re r itment pro esses to appoint investigators. Serving po i emen in other wings

an join y se e tion t on e they join the crime Investigation Agen y, they wo d e nottrans era e to other po i e wings. Grad a y, the board an start appointing and trainingits own adre o o ers.

5.2.2.25 It is not ne essary to entr st a rimes to this spe ia ised agen y. A arge majority o rimes are minor o en es whi h o d e easi y hand ed y the ‘ aw and order’ po i eat the po i e station eve (and the o a po i e) with its esta ished s pervisory hierar hy (Te commission in a s seq ent paragraph has examined the possi i ity o entr sting th einvestigation o rimes nder ertain spe ia State laws to the department administering the

aw). Te crime Investigation Agen y sho d e entr sted with investigation o on y s hrimes or whi h the pres ri ed p nishment is a ove a ertain imit (say eq a to or more

than three years o imprisonment) and this sho d e stip ated nder aw. However, e a seo the existing spread o po i e stations, registration o rimes sho d ontin e to e withthe reg ar po i e station. On re eipt o any in ormation the initia work o investigation

o d e ommen ed y the aw a nd order po i e ti the matter is taken over y the crimeInvestigation Agen y, so that va a e time and eviden e is not ost.

5.2.2.26 Te commission envisages that the aw and order po i e wi investigate a o en esentai ing a pres ri ed p nishment o ess than three years imprisonment. S h a division o j risdi tion wi ens re that the k o the rimina ases wi e hand ed y the aw and orderpo i e. On y the remaining ases, whi h onstit te a sma ra tion o the tota rimina asesregistered, wi a nder the j risdi tion o the crime Investigation Agen y. b t these asesdemand high pro essiona ompeten e and signi ant dep oyment o reso r es. Tere ore,

the crime Investigation Agen y may have a o t 5000-10000 trained o ers in the argerstates o the o ntry, and wi have to e a ked y strong orensi and other in rastr t re.Tis wo d a so he p r the tenden y to have in reasing n m er o ases rom a overthe o ntry, trans erred to an over- rdened centra b rea o Investigation.

5.2.2.27 c rrent y, most major states have the cID wings with a sta o a ew h ndredin ding onsta es, and with minima orensi s pport. Te commission’s proposa wo dmean a s stantia enhan ement o strength a ong with spe ia ised training in rastr t reand a tonomy and a o nta i ity in n tioning.

5.2.2.28 Tis arrangement an e instit tiona ised in ities with a pop ation o more thanone mi ion immediate y and within a period o three years a r an areas o d e overed. Within ve years, a r ra and r an areas o d e overed nder this new arrangement,ens ring omp ete separation and a tonomy o rime investigation.

5.2.2.29 o ens re that the vario s agen ies – rime investigation, aw and order and o apo i e n tion in ose oordination, me hanisms wo d need to e devised at the Stateand the Distri t eve s.

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5.2.3 A o nta i ity o law and Order Ma hinery

5.2.3.1 It is ne essary now to t rn to the n tioning o the aw and order ma hinery. As des ri ed ear ier, the maintenan e o aw and order (and other preventive and servi e

n tions) req ires ose ivi ian oversight and oordination, t this ivi ian ontro sho d

not extend to the operationa ontro o the po i e.

5.2.3.2 Te Dire tions o the S preme co rt and the proposa s o the Po i e A t Dra tingcommittee, provisions o the Ordinan e prom gated y the Government o Kera a andprovisions o the bihar Po i e A t p rs ant to the S preme co rt Dire tions have eens mmarised in a e 3.4.

5.2.3.3 Te commission is o the view that a me hanism simi ar to the State board o Investigation is req ired or providing s pervision and g idan e to the other wings o po i e. Te Nationa Po i e commission had a so re ommended the onstit tion o asimi ar A thority - the State Se rity commission. ‘Se rity’ is a wide term, and with thetype o n tions that are so ght to e assigned to ‘this s pervisory ody’, it wo d e moreappropriate to name the ody as “Po i e Per orman e and A o nta i ity commission”(PPAc).

5.2.3.4 Te commission agrees with the omposition and the manner o appointmento the chairman and Mem ers s ggested y the PADc (with a minor hange as given inthe re ommendation in paragraph 5.2.3.7) It may however e noted that the powers and

n tions o this commission sho d e di erent rom those o the board o Investigation. As re ommended y PADc, it sho d per orm the o owing n tions:

• rame broad policy guidelines or promoting e cient, e ective, responsive and accountable policing, in accordance with law;

• prepare panel or the post o Director General o Police against prescribed criteria;

• identi y per ormance indicators to evaluate the unctioning o the police service;and

• review and evaluate organisational per ormance o the police service.

5.2.3.5 Te commission ee s that the State Po i e Per orman e and A o nta i ity commission sho d prepare a pane on y or the ‘o e’ o Dire tor Genera o Po i eand not or the ‘rank’ o Dire tor Genera o Po i e. Te commission agrees with thepro ed re re ommended y the PADc or appointment o the Dire tor Genera o Po i e.Te commission ee s that the Dire tor Genera o Po i e sho d have a minim m ten reo three years.

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5.2.2.30 Recommendations:

a. Crime Investigation should be separated rom other policing unctions. A Crime Investigation Agenc should be constituted in each state.

b. Tis agenc should be headed b a Chie o Investigation under theadministrative control o a Board o Investigation, to be headed b a retired/sitting judge o the High Court. Te Board should have an eminent law er, an eminent citizen, a retired police o cer, a retired civil servant, the Home Secretar (e -o cio), the Director General o Police (e -O cio), Chie o the CrimeInvestigation Agenc (e -o cio) and the Chie o Prosecution (e -o cio)as Members.

c. Te Chairman and Members o the Board o Investigation should be appointedb a high-powered collegium, headed b the Chie Minis ter and comprising theSpeaker o the Assembl , Chie Justice o the High Court, the Home Ministerand the Leader o Opposition in the Legislative Assembl . Te Chie o Investigation should be appointed b the State Government on therecommendation o the Board o Investigation.

d. Te Chie o the Crime Investigation Agenc should have ull autonom in

matters o investigation. He shall have a minimum tenure o three ears. Hecan be removed within his tenure or reasons o incompetence or misconduct,but onl a ter the approval o the Board o Investigation. he StateGovernment should have power to issue polic directions and guidelines to theBoard o Investigation.

e. All crimes having a prescribed punishment o more than a de ned limit (sa three or more ears o imprisonment) shall be entrusted to the Crime Investigation Agenc . Registration o FIRs and rst response should be with the ‘Law andOrder’ Police at the police station level.

. Te e isting sta could be given an option o absorption in an o the Agencies Crime Investigation, Law and Order and local police. But once absorbed, the

should continue with the same Agenc and develop e pertise accordingl . Tis would also appl to senior o cers.

g. Once the Crime Investigation Agenc is sta ed, all ranks should develop e pertise

in that eld and there should be no trans er to other Agencies.h. Appropriate mechanisms should be developed to ensure coordination betweenthe Investigation, Forensic and the Law and Order Agencies, at the Local,District and the State levels.



d. Te State Government should appoint the Chie o Law and Order Policerom the panel recommended b the State Police Per ormance and

Accountabilit Commission. Te panel will be or the ‘o ce’ o DirectorGeneral o Police and not to other posts o the ‘rank’ o DGP.

e. Te tenure o the Chie o the Law and Order Police as well as the Chie o the Crime Investigation Agenc should be at least three ears. But this tenureshould not become a hindrance or removal in case the Chie is ound to beincompetent or corrupt or indulges in obstruction o justice or is guilt o a criminal o ence. Te State Government should have powers to remove thePolice Chie but such order o removal should be passed onl a ter it has beencleared b the State Police Per ormance and Accountabilit Commission (or theState Investigation Board, in the case o Chie o Investigation).

5.2.4 Po i e Esta ishment committees

5.2.4.1 A ose y re ated aspe t o e ient n tioning and a tonomy o the po i e is theposting o o ers ased on merit and pro essiona experien e. Posting o po i e o ers on

onsiderations other than merit is a major reason whi h hampers e ient n tioning o the po i e. linked to this is the short ten re o po i e o ers. Te commission has a ready given its re ommendation or the appointment o the chie o Po i e (law and Order Agen y) in paragraph 5.2.3. In order to ring o je tivity in matters o posting o otherpo i e o ers, the dra t bi re ommended y PADc has stip ated the setting p o a Po i eEsta ishment committee. A ording to the PADc, the Esta ishment committee share ommend names o s ita e o ers to the State Government or posting to a the positionsin the ranks o Assistant/Dep ty S perintendents and a ove in the po i e organization o the state, ex ding the Dire tor Genera o Po i e. Te State Government sha ordinari y a ept these re ommendations, and i it disagrees with any re ommendation, it sha re ordreasons or disagreement. In the orm ation given y PADc it is a so stip ated that postingsand trans ers o non-gazetted po i e o ers within a Po i e Distri t sha e de ided y the Distri t S perintendent o Po i e, as ompetent a thority, on the re ommendation o a Distri t- eve committee in whi h a Additiona /Dep ty/Assistant S perintendents o Po i e posted in the Distri t sha e mem ers.

5.2.4.2 Te Gro p o Ministers on Nationa Se rity (2000-2001) re ommended that astate eve Po i e Esta ishment board, headed y the State chie Se retary/Home Se retary sho d e set p in ea h State to de ide trans ers, postings, rewards, promotions, s spension,et . o gazetted po i e o ers. Another board, nder the State DGP, sho d de ide thesematters in respe t o non-gazetted po i e o ers.

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5.2.3.6 In order to ens re rther sta i ity or the o e o the Dire tor Genera o Po i e,the PADc has stip ated that the Dire tor Genera o Po i e may e removed y theState Government onseq ent to a onvi tion; or on imposition o a pena ty o dismissa ,remova or omp sory retirement; or on s spension; or on in apa itation; or on promotion.Te commission ee s that whi e it is ne essary to ens re a sta e ten re to the Dire torGenera o Po i e, i the in m ent is o nd to e not ompetent, a ts i ega y o r ommitsmis ond t, the State Government sho d e a e to remove him/her witho t any di ty.Te pro ed re s ggested in the PADc orm ation is omp i ated and time ons ming.Tere ore, it is ne essary to a hieve a a an e etween the State’s power to remove anin ompetent or a de inq ent o er and ens ring a sta e ten re or the Dire tor Generao Po i e. Tis o d e a hieved y pres ri ing that the State Government sha have thepowers to remove the Dire tor Genera o Po i e t sha not do so n ess the State Po i ePer orman e and A o nta i ity commission agrees to it.

5.2.3.7 Recommendations

a. A State Police Per ormance and Accountabilit Commission should beconstituted, with the ollowing as Members:• Home Minister (Chairman)

• Leader o Opposition in the State Assembl • Chie Secretar • Secretar in charge o the Home Department;• Director General o Police as its Member Secretar • (For matters pertaining to Director General o Police, including his

appointment, the Home Secretar shall be the Member Secretar )• Five non-partisan eminent citizens

b. Te State Police Per ormance and Accountabilit Commission shouldper orm the ollowing unctions:• rame broad polic guidelines or promoting e icient, e ective,

responsive and accountable policing, in accordance with law;• prepare panels or the o ce o Director General o Police against

prescribed criteria;• identi per ormance indicators to evaluate the unctioning o the

police service; and• review and evaluate organizational per ormance o the police service.

c. Te method o appointment o the Chairman and Members o the StatePolice Per ormance and Accountabilit Commission should be as stipulatedin the Dra t Model Police Act.



5.2.4.3 Te S preme co rt has dire ted that there sha e a Po i e Esta ishment boardin ea h state whi h sha de ide a trans ers, postings, promotions and other servi e re atedmatters o o ers o and e ow the rank o Dep ty S perintendent o Po i e. Te boardsha a so e a thorised to make appropriate re ommendations to the State Governmentregarding the postings and trans ers o o ers o and a ove the rank o S perintendent o Po i e, and the Government is expe ted to give d e weightage to these re ommendationsand sha norma y a ept them. Te S preme co rt has rther dire ted that the StateGovernment may disagree with the de ision o the board in ex eptiona ases on y a terre ording its reasons or doing so.

5.2.4.4 Te commission has are y examined the matter and is in road agreement withthe approa h adopted therein viz. to de ide posting o o ers and other personne thro gh

o egia pro esses whi h r e o t the possi i ity o nwarranted extraneo s inter eren e.be ore making spe i re ommendations, the commission wo d ike to spe o t ertainre evant a tors to orma ise the str t re at vario s eve s:

(a) Te po i e organization does not exist in iso ation. Te top management o the organization, in parti ar has as m h responsi i ity in dea ing with therest o the government and the genera p i , as within their organisation.

( ) In a m ti-mem er esta ishment ommittee, it is q ite possi e that someo the mem ers wo d e o the same seniority as the andidates eing onsideredor appointments. his may ead to avoida e heart- rning esides the

apprehension o ringing in persona iases and prej di es. Moreover, it is a sopossi e that the mem ers o the esta ishment ommittee are themse ves in thezone o onsideration or simi ar senior posts.

5.2.4.5 Keeping in view the a ove re evant a tors, the commission wo d re ommendthat the omposition o the Po i e Esta ishment committee sho d e more road asedin respe t o appointments to the top management. Tere ore, the Po i e Esta ishmentcommittee in matters re ating to o ers o the rank o Inspe tor Genera o Po i e anda ove sho d have the chie Se retary as chairperson, the chie o law and Order Po i eas Mem er Se retary and the Home Se retary and a nominee o the State Po i e Per orman eand A o nta i ity commission as Mem ers.

5.2.4.6 Simi ar y, the Po i e Esta ishment committee or matters dea ing with o ers o the ranks o DySP/ASP (or gazetted o ers) and a ove, p to the rank o Dep ty Inspe torGenera o Po i e, sho d have the Dire tor Genera o Po i e as its chairman and twoother po i e o ers to e nominated y the State Po i e Per orman e and A o nta i ity commission as mem ers. besides, the State Po i e Per orman e and A o nta i ity

commission sho d a so nominate one o its mem ers on this committee. Simi ar y there sho d e a Distri t Po i e committee headed y the S perintendent o Po i e andhave the Additiona S perintendent(s) o Po i e, and an Assistant S perintendent/Dep ty S perintendent o Po i e as mem ers to dea with matters re ated to non-gazetted o ersand a sta .

5.2.4.7 Te Po i e Esta ishment committees sho d dea with a matters re ating to postingsand trans ers, promotions and grievan es on esta ishment matters. For matters o postingsand trans ers, the State Po i e Esta ishment committees sho d make re ommendationsto the State Government and the State Government sho d norma y a ept s hre ommendations. Te State Government may, however, ret rn the re ommendations

or re onsideration a ter re ording its reasons. However in ase o Distri t Esta ishmentcommittees, their de ision sha e na . In matters o promotion and grievan es, the ro eo the Esta ishment committees sho d e to give its re ommendations to the competent A thority. In ase the competent A thority is a part o the Esta ishment committee,then s h re ommendation sho d e inding. For inter-distri t trans ers o non-gazettedo ers, the State eve Esta ishment committee may dea with it or de egate it to aZona or a Range eve committee. Simi ar committees sho d a so e onstit ted on theInvestigation side.

5.2.4.8 In respe t o the crime Investigation Agen y, the commission envisages thatthe board o Investigation sho d have and na ontro on a personne matters.Tere ore, the board sho d a t as the esta ishment ommittee or a senior n tionariesin investigation and prose tion. Appropriate ommittee may e onstit ted at the distri t

eve , y the board or dea ing with non-gazetted o ia s.


a. A State Police Establishment Committee should be constituted. It should be headed b the Chie Secretar . he Director General o Police should be the Member Secretar and the State HomeSecretar and a nominee o the State Police and Accountabilit Commission should be the Members. Tis Committee should deal withcases relating to o cers o the rank o Inspector General o Police andabove.

b. A separate State Police Establishment Committee should be set up with theChie o Law and Order Police as its Chairperson and two senior policeo cers and a member o the State Police Per ormance and Accountabilit

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Commission as Members (All Members o this Committee should benominated b the State Police Per ormance and Accountabilit Commission)to deal with cases relating to all gazetted o cers up to the rank o Deput Inspector General o Police.

c. Tese Committees should deal with all matters o postings and trans ers,promotions and also grievances relating to establishment matters. Terecommendations o these Committees shall normall be binding onthe Competent Authorit . However, the Competent Authorit ma return therecommendations or reconsideration a ter recording the reasons.

d. Similarl , a District Police Establishment Committee (Cit PoliceCommittee) should be constituted under the Superintendent/Commissionero Police. Tis Committee should have ull powers in all establishment matters o non-gazetted police o cers.

e. For inter-distri ct trans ers o non-gazetted o icers , the State levelEstablishment Committee ma deal with it or delegate it to a Zonal or a Range level Committee.

. All o cers and sta should have a minimum tenure o three ears. Shouldthe Competent Authorit wish to make pre-mature trans er, it should

consult the concerned establishment committee or their views. I the viewso the establishment are not acceptable to the Competent Authorit ,the reasons should be recorded be ore the trans er is a ected, andput in the public domain.

g. he Board o Investigation should have ull and inal control on allpersonnel matters o Crime Investigation Agenc . Tere ore, the Board shouldact as the establishment committee or all senior unctionaries ininvestigation and prosecution. An appropriate commit tee ma be constitutedat the district level b the Board, or dealing with non-gazetted o cials.

5.3 Competent Prosecution and Guidance to Investigation

5.3.1 Investigation and prose tion o serio s o en es invo ve severa key e ements– omp ete airness and o je tivity, ski s and training o the investigating team, adeq ate

orensi apa i ities and in rastr t re, expert ega o nse regarding a epta e methodso investigation and admissi i ity o eviden e, and air and di igent do mentation o theinvestigative pro ess. Fairness and o je tivity an e g aranteed on y when the investigatingteam is omp ete y ree and nhampered y po iti a or hierar hi a onsiderations. Ski sand pro essiona isation an on y e ass red when a ot o time, reso r es, and training areinvested in an investigator, and there is onstant pdating and reg ar app i ation o those

ski s. J dged against these riteria, there are many short omings and de ien ies in o rsystem, whi h exp ain the ai re o prose tion in many ases. For examp e, o r present

orensi in rastr t re is oth inadeq ate and o tdated. Te investigator’s training andpro essiona ski s are poor; as a res t he is o ten naware or nmind o the d e pro esseso aw. Even the e ementary prin ip es o admissi i ity o eviden e are o ten ignored. Tedo mentation is s a y o poor q a ity, and there are g aring in onsisten ies on a o nto shoddy work. In the rrent system, the po i e investigate the ase on their own, andtheir ro e arge y ends with the ing o a harge sheet e ore the o rt. Te prose tionthen takes over. be a se o a k o oordination etween the po i e and the prose tion,ea h ames the other when the prose tion ai s. Te net res t is that j sti e s ers andp i aith in the rimina j sti e system gets severe y eroded.

5.3.2 under the constit tion, crimina aw and crimina pro ed re are Entries 1 and 2respe tive y in list III o the Seventh S hed e to the constit tion, nder whi h oth thePar iament and the State legis at res an egis ate. In o r rimina j sti e system, the d ty o investigation and prose tion or any rime is that o the State. Te State dis hargesthis responsi i ity thro gh the po i e and the p i prose tor respe tive y. Te p iprose tor th s p ays a very important ro e in the dispensation o rimina j sti e. A o tthe ro e o the P i Prose tor, the S preme co rt has o served:

“A public prosecutor is an important o cer o the state government and is appointed by the state under the CrPC. He is not a part o the investigating agency. He is anindependent statutory authority. Te public prosecutor is expected to independently apply his mind to the request o the invstigating agency be ore submitting a report to the court or extension o time…” 41

5.3.3 In the pre-independen e period, even po i e o ers o iated as p i prose tors.Tis sit ation ontin ed ti 1973 when the crPc was amended and it was made mandatory that a p i prose tor sho d e a awyer (Se tion 24 o cr Pc). A andmark j dgement was de ivered y the A aha ad High co rt in Jai Pa Singh Naresh vs State o uttarPradesh (1976 crlJ 32). In this ase, the co rt q ashed a uP government order p a ingthe Assistant PPs nder the administrative and dis ip inary ontro o the S perintendento Po i e and the Inspe tor Genera o Po i e. Te High co rt he d:

“Applying the principles laid down by the Supreme Court and having regard to legislative history and the object and purpose which was sought to be achieved by the enactment o Section 22, there can be no manner o doubt that i administrative and disciplinary control over the public prosecutors was entrusted to the o cers o the police department,the very purpose or which Section 25 was enacted would be rustrated”.

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41 S preme co rt, Hitendra Vishn Tak r v. State o Maharashtra (1994) 4 Scc 602



5.3.4 Tis was s seq ent y phe d y the S preme co rt in S b Shahane v. Stateo Maharashtra (AIR 1995 Sc 1628). In this ase, the S preme co rt dire tedthe Government o Maharashtra:

“to constitute a separate cadre o Assistant Public Prosecutors either on district-wise

basis or on state-wise basis, by creating a separate Prosecution Department or them and making the head to be appointed or such Department directly responsible to the State Government or their discipline and the conduct o all prosecutions by them be ore the Magistrates’ courts and urther ree such Prosecutors ully rom the administrative and disciplinary control o the Police Department or its o cers, i they still continue to be under such control”.

5.3.5 he code o crimina Pro ed re (Amendment) A t, 2005 provides or theesta ishment o a Dire torate o Prose tion to e headed y a Dire tor. Te Dire torhas to e an advo ate with a minim m o ten years experien e. T s, over the years therehas een a tota hange in the instit tion o the p i prose tor rom eing a part o thepo i e to a tota y independent Dire torate.

5.3.6 Te Nationa Po i e commission arg ed that making the prose tion tota y independent has adverse y a e ted onvi tion rates. o improve oordination etween theinvestigation and the prose tion it re ommended that a s pervisory str t re over thedistri t prose ting sta e deve oped with Dep ty Dire tors o Prose tion at th e regiona

eve nder the administrative p rview o the R ange DIGs and a Dire tor o Prose tion atthe State eve nder the a dministrative ontro o the IG o th e po i e. Te Padmana haiahcommittee re ommended that ea h State may reate a Dire torate o Prose tion nderthe Home Department.

5.3.7 Tis iss e was a so examined y the law commission in its 154th Report (1996).Te law commission re ied on a S preme co rt r ing in S b Shahane vs State o Maharashtra whi h he d that the prose tion agen y sho d e a tonomo s having areg ar adre o prose ting o ers. Te law commission o served as o ows:

“ It is a matter o common knowledge, that a public prosecutor has a dual role to play,namely, as a prosecutor to conduct the trial and as a legal adviser to the police department in charge o investigation. For some reason or the other, in the recent administration, the latter part is not given due weight and a virtual communication gap exists. Te police o cers also strongly eel that the concept o autonomy has done considerable harm, not rom the point o objectivity but in reducing the scope or securing appropriate legal advice at the investigation stage. While nobody doubts the need or objectivity, it is elt

that they should provide legal guidance at the stage o investigation. It is also noticed that some o the mistakes committed by investigating o cers could have been avoided, i there had been some mechanism to provide legal guidance and assistance during the course o investigation”.

5.3.8 Ear ier, the law commission in its 14th Report had onsidered this iss e, and its ggested that the prose ting agen y sho d e omp ete y separated rom the Po i eDepartment. Te law commission (164th Report) examined the re ommendations o theNationa Po i e commission and a ording y re ommended the insertion o a new Se tion25A o crPc whi h stip ates that the State Government may esta ish a Dire torate o Prose tion nder the administrative ontro o the Home Department in the state.

5.3.9 Te committee on Re orms o crimina J sti e System in its report (Mar h 2003)identi ed, inter a ia, some weaknesses in the prose tion ma hinery and its n tioning. Itpointed o t that there is inadeq ate oordination etween the prose tion and investigation;the pro essiona ompeten e and ommitment o prose tor is a so not p to the mark. Inorder to a hieve oordination, the committee re ommended that a senior po i e o er withthe req isite q a i ation o the rank o Dire tor Genera may e appointed as the Dire toro Prose tion in the State in ons tation with the Advo ate Genera . Te committee

a so re ommended that the Dire tor o Prose tion n tion nder the g idan e o the Advo ate Genera o the State. Te d ties o the Dire tor o Prose tion, inter a ia, wo de to a i itate e e tive oordination among the investigating and prose ting o ers, and

review the working o the prose tors.

5.3.10 In most deve oped o ntries a ter omp etion o investigation, the ase is trans erredto the o e o the Attorney or the Prose tor. Te Distri t Attorney in the uSA is e e ted

or a term o o r years. In some States, the Distri t Attorney an a so ond t rtherinvestigations i he/she ee s that some more eviden e is req ired.

5.3.11 Te commission is o the onsidered view that a system sho d e evo ved at thedistri t eve whi h ens res pro essiona ompeten e, air tria and ose oordination etweeninvestigation and prose tion. A system simi ar to the Distri t Attorney m st e evo vedin the o ntry. Te commission ee s that given o r onditions, e e ted Distri t Attorneysare neither desira e nor a epta e to so iety and the j di iary. We need high y ompetent,

redi e, impartia prose tors who arry onvi tion with the p i , an e e tive y g ideinvestigation and ontro prose tion. Tere ore, the commission re ommends that j di iao ers o the rank o Distri t J dge may e appointed as Distri t Attorneys who in t rn wo d g ide investigation and ontro prose tion and a so ens re proper oordination and

nderstanding etween the two. A the prose tors in the distri t wo d work nder the

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administrative and te hni a ontro o the Distri t Attorney who wo d n tion nderthe overa g idan e o the chie Prose tor o the State.

5.3.12 Tere sho d e a chie Prose tor or ea h state to e appointed y the board o Investigation. Te chie Prose tor sho d e a senior eminent rimina awyer and sho d

e appointed or a period o three years. Te chie Prose tor sho d g ide and s pervisethe Distri t Attorneys.

5.3.13 Recommendations:

a. A s stem o District Attorne should be instituted. An o cer o the rank o District Judge should be appointed as the District Attorne . Te District Attorne shall be the head o Prosecution in a District (or group o Districts ). Te District Attorne shall unction under the Chie Prosecutor o the State. Te District Attorne should also guide investigation o crimes in the district.

b. Te Chie Prosecutor or the State shall be appointed b the Board o Investigation or a period o three ears. Te Chie Prosecutor shall be aneminent criminal law er. Te Chie Prosecutor would supervise andguide the District Attorne s.

5.4 Local Police and ra c Management

5.4.1 crime investigation and ringing rimina s to ook is as important a n tion o the po i e as rime prevention. In India, however, maintenan e o aw and order e a seo its emergent nat re invaria y takes pre eden e over other po i e n tions. As a res t,investigations are given ower priority. With the separation o Investigation rom law and Order, this pro em wo d e o viated to some extent. b t as mentioned ear ier, theInvestigation Agen y wo d e dea ing with on y spe i ed ases. A arge n m er o ases

nder the IPc as we as State and Spe ia laws wo d sti ome nder the domain o the law and Order po i e. between 1999-2001, on an average, a o t 50 akh rimes wereregistered in ea h year in the States and union erritories. One-third o these were IPc

rimes, and the rest were o en es nder vario s Spe ia and lo a laws (Sll). Anotherreason or rime investigation o IPc re ated o en es getting a ow priority is the argen m er o spe ia aws whi h the po i e ha ve to hand e. It is estimated that more than 70%o the tota ases registered are nder spe ia aws. Moreover the onvi tion rate nder thespe ia aws is 86% whereas nder the IPc it is on y 37%.42

5.4.2 Te Padmana haiah committee re ommended that investigation o o en esnder ertain pena stat tes sho d e entr sted to agen ies other than the po i e. It

was re ommended that investigation o o en es nder the Motor Vehi es A t, Forestconservation A t, Essentia commodities A t et o d e ndertaken y senior o erso the on erned departments. Te committee rther s ggested that the powers o investigation an e given to Exe tive Magistrates nder Se tion 202 o crPc, who int rn may even a thorize some rep ted NGOs to arry o t investigations in respe t o o en es nder so ia egis ations.

5.4.3 As a arge n m er o spe ia aws are egis ated y the states, it is s ggested that aninter-dis ip inary gro p may e onstit ted y the Home Department o ea h state tost dy a aws and therea ter s ggest trans er o investigation powers to the on erneddepartments. Simi ar y, a gro p may a so e set p at the union eve to examine this iss ein respe t o union laws.

5.4.4 lo a governments a so en or e a arge n m er o R es and Reg ations. Tese extendto maintaining sanitation and hygiene, ontro ing p i n isan e, removing en roa hmentset . Te power to investigate s h minor o en es sho d e given to the o a odies. Tis wo d red e the rden on the o a po i e and at the same time make o a governmentsmore e e tive. In So th A ri a, whi h has a Nationa Po i e, the aw has provided or theesta ishment o M ni ipa Po i e For es. Te re evant provision in the So th A ri a Po i e

Servi es A t 1996 is as o ows:“64. (1) Any local government may, subject to the Constitution and this Act,establish-

(a) a municipal police service; or

(b) a metropolitan police service.

(2)(a) Te Minister shall prescribe which provisions o this Act shall apply mutatis mutandis to any municipal or metropolitan police service.

(b) Te Minister may make regulations regarding the establishment o municipal and metropolitan police services, including which categories o local governments may establishmunicipal police services and which categories o local governments may establish

metropolitan police services.(3) Te National Commissioner shall determine the minimum standards o training that members o municipal and metropolitan police services shall undergo.

(4) Legal proceedings in respect o any alleged act per ormed under or in terms o this

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42 Padmana haiah committee Report 2000



Act or any other law, or an alleged ailure to do anything which should have been done in terms o this Act or any other law, by any member o a municipal or metropolitan police service, shall be instituted against the local government concerned and Section 57 shall not be applicable to such legal proceedings.

(5) Te establishment o a municipal or metropolitan police service shall not derogate rom the unctions o the service or the powers, duties or unctions o a member in terms o any law.

(6) Where a municipal or metropolitan police service has been established, such service shall be represented by at least one o its members designated by such service or that purpose on every community police orum or sub- orum established in terms o section19 in its area o jurisdiction.”

5.4.5 Te commission is o the view that there is need to onstit te a simi ar o a po i eservi e in igger ities with pop ations more than one mi ion and this sho d e extendedto other ities and r ra areas in a phased manner. Te o a po i e sho d e empoweredto dea with o en es pres ri ed nder m ni ipa and o a laws.

5.4.6 ra management is a rapid y evo ving n tion espe ia y in the ight o rapidr anisation. With the in reasing n m er o vehi es eading to oth ongestion and

environmenta po tion, tra management in ities is a major task. In a most a majorities there is a wing o the ity po i e dea ing with tra ontro . A tho gh reg ation o ow o tra is done y the tra po i e, there is a m tip i ity o agen ies dea ing with theroader iss e o r an tra management. Providing engineering so tions, management o

parking, providing pedestrian a i ities et omes within the p rview o r an o a odies.own p anning, whi h impa ts tra density, is done y the Deve opment A thorities,i ensing o drivers and registration o motor vehi es is done y the Motor Vehi es

Department and tra vio ations are hand ed y the tra po i e. In the ragmentedstr t re that exists at present an integrated approa h to tra management is not possi e.Tere ore, it is re ommended that a aspe ts o tra management sho d e entr stedto the r an o a odies. o egin with this o d e done in metropo itan ities withpop ation ex eeding one mi ion and grad a y extended to other r an and r ra areas.Tis move wo d a so req ire the provision o the m h needed en or ement wing to the

ity governments. Tis is a so in ine with demo rati de entra isation and strengtheningo o a odies. However as patro ing a nd tra management on the Nationa Highwaysis e oming in reasing y important, that sho d e entr sted to the law and Order po i e. Within the ity imits, this n tion may e dis harged y the r an o a ody.


a. A task orce ma be constituted in the Ministr o Home A airs to identi those laws whose implementation, including investigation o violationscould be trans erred to the implementing departments. A similar task

orce should look into the state laws in each state.b. o start with, departments like the State E cise, Forest, ransport and

Food with en orcement divisions ma take some o icers rom thepolice department o appropriate seniorit on deputation and orm smallinvestigation out ts b drawing departmental o cers rom corresponding ranks or the purpose o investigating cases o violations o appropriatelaws; a ter a transition period, the concerned department should endeavourto acquire e pertise and build capacit to cope with the investigation work withits own departmental o cials.

c. A Municipal Police Service should be constituted in Metropolitan citieshaving population o more than one million. Te Municipal Police should beempowered to deal with the o ences prescribed under the municipallaws.

d. Te unction o ra c control (along with tra c police) ma be trans erred tothe local governments in all cities having a population o more than onemillion.

5.5 Te Metropolitan Police Authorities

5.5.1 With rapid r anisation and with some ities having pop ation o more than that o a sma state, it is n ort nate that there is no me hanism o a o nta i ity o the po i e tothe peop e o the ity. Te a sen e o s h a me hanism a ienates the peop e rom the po i eon the one hand and makes po i e ess responsive to itizens’ needs on the other. Tere have

een e orts to have Moha a committees t these are not an adeq ate s stit te or propera o nta i ity me hanisms where itizens have a voi e in po i ing. In the uSA the o agovernments have tota ontro over the po i e. Tere are Po i e A thorities to s pervise apo i es in the uK; even the london Metropo itan Area whose Po i e chie dire t y reportsto the Home Se retary, now has a Metropo itan Po i e A thority. Te Metropo itan Po i e A thorities in uK have wide ranging powers in ding powers to re ommend appointmento the Po i e chie .

5.5.2 Te commission there ore ee s that i o r po i e has to e ome ‘ omm nity- entri ’,a eginning m st e made y giving a voi e to its itizens in matters o po i ing. Tis

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members will have no e ecutive unctions nor can the inspect or callor records. Once the s stem stabilizes, this Authorit could be vested

with more powers in a phased manner.

5.6 Reducing Burden on Police -Outsourcing Non Core Functions:

5.6.1 As mentioned ear ier, the po i eper orm a n m er o n tions, whi hdo not req ire the spe ia apa i ity and know edge o po i e n tions. Ithas een s ggested that these n tions

an there ore e o tso r ed eitherto government departments or toprivate agen ies so that the po i e

an on entrate on its ore n tions.Some o the n tions that an eo tso r ed are the de ivery o o rts mmons, veri ation o ante edentsand addresses, whi h are req ired inthe ontext o passport app i ations, jo veri ations et . In the atter ase,s h veri ations an a so e done y the reven e or other o a a thorities with inp ts rom the po i e stationregarding a rimina re ord i any. Tecommission is o the view that some o these non ore n tions o the po i esho d e o tso r ed or redistri tedto other government departments orprivate agen ies. A s ggested ist o s h

n tions is given in a e 5.2.43


a. Each State Government should immediatel set up a multi-disciplinar task orce to draw up a list o non-core police unctions that could be outsourced

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o d e done y having Metropo itan Po i e A thorities in a ities with pop ationover one mi ion. Tis A thority sho dhave nominees o the State Government,e e ted m ni ipa o n i ors, and eminentnon-partisan persons to e appointed y the government. A tho gh, giving sweepingpowers to s h A thority as in some

o ntries ike the uK, immediate y, may note desira e, it o d e given some powers

initia y and grad a y its ro e and powerso d e expanded.

5.5.3 Tis A thority sho d have powersto p an and oversee omm nity po i ing,improving po i e- itizen inter a e, s ggesting ways to improve q a ity o po i ing, approveann a po i e p ans and to review the working o s h p ans. Te A thority sho d

not, however, inter ere in the ‘operationan tioning’ o po i e. In order to sa eg ard

this, it sho d e stip ated that individ amem ers wi have no exe tive n tions nor an they inspe t or a or re ords or inter erein matters o trans ers or postings.


a. All cities with population above one million should have MetropolitanPolice Authorities. his Authorit should have powers to plan andoversee communit policing, improving police-citizen inter ace,suggesting wa s to improve qualit o policing, approve annual police plansand review the working o such plans.

b. he Authorities should have nominees o the State Government,elected municipal councilors, and non partisan eminent persons to beappointed b the government as Members. An elected Member shouldbe the Chairperson. his Authorit should not inter ere in the‘operational unctioning’ o the police or in matters o trans ers andpostings. In order to ensure this, it should be stipulated that individual

43 So r e:Privatisation and demilitarization in policing;S N Pradhan; Jo rna o SVP Nationa Po i e A ademy; Jan ary-J ne 2002.



to other agencies. Such unctions should be outsourced in a phasedmanner.

b. Necessar capacit building e ercise would have to be carried out orsuch agencies and unctionaries in order to develop their skills in these

areas.5.7 Empowering the ‘Cutting Edge’ Functionaries

5.7.1 As per the Indian Po i e commissiono 1902, the d ties pres ri ed or the ttingedge n tionary o po i e, i.e. the onsta e, were o a me hani a type, ere t o any dis retion or app i ation o mind. oday,the onsta e has to intera t with peop e,and itizens expe t to e treated with respe tand sensitivity to their pro ems. Tere may

e o asions when a onsta e has to takede isions witho t waiting or instr tions

rom his s periors. As the onsta ary iss a y the rst inter a e o the po i e with

the p i , any re orm to e meaning hasto egin at this eve .

5.7.2 he Nationa Po i e commission(1977) re ommended major improvementsin the servi e onditions o onsta es ands ggested eq ating a onsta e to a ski ed worker or determining his/her pay str t re.

he Padmana haiah committee (2000)re ommended that a andidate sho d havepassed the 10th standard or eing e igi e to

e appointed as a onsta e. It a so s ggestedtwo years o rigoro s ind tion training.

5.7.3 he PADc in the dra t egis ativeorm ation has re ommended:

“Rank structure at the primary levels o Civil Police

(1) Te rank structure o Group ‘C’ posts in the Civil Police, in the ascending order, shall consist o Civil Police O cer grade II, Civil Police O cer Grade I,Sub-Inspector and Inspector.

(2) Te direct recruitment to group ‘C’ posts in the Civil Police, other than inthe ministerial and technical cadres, a ter the coming into orce o this Act, shall be made only to the ranks o Civil Police O icer Grade II and Sub-Inspector:Provided that the quota or direct recruitment to these two ranks shall be so xed as to provide a air balance between di erent ranks and prospects or promotion toeligible and meritorious o cers at each level within a period o 8 to 10 years.(3) Every Civil Police O icers Grade II will undergo three years intensive training be ore being posted to the Service as a stipendiary cadet, and will, uponsuccess ul competition o training, have a graduation degree in police studies.

heir scales o pay and conditions o service shall there ore be commensurate with ranks in other services under the state, which require similar levels o educational quali cations and training.”

5.7.4 A serio s and persisting ma ady in the ivi po i e str t re is the nd e re ian e on

n m ers - q antity, rather than the q a ity, o the personne . Te growing emphasis on thearmed wing o the po i e as distin t rom re ian e on the ivi po i e is an indi ator o this.Tis distortion needs to e re ti ed. Te a ied aspe t is the nthinking adheren e to the

opsided po i e strength – majority o the tota po i e strength in most states is omposed o the armed wing and near y 80-83% o the ivi po i e is omposed o personne e ongingto the ranks o onsta es and head onsta es. In other words, e d eve po i ing, wheth er

r an or r ra , is expe ted to e done thro gh this owest eve o po i e.

5.7.5 Te sit ation is rther aggravated y the nsatis a tory iving and working onditionsand the demeaning manner in whi h onsta es are o ten treated y their s periors as weas po iti ians and the p i . It is, there ore, not s rprising that the se respe t, mora eand on den e with whi h they start their areer, gets eroded in a very short time. Addedto this is the ontin ation o the order y system whi h red es onsta es to the stat s o domesti servants. It wo d o vio s y e nrea isti to expe t s h a For e to e hea thy,motivated, sensitive or itizen entri . As stated at the start o this hapter, re orms in theorganisation o the po i e have to e the riti a rst step in ringing a o t a asting ands stantive hange in po i e pra ti es and ehavio r, espe ia y at ower eve s. Te rst step wo d e to pgrade the ski s and training to the tting edge eve o the po i e servi eso that they are appropriate y engaged to hand e the ha enges o present day po i ing.F rther, the remova o the order y system wo d a so he p the onsta ary o s on theirprime d ty, po i ing. Te order y system sho d a so e immediate y a o ished.104 105




5.7.6 Present y, the onsta es are genera y matri ates. A po i eman today req ires higherana yti a ski s, more initiative, roader thinking and etter de ision making apa i ities. With in reasing awareness among the itizens the emphasis in po i e is shi ting rom ‘ rawnto rain’. As a part o the re orms pro ess, an immediate and important rst step wo d

e to restr t re the present eve s o re r itment to the po i e servi e on the ivi po i e

side. Instead o re r iting onsta es who are genera y matri ates it wo d e etter tore r it grad ates at the starting point in the civi Po i e and give them the nomen at reo Assistant S -Inspe tors (ASI).

5.7.7 It is estimated that near y 700 grad ate Assistant S -Inspe tors o d e re r itedann a y against a va an y o a o t 1000 onsta es, and that too witho t any nan ia

rden. Tese o ers pon omp etion o rigoro s ind tion training o d e assignedto vario s ran hes. Tese ASIs o d then expe t to e promoted p to the eve o DySPsover a period o time. Tis y itse wo d serve as an e e tive motivating a tor or s hpersonne to maintain high eve s o integrity, pro essiona ism and persona ehavio r.

5.7.8 Te re r itment to the Armed Po i e nits/batta ions may ontin e as at presentt the pro ed re or re r itment sho d e so designed as to ens re that it is tota y

transparent and ree rom any stigma o orr ption, asteism, gender, omm na ism and

simi ar other iases. Teir training wi have to e drasti a y re ashioned and imparted ona ontin ing asis.

5.7.9 An important aspe t in the re r itment pro ed re o po i emen and po i e o ersis that it sho d e tota y o je tive and transparent. o inspire on den e in a se tionso so iety it is eq a y important that the omposition o the po i e or e sho d re e tthe omposition o the so iety they are req ired to serve. o a hieve this, po i e servi esho d have air representation rom a se tions o so iety in ding women. It has eeno served that n ess re r itment amps are organised in a wide y dispersed manner, ertainse tions o so iety may hesitate to ome to the traditiona re r itment entres. A moreproa tive approa h is there ore req ired to attra t persons rom a se tions o the so iety to join the po i e or e.


a. he e isting s stem o the constabular should be substituted with recruitment o graduates at the level o Assistant Sub-Inspector o Police (ASI).

b. Tis changeover could be achieved over a period o time b stopping recruitment o constables and instead inducting an appropriate

number o ASIs.c. Recruitment o constables would, however, continue in the Armed Police.d. Te orderl s stem should be abolished with immediate e ect.e. Te procedure or recruitment o police unctionaries should be totall

transparent and objective.. A rmative action should be taken to motivate persons rom di erent sectionso societ to join the police service. Recruitment campaigns should beorganised to acilitate this process.

5.8 Wel are Measures or the Police

5.8.1 Improvements in po i e per orman e are ose y inked to the mora e o po i emen,parti ar y o tting edge n tionaries, whi h in t rn depends on their workingenvironment and servi e onditions. long working ho rs, to gh working onditions,me hani a nat re o jo , inadeq ate we are meas res and ins ient ho sing meansthat the po i e o ia s are onstant y nder press re, sapping their mora e and motivation.Radi a improvements in the re r itment, training, emo ments, working and iving

onditions are essentia to improve their mora e, red e their r stration and in rease theirpro essiona ism. Ear ier in the Report, re ommendations have een made or raising theq a i ations or the entry eve posts in po i e and ndertaking re r itment at a higher

eve than at present and or a o ition o the degrading order y system. Tese om ined with etter working onditions, improved promotion prospe ts and jo enri hment ango a ong way towards improving mora e and per orman e. In addition, priority has to egiven to we are meas res s h as etter ed ation or hi dren, medi a are, ho sing et .so that the there is an overa improvement in their working and iving onditions.

5.8.2 Te Nationa Po i e commission had divided we are meas res or the po i e intotwo road ategories, the rst overing items s h as pension/grat ity, medi a a i ities,ho sing et . whi h are to e nded entire y y the government and th e se ond omprisingmis e aneo s we are meas res s h as re reationa and entertainment a i ities, we are

entres to provide work or mem ers o the ami ies, nan ia aid or their hi dren et . or whi h it s ggested the instit tion o a we are nd to e part y nded y the governmentand part y y the po i e personne themse ves.

5.8.3 ime o nd meas res or improving satis a tion eve s among po i e personne y provision o adeq ate ho sing and other we are meas res are req ired to e taken pon an rgent asis. Provision o adeq ate eave, at east or one month ea h year, on thepattern o the armed or es wo d a so he p provide a sa ety va ve or po i e personnes ering rom physi a and psy ho ogi a exha stion d e to trying working onditions.

106 107




to the Distri t Magistrate and the State Government. However, a o nta i ity to theDistri t Magistrate has eroded with the passage o time. Te setting p o the NationaH man Rights commission and the States H man Rights commissions has ro ght insome e ement o a o nta i ity or h man rights vio ations.

5.9.4 Te Nationa Po i e commission went into the iss e o departmenta a o nta i ity atgreat ength. Tey on ded that e e tivenesso interna a o nta i ity systems is tota y dependant on the determinants sed

or eva ating po i e per orman e. hey s ggested that a omprehensive set o determinants e sed or eva ating po i eper orman e at vario s eve s. As regards

omp aints against the po i e, the NationaPo i e commission re ommended thata omp aints sho d e dea t with y thepo i e department. he Padmana haiahcommittee a so endorsed the view o theNationa Po i e commission t made a

distin tion that where a omp ainant is notsatis ed with the a tion taken y the po i e,he sho d have a ess to an independentcomp aints A thority. he committeere ommended the constit tion o a non-stat tory a thority to e headed y the Distri t Magistrate with an Additiona Sessions J dge, the S perintendent o Po i e and an eminent itizen as mem ers.

5.9.5 Te Padmana haiah committee a so s ggested the onstit tion o an independentInspe torate o Po i e. Attention was drawn to Her Majesty’s Inspe torate o consta ary whi h has een n tioning very e e tive y in the united Kingdom and advises the Ministeron the e ien y o the po i e or e.

5.9.6 Te S preme co rt in Writ Petition (civi ) No.310 o 1996, Prakash Singh andothers vs union o India has dire ted the onstit tion o State and Distri t comp aints A thorities.

5.9.7 Te PADc has s ggested that in addition to the a ready existing me hanisms,a o nta i ity o the po i e sho d e rther ens red thro gh the Po i e Per orman eand A o nta i ity commission and the Distri t A o nta i ity A thority. Te PADc

108 109


Te po i e - pop ation ratio needs to e improved so that po i emen are not req ired to work na epta y ong ho rs on a reg ar asis as this impa ts their mora e, e ien y and e e tiveness. Te possi i ity o providing additiona a owan es to over risk as we asovertime work in di t ir mstan es sho d e exp ored parti ar y or those po i e

n tionaries who work in the e d.


a. Rational working hours should be strictl ollowed or all policepersonnel.

b. Wel are measures or police personnel in the orm o improved working conditions, better education acilities or their children, social securit measuresduring service, as well as post retirement should be taken up on priorit .

c. Major housing construction programmes or police personnelshould be taken up in a time bound manner in all states.

5.9 Independent Complaints Authorities

5.9.1 Te operation o e e tive grievan e redressa systems against p i a thorities is apre-req isite o good governan e sin e it promotes oth a o nta i ity and transparen y. As the move now is towards greater a tonomy o the po i e, this ne essitates more e e tivep i grievan e redressa me hanisms.

5.9.2 Tere is a view that there is no need or a separate comp aints A thority againstthe po i e when there is no s h me hanism or other departments or organizations o government. Tis view, we e ieve is not orre t. Te po i e have an inherent a thority to

rtai the persona i erty o any itizen, even i or a short period e ore intervention y a j di ia pro ess. No other arm o government has s h powers. Even the s ightest possi i ity o a se o this a thority is a matter o grave on ern, e a se it an res t in ex esses or

r ta ity. Even a aw a iding itizen has an inherent ear o a po i eman in ni orm. Tisis not so in the ase o other government personne . Indeed in an in reasing y transparentand itizen entri government, me hanisms or redressa o grievan es o itizens are morereadi y avai a e in the ase o the average government o ia than or a po i e o ia .u timate y, no on ept eq a to ‘po i e r ta ity’ exists with respe t to other government

organizations. In an environment where the ndamenta right to i erty is at stake, it isessentia to have an independent Po i e comp aints A thority.

5.9.3 At present, the po i e are a o nta e to J di ia o rts regarding rime investigation. A po i e o er is a so a o nta e to his s periors or his a tions and is r ther a o nta e



has re ommended the setting p o a State Po i e A o nta i ity commission headed y a retired High co rt J dge. Tis commission wo d enq ire into a egations o serio smis ond t against po i e personne . It has a so een s ggested that there sho d e a Distri t A o nta i ity A thority to monitor departmenta enq iries into ases o omp aints o mis ond t against po i e personne .

5.9.8 Te commission has ana ysed thesystems prevai ing in other o ntries. In theuK, the rst stat tory omp aints system was introd ed in Eng and and Wa es whenthe Po i e A t, 1964 granted chie O ersso e responsi i ity or taking a tion on

omp aints against the po i e. Te Po i e A t, 1976 reated the Po i e comp aintsboard (Pcb), an independent ody asedin london with responsi i ity or reviewing

omp eted investigations o omp aints. TePcb did not have any investigative powers,

t it o d review an investigation and ask

a chie O er to ommen e dis ip inary pro eedings, whi h wo d e heard y adis ip inary tri na onsisting o two Pcbmem ers. As the Pcb was not o nd to ee e tive eno gh, the Po i e and criminaEviden e A t,198444 onstit ted the Po i ecomp aints A thority (PcA). Te PcA’sstr t re and responsi i ities were essentia y the same as the Pcb t the prin ipa

hange was that its mem ers o d s pervisepo i e investigations into omp aints. A me hanism or o a reso tion o ess serio s omp aints was a so provided. In May 2000,the government started ons tation on a new omp aints system or omp aints againstthe po i e and a ons tation do ment setting o t the emerging ramework – ‘comp aints

against the Po i e - Framework or a New System’ – was p ished. Tis minated inthe Po i e Re orm A t, 200245. Se tion 9 o the Po i e Re orm A t, 2002 esta ished theIndependent Po i e comp aints commission. Its n tions in de:

• “(a) the handling o complaints made about the conduct o persons serving with the police;

• (b) the recording o matters rom which it appears that there may have been conduct by such persons which constitutes or involves the commission o a criminal o ence or behaviour justi ying disciplinary proceedings;

• (c) the manner in which any such complaints or any such matters as are mentioned in paragraph (b) are investigated or otherwise handled and dealt with.”

5.9.9 Te So th A ri an Po i e A t a so esta ished an Independent comp aints Dire torate.46 Te New York city Po i e has an independent civi ian comp aints Review board. New So th Wa es in A stra ia passed the Po i e Integrity commission A t in 1996. Te prin ipao je tive o the A t was“to establish an independent, accountable body whose principal unctionis to detect, investigate and prevent police corruption and other serious police misconduct”.

5.9.10 Te Prime Minister Dr. Manmohan Singh, whi e addressing S perintendents o Po i e on 1st Septem er, 2005, stated that:

“Te Home Minister may also consider setting up an independent oversight mechanismto handle complaints against police misconduct.”

5.9.11 In the mode A t s ggested y PADc, the Distri t A o nta i ity A thority has to eonstit ted to monitor departmenta enq iries into ases o omp aints o mis ond t against

po i e personne . Tis is not q ite in ine with what has een dire ted y the S preme co rt.Te S preme co rt has dire ted that the re ommendations o the comp aint A thoritiesat the Distri t and the State eve s sha e inding. In its Report on Ethi s in Governan e,the commission has re ommended the onstit tion o a lo a bodies Om dsman to ook into omp aints against o ia s o o a odies. Sin e the lo a bodies Om dsman wo dhave to investigate omp aints against a the r an and r ra o a odies and their o ia s,it may not e desira e to rden it any rther. A separate Distri t Po i e comp aints A thority sho d there ore e onstit ted or a egations against the po i e. Tis may e

onstit ted or a distri t or a gro p o distri ts. Te Distri t Po i e comp aints A thority sho d not inq ire into omp aints re ating to orr ption whi h ome nder the p rview o lok Ay kta t sho d o s on other types o p i grievan es against the po i es h as non registering o omp aints, genera highhandedness, et . Te Distri t Po i ecomp aints A thority sho d have an eminent itizen as its chairperson, with an eminent

awyer and a retired government servant as its mem ers. Te chairperson and Mem erso the Distri t Po i e comp aints A thority sho d e appointed y the State Governmentin ons tation with the chairperson, State H man Rights commission or with the Statelok Ay kta. A government o er sho d e appointed as Se retary o the Distri t Po i e

110 111


44 So r e: http://swar . o. k/a ts/1984Po i eandcrimina Eviden eA t.shtm45 Extra ted rom the we site o IPcc: http://www.ip .gov. k/

46 chapter 10, So th A ri an Po i e A t, 1995.



comp aints A thority. Tis A thority sho d have powers to enq ire aga inst mis ond tor a se o power against the po i e o ers p to the rank o Dep ty S perintendent o Po i e. It sho d exer ise a the powers o a ivi o rt. Te A thority sho d e empoweredto investigate any ase itse or ask any other agen y to investigate and s mit a report. TeDis ip inary A thorities sho d y and arge a ept the re ommendations o the Distri t

Po i comp aints A th ority.

5.9.12 A State Po i e comp aints A thority (SPcA) sho d e onstit ted to ook into aseso serio s mis ond t y the po i e. It sho d a so ook into omp aints against o ers o the rank o S perintendent o Po i e and a ove. Te State Po i e comp aints A thority sho d have a retired High co r t J dge as chairman. Nominees o the State Government,the State H man Rights commission, State lok Ay kta, the State Womens’ commission,and an eminent h man righ ts a tivist sho d e the mem ers o the comp aints A thority.Te chairperson and the eminent h man rights a tivist sho d e appointed y the StateGovernment ased on the re ommendations o the State H man Rights commission.In ase the State H man Rights commission has not een onstit ted, then the Statelok Ay kta may e ons ted. A government o er sho d o iate as Se retary o the A thority. It sho d have the a thority to ask any agen y to ond t an enq iry or do theinq iry itse . It sho d a so e empowered to enq ire into or review a ase wh i h is e ore

any Distri t Po i e comp aints A thority i it ee s that it is ne essary to do so in p iinterest. Te State A thority sho d a so monitor the n tioning o the Distri t Po i ecomp aints A thorities.

5.9.13 In order to prevent rivo o s and vexatio s omp aints, it may e provided that i ponan enq iry it is o nd that the omp aint was rivo o s or vexatio s, then the comp aints A thority sho d have the power to impose a reasona e ne on the omp ainant.

5.9.14 Te comp aints A thority proposed a ove wo d e e e tive on y i they areeasi y a essi e to the aggrieved person. Te pro ed re or odging a omp aint sho d emade very simp e. e hno ogy provides vario s so tions or this. Te ing o omp aints

o d e ‘we -ena ed’. As te ephone onne tivity is more wide y avai a e than internet,the comp aints A thority sho d have a i ities or re ording omp aints over te ephonea so. Tis o d even e a tomated thro gh the se o Intera tive Voi e Re order (IVR)systems.


a. A District Police Complaints Authorit should be constituted to enquireinto allegations against the police within the district. Te District Police

112 113


Complaints Authorit should have an eminent citizen as its Chairperson, with an eminent law er and a retired government servant as its Members.Te Chairperson and Members o the District Police Complaints Authorit should be appointed b the State Government in consultation with the

Chairperson o the State Human Rights Commission. A government o cershould be appointed as Secretar o the District Police Complaints Authorit .

b. Te District Police Complaints Authorit should have the powers to enquire intomisconduct or abuse o power against police o cers up to the rank o Deput Superintendent o Police. It should e ercise all the powers o a civilcourt. Te Authorit should be empowered to investigate an case itsel or ask an other agenc to investigate and submit a report. Te Disciplinar Authoritiesshould normall accept the recommendations o the District Authorities.

c. A State Police Complaints Authorit should be constituted to look intocases o serious misconduct b the police. Te State level Authorit should alsolook into complaints against o cers o the rank o Superintendent o Police andabove. Te State Police Complaints Authorit should have a retired High Court Judge as Chairperson and nominees o the State Government, the State Human

Rights Commission, the State Lok A ukta, and the State Women Commission. Aneminent human rights activist should be also be the member o the Complaints Authorit . Te Chairperson and the Member o the Authorit (eminent humanrights activist) should be appointed b the State Government based on therecommendations o the State Human Rights Commission. (In case the StateHuman Rights Commission has not been constituted, then the State Lok A ukta ma be consulted). A government o cer should o ciate as the secretar o the Authorit . Te Authorit should have the power to ask an agenc to conduct an enquir or enquire itsel . Te Authorit should also be empowered to enquireinto or review an case o police misconduct, which is be ore an District PoliceComplaints Authorit , i it nds it necessar in public interest to do so.

d. It should be provided that i upon enquir it is ound that the complaint wasrivolous or ve atious, then the Authorit should have the power to

impose a reasonable ne on the complainant.

e. Te State Police Complaints Authorit should also monitor the unctioning o the District Police Complaints Authorit .. Te Complaint Authorities should be given the powers o a civil court. It should

be mandated that all complaints should be disposed o within a month.



a omp aint has een made or not, sho d e inq ired into y the proposed Inspe torateas an ongoing exer ise to ens re po i e a o nta i ity. Te Inspe torate o Po i e wo ds mit its inq iry report to the PPAc and a so to the SPcA. Te SPcA sho d se thereport as an inp t, in ase it is ond ting an inq iry in to any s h in ident.

5.10.4 Recommendations:a. In addition to ensuring e ective departmental inspections, an Independent

Inspectorate o Police ma be established under the supervision o the PolicePer ormance and Accountabilit Commission to carr out per ormanceaudit o police stations and other police o ces through inspections andreview o departmental inspections. It should render pro essional advice

or improvement o standards in policing and also present an annual report to the Police Per ormance and Accountabilit Commission.

b. For all cases o deaths during ‘encounters’ the Independent Inspectorate o Police should commence an enquir within 24 hours o the incident. TeInspectorate should submit its report to the PPAC and the SPAC

c. he working o the Bureau o Police Research and Development needs to be strengthened b adequate inancial and pro essional

support, so that it could unction e ectivel as an organization orinter alia anal sis o data rom all parts o the countr and establishstandards regarding di erent aspects o the qualit o police service.

5.11 Improvement o Forensic Science In rastructure - Pro essionalisation o Investigation

5.11.1 As pointed o t ear ier, India, whi h had the rst ngerprinting a oratory in the wor din 1897, has proportionate y ewer orensi a oratories than other deve oped o ntries.Inadeq ate in rastr t re eads to transporting o ase materia to distant p a es, res tingin de ays and giving s ope or tampering, orr ption, and in ompeten e. As a res t, thereis over-dependen e on either ora eviden e whi h an e nre ia e (witnesses are o ten

o ght or oer ed) or re o rse to r ta third degree methods to extra t on essions. Fina y,the a sen e o ega o nse at the stage o rime investigation is eading to appa ing y ow rates o onvi tions.

5.11.2 Forensi s ien e whi h is high y advan ed in deve oped o ntries is not adeq ate y sed y o r po i e in investigation o rime. A arge n m er o ases are investigated ased

on admissions and on essions y the a sed o ten extra ted nder d ress. In the ong r n,

5.10 An Independent Inspectorate o Police

5.10.1 At present, the departmenta hierar hy is responsi e or ens ring that the po i en tions e ient y. However, the system o rigoro s inspe tion o po i e stations and then tioning o po i e o ers y higher departmenta o ers, has, over the years, e ome

a ro tine ine e tive exer ise. cases ike‘Nithari’47 ring to the ore the weaknesseso departmenta inspe tion me hanisms. Tecommission wo d reiterate the need ore e tive interna inspe tions. It is howeverre ognised that ro tine inspe tions wo dnot ead to s stantia systemi hangesas needed rom time to time. In some

o ntries ike the uK an independentInspe torate o Po i e has een onstit tedto promote e i ien y and e e tivenesso po i ing and a so to ens re that agreedstandards are a hieved and maintained. TePadmana haiah committee re ommended

the setting p o an independent Inspe torate o Po i e. Te commission ee s that thereare advantages in setting p o an independent Inspe torate o Po i e in ea h state nderthe s pervision o the State Po i e Per orman e and A o nta i ity commission.

5.10.2 At present, tho gh the rimina aws a re ni orm thro gho t the o ntry, there arevariations in po i e n tioning rom state to state. To gh some variations are ne essary

onsidering the o a onditions, there sho d a so e some ommon standards or n tionso po i e, espe ia y the q a ity o servi es provided y them. Te task o identi ying these

ommon standards o d e entr sted to th e b rea o Po i e Resear h and Deve opment.Tese standards o d then e pdated reg ar y in the ight o experien e gained andadopted as the en hmark or inspe tions.

5.10.3 Te re ent in idents o death in stage-managed po i e en o nters have on e againnders ored the need or a strong a o nta i ity me hanism. Te proposed comp aints

A thority, no do t, wo d investigate any ompaints in this regard, however, in order totota y e iminate this na epta e pra ti e, a pro essiona a o nta i ity me hanism sho da so e instit tiona ised. Tere ore a ases o death s in en o nters, irrespe tive o whether

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47 In Nithari vi age in uttar Pradesh, a o t 20 hi dren disappeared over a period, and s seq ent y, severa odies were re overed rom a drain.Te po i e was a sed o apathy and indi eren e.



most s h ases res t in a q itta esides a sing vio ation o h man rights and r ta isingthe po i e on the one hand and etting go o the rimina s on the other. Optim m ti isationo the too s o orensi s ien es an ead to etter investigation o rimes on the one handand minimisation o a se o h man rights on the other.

5.11.3 Te Padmana haiah committee went into this aspe t at great ength. It o served: “Tere are our issues relating to orensic science, which needs to be examined. Te rst one is how to build world class orensic science ac ilities. Te second is how to ensure that the police use the orensic science acilities in criminal investigation. Te third one is to ensure that the orensic reports achieve a reputation or integrity, impartiality and accuracy o their ndings. Te ourth one is to see that the orensic science reports are available very quickly”.

5.11.4 A core Gro p was onstit ted y the Nationa H man Rights commission to makea omprehensive examination o a aspe ts o orensi s ien e servi es in India and to makeappropriate re ommendations. Te core Gro p, whi h s mitted its Report48 in 1999,has a so made severa re ommendations on e e tive se o orensi s ien e in the rimina j sti e de ivery system. Te core Gro p examined instit tiona , ega , personne , nan iaand te hni a iss es and made omprehensive re ommendations on ea h one o these.

5.11.5 With regard to the organisation o th e orensi s ien e instit tions, the core Gro pstated that the str t re within these organisations is very hierar hi a , ompartmenta ised,insensitive, rea rati and rigid and that the interna t re is in en ed y the po i eenvironment. Te core Gro p o served that in most states, the orensi organisationsare a part o the po i e set p and this a e ts their s ienti work. Tey are a so woe y short o nds and q a i ed sta . A this o p ed with indis riminate re eren es made y investigating o ers has ed to a arge penden y at the orensi a oratories.

5.11.6 Te core Gro p a so noted the ega a nae in the se o orensi s ien e servi esin investigation and tria . It pointed o t that the crPc and the Indian Eviden e A t donot provide or mandatory o e tion, preservation, examination o orensi materia , and

or its appropriate ega stat s in the rimina j sti e pro ess.

5.11.7 Te commission has examined the report o the core Gro p and agrees with it.

based on the re ommendations made y the core Gro p, the commission makes theo owing re ommendations:

116 117



a. Tere is need to set up separate National and State Forensic Science Organisationsas state-o -the-art scienti c organizations . At the state level these organisationsshould unction under the supervision o the Board o Investigation.

b. here is need to e pand the orensic acilities and upgrade themtechnologicall . Ever district or a group o districts having 30 to 40lakhs population should have a orensic laborator . Tis should be achievedover a period o ve ears. Government o India should earmark unds

or this purpose or assisting the states under the police modernisationscheme. All the testing laboratories should be accredited to a National Accreditation Bod or maintaining qualit standards.

c. Te s llabus o MSc Forensic Science should be continuousl upgraded in line with international trends.

d. Necessar amendments should be e ected in the CrPC and other lawsto raise the level and scope o orensic science evidence and recognizeits strength or criminal justice deliver .

5.12 Strengthening Intelligence Gathering

5.12.1 Inte igen e is ear y one o the most important inp ts or maintaining p i order.In the states, inte igen e gathering is done y the Spe ia bran h (Inte igen e Wing) o thepo i e and the reg ar po i e stations. It is g enera y o served that the inte igen e gatheringe orts are devoted main y to gathering in ormation a o t major aw and order pro ems,name y, ike y agitations rom st dents, a o r nions, so ia and omm na gro ps et .Experien e indi ates that adeq ate attention is not paid to o e tion o inte igen e re atingto ommission o rimes. It is imperative that the inte igen e gathering ma hinery sho dgive adeq ate attention to prevention o rimes a so.

5.12.2 Even today, the asi so r e or a on eiva e in ormation remains the po i estation, a tho gh there are Spe ia bran hs in a the states or gathering inte igen e. Indeed,

o e tion o inte igen e is the responsi i ity o a po i emen. In ormation is o e tedthro gh vario s so r es - the eat onsta e, the tra po i emen, e d visits, intera tion

with o ia s o other departments, st d y o FIRs, se o in ormants et . Neverthe ess, d eto press re o aw and order d ties, s h e orts remain inadeq ate. Press re o work - aw and order d ties - has onsidera y s a kened s h e orts in inte igen e gathering.

5.12.3 Te system o the eat po i e whi h worked we in the past has a en into dis se andin ig ities patro ing is done main y in vehi es. Te eat po i e apart rom giving a sense

48 State o the Art Forensi S ien es: For better crimina J sti e



o se rity to the itizens, was a so an important so r e o in ormation. Te commissionee s that this system needs to e restored and strengthened.

5.12.4 Moreover, with the onstit tion o spe ia ised wings in ea h state, the po i e stationssometimes ee that o e tion o inte igen e is no onger their responsi i ity. It has a so

een o served that o ten the in ormation o e ted as ‘inte igen e’ is a o t an event whi hhas a ready taken p a e. Te Padmana haiah committee s mmarised its o servation a o tinte igen e as o ows:

“ Presently, the intelligence apparatus is not integrated with well de ned hierarchical or collateral linkages. It is neither obligatory on the part o the state police to share intelligence with other intelligence gathering agencies or vice-versa, nor mandatory to act upon it with seriousness that it deserves. Te existing amorphous arrangements whichheavily rely on personal equations and subjective appreciation needs to be replaced by pro essionally worked out institutional arrangements.”

5.12.5 In re ent years, s stantia meas res have een taken to strengthen inte igen egathering and oordination me hanisms have een set p at vario s eve s. Te commission wo d however ike to emphasise that the po i e station and its n tionaries sho d ethe prime so r e or gathering inte igen e. Rapid advan ements in te hno ogy sho d e

y exp oited or inte igen e gathering. A so a me hanism or xing a o nta i ity o inte igen e o ia s and other exe tive o ia s who ti ise s h inte igen e, needs to eevo ved.


a. Te intelligence gathering machiner in the eld needs to be strengthened andat the same time, made more accountable. Human intelligence should becombined with in ormation derived rom diverse sources with the ocus onincreased use o technolog . Adequate powers should be delegated to intelligenceagencies to procure/use latest technolog .

b. Intelligence agencies should develop multi-disciplinar capabilit b utilising services o e perts in various disciplines or intelligence gathering and processing.Su cient powers should be delegated to them to obtain such e pertise.

c. Intelligence should be such that the administration is able to use it to act intime b resorting to con lict management or b taking preventivemeasures.

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49 Tis committee was headed y Shri M S Gore.

d. Instead o monitoring public places b posting a large number o policemenit would be economical as well more e ective i devices like video cameras/CC Vsare installed in such places.

e. Te beat police s stem should be revived and strengthened.

. In ormants giving in ormation should be protected to keep their identit secret so that the do not ear an threat to li e or revenge. However, the could begiven a masked identit b which the could claim their reward at an appropriatetime and also continue to act as in ormants as the situation develops.

g. In case o major breakdown o public order, the State Police Complaints Authorit should take appropriate action to responsibilit on the police o cers orlapses in acting upon intelligence or on the intelligence o cers in case therehas been a ailure on their part.

5.13 raining o the Police

5.13.1 Re r itment to the Po i e is done at o r eve s - viz., the onsta es, S Inspe tors(SI), Dep ty S perintendent o Po i e (DySP) and Assistant S perintendent o Po i e(ASP). Re r itment to the ranks o consta e, SI, DySP are done y the states on erned.Norma y the onsta es and SIs are re r ited y the Department, DySPs are re r ited y the State P i Servi e commission {ASPs (IPS) are re r ited y the uPSc}.

5.13.2 raining has y and arge een a neg e ted area so ar as the arge n m er o s ordinate n tionaries are on erned. In 1971, a committee on Po i e raining49 was

onstit ted. Tis committee ame to the on sion that po i e training had een ad y neg e ted over the years and training arrangements e t m h to e desired.

5.13.3 O ten the State Po i e raining S hoo s where a arge majority o po i emen ndergotraining are i eq ipped, starved o nds and sta ed y nwi ing instr tors. F rthermore,training methodo ogies are o ten o tdated and o s is more on dis ip ine and regimentation whi e attit dina and ehavio ra improvements are re egated to the a kgro nd.

5.13.4 raining is important not on y or i ding apa ity t a so or ringing attit dinahange. Te apa ity o the po i e to go eyond their individ a e onomi and so iaa kgro nd, to e ome aware, thinking, h manitarian and sensitive to weaker se tions, ane in ated y ontin ing apa ity i ding meas res. Whi e the commission does not

wish to go into the te hni a detai s o training, it wo d ike to emphasise its importan ein po i e n tioning.




a. Deputation to training institutions must be made more attractive in termso acilities and allowances so that the best talent is drawn as instructors.Te Chie o raining in the state should be appointed on the recommendationo the Police Per ormance and Accountabilit Commission.

b. Te instructors should be pro essional trainers and a balanced mi o policemen and persons rom other walks o li e should be adopted.

c. Each state should earmark a ed percentage o the police budget ortraining purposes.

d. For each level o unctionar , a calendar o training or the entire careershould be laid down.

e. Tere should be common training programmes or police, public prosecutorsand magistrates. Tere should also be common training programmes orpolice and e ecutive magistrates.

. raining should ocus on bringing in attitudinal change in police so that the become more responsive and sensitive to citizens’ needs.

g. All training programmes must conclude with an assessment o the trainees,pre erabl b an independent agenc .

h. Modern methods o training such as case stud method should be used.i. Impact o training on the trainees should be evaluated b independent eld

studies and based on the ndings the training should be redesigned.j. All training programmes should include a module on gender and human

rights. raining programmes should sensitise the police towards the weakersections.

5.14 Police and Human Rights

5.14.1 H man rights iss es have een p a ed entre stage in the ast de ade or so indis ssions on po i e re orms. Te Genera Assem y o the united Nations Organisationadopted the universa De aration o H man Rights on 10th De em er, 1948. India

e ame a signatory to the Internationa convention on E onomi , So ia and c t raRights (IcEScR) and the Internationa convention on civi and Po iti a Rights (IccPR)

in 1966. Te Nationa H man Rights commission (NHRc) was esta ished on 12thO to er, 1993 as mandated y the Prote tion o H man Rights A t, 1993.

5.14.2 In re ent years, reports o o rren e o h man rights vio ations have e omein reasing y re ated to o nter-ins rgen y and o nter-terrorism a tivities o the aw

en or ement a thorities. Tat terrorism has e ome a serio s threat to nationa integrity,nationa se rity, rights o the itizens and so ia h armony annot e over-emphasised. TeNationa H man Rights commission has aid stress on oth aspe ts. It a epts that“A manin “khaki” 50 does not shed o his basic human right to li e on wearing “khaki” – violation o his human rights at the hands o terrorists is as much condemnable as the assault on human rights

o other citizens” (Para 3.13, Ann a Report, 2004-2005, NHRc). b t it a so reiterates theview o the S preme co rt o India in D.K. bas vs the State o West benga [1997(1) Scc416]: “ Challenge o terrorism must be met with innovative ideas and approach. State terrorismis no answer to combat terrorism. State terrorism would provide legitimacy to ‘terrorism’. Tat would be bad or the State, the community and above all or the Rule o Law. Te State, there ore,must ensure that various agencies deployed by it or combating terrorism act within the bounds o law and not become law unto themselves. Tat the terrorist has violated the human rights o innocent citizens may render him liable or punishment but it cannot justi y the violation o his human rights except in the manner permitted by l aw”.

5.14.3 Other matters re ated to po i ing and h man rights are on erned with stodiadeaths, en o nter deaths and tort re. Te NHRc has stated in its Ann a Report or 2004-2005 that 74,401 ases were registered in the commission d ring that year o whi h 1500

ases re ated to intimations o stodia deaths, 4 ases o stodia rapes and 122 re ated

to po i e en o nters (para 4.3).5.14.4 Te NHRc has made it very ear that “with every passing year, the evidence be ore the Commission mounts that there must be major police re orms in the country i the humanrights situation is to be improved…” 51 It has stressed that modernisation per se wo d not

ead to redressa o the sit ation. Te most important e ement, in its view, is ins ating theinvestigation work o the po i e rom ‘extraneo s in en es’ and p tting a stop to ar itrary trans ers o po i e o ia s whi h is sed to weaken the apa ity o the po i e to n tion witho t ear or avo r52. In a t, in the ight o omp aints re eived a o t po i e wrongdoings and their omp i ity in the vio ation o h man rights, it has rged the union andState Governments to a t with determination and imp ement the re orms re ommended

y it.53

5.14.5 Te commission agrees with the views o the NHRc. Te commission has a ready examined the iss es identi ed y the NHRc in the oregoing pa ragraphs. Te commissionhas re ommended a str t re so as to ins ate po i e rom nwarranted inter eren e;the emphasis on pro essiona investigation and se o orensi s ien e wo d diss adeinvestigating o ers rom taking re o rse to oer ive methods; the emphasis on trainingis ike y to ring a o t an attit dina hange in po i e; the omp aints a thorities wo dprovide an e e tive grievan e redressa me hanism against po i e high handedness. A

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50 ‘Khaki’ is genera y the o o r o po i e ni orms in India.51 Para 4.50, Ann a Report o NHRc, 2002-2003.52 I id, Para 4.5353 Para 4.39, Ann a Report o NHRc, 2003-2004.



these meas res wo d go a ong way in shering a t re o pho ding h man rights y a en or ement agen ies. Te commission wo d a so emphasise that the h man righ ts o the vi tims and the se rity agen ies sho d e given eq a importan e.

5.15 Communit Policing

5.15.1 comm nity Po i ing has een de nedas:

“Community Policing is an areaspeci c proactive process o working with the community or preventionand detection o crime, maintenance o public order and resolving local con licts and with the objective o providing a better quality o li e and sense o security”.54

5.15.2 A ording to David H bay ey 55,omm nity po i ing has o r e ements:

(1 ) comm ni ty- a sed r imeprevention;

(2) Patro d ep oyment or n on-emergen y intera tion with thep i ;

(3) A tive so i itation o req ests orservi e not invo ving riminamatters; and

(4) creation o me hanisms or grassroots eed a k rom the omm nity.

5.15.3 Te asi prin ip e nder ying omm nity po i ing is that ‘a po i eman is a itizen with ni orm and a itizen is a po i eman witho t ni orm’. Te term ‘comm nity Po i ing’has e ome a zzword, t it is nothing new. It is asi a y getting itizens invo ved in

reating an environment whi h enhan es omm nity sa ety and se rity.5.15.4 comm nity po i ing is a phi osophy in whi h the po i e and the itizens a t aspartners in providing se rity to the omm nity and ontro ing rime. It invo ves ose working etween the two with po i e taking s ggestions rom peop e on the one hand and

sing the itizens as a rst ine o de en e on the other.

5.15.5 Many states in India have taken p omm nity po i ing in some orm or the other.be it ‘Maithri’ in Andhra Pradesh, ‘Friends o Po i e’ in ami Nad , Moha a committeesin bhiwandi (Maharashtra), there have een severa s ess stories rom a over the o ntry. Witho t going into detai s o ea h one o these, the commission wo d ike to ay downa ew prin ip es whi h sho d e o owed in omm nity po i ing:

• It sho d e ear y nderstood that omm nity po i ing is a phi osophy andnot j st a set o a ew initiatives.

• Te s ess o omm nity po i ing ies in itizens deve oping a ee ing that they have a say in the po i ing o their o a ity and a so making the omm nity the

rst ine o de en e. comm nity po i ing sho d not e ome a mere ‘p ire ations’ exer ise t sho d provide an e e tive or m or po i e- itizenintera tion.

• Intera tion with peop e sho d e organised thro gh ‘ omm nity iaison gro ps’ or itizen’s ommittees at di erent eve s.. It sho d e ens red

that these gro ps are tr y representative. Te idea o omm nity po i ing wo d e as ess i it is peop e driven ratherthan po i e driven.

• convergen e with a tivities o

other government departmentsand organisations sho d eattempted.

5.16 Gender Issues in Policing

5.16.1 In spite o the onstit tiona , ega andinstit tiona provisions, women ontin e to

e vi tims o rime and oppressive pra ti esthro gho t their i e. Te Nationa Po i y onEmpowerment o Women a know edges thatthere sti exists a wide gap etween the goa sen n iated in the constit tion, in egis ation,po i ies, p ans and programmes, on the onehand and the sit ationa rea ity o the stat so women in India on the other. It notes thatmajor gender gaps exist in key areas a e ting women empowerment and we - eing, e.g.morta ity rates, sex ratio and itera y. It a sostates that a major mani estation o gender

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54 So r e: comm nity Po i ing; Ashish G pta & PM Mohan; Jo rna o Nationa Po i e A ademy; Jan-J ne 200455 So r e: comm nity po i ing in A stra ia -An appraisa : Working paper: www.a pr.gov.a



disparity is domesti and so ieta vio en e against women. Te high rate o in iden e o rimes is evident rom the statisti s p ished y the Nationa crime Re ords b rea .

Even more a arming are the ower rates o onvi tion in ases o o en es against women

than in ase o other o en es.

5.16.2 he centre or So ia Resear hndertook a st dy to assess how e e tive y

po i e training a ademies in o r stateshave in orporated gender sensitisation intothe training programmes and have madea n m er o ex e ent re ommendations.brie y, the main re ommendations are that gender training sho d e given as m htime as other training and a training sho d have a gender omponent. Tey sho da so e spe i to the spe ia gender req irements o the States/regions ( or examp e,tra king o women in Andhra Pradesh, ema e oeti ide and dowry deaths in arge partso North and West India, et ). It rtherre ommended that the Nationa Po i e A ademy sho d orm ate a gender po i y

or po i e training. It was high ighted thatthere are ve essentia s or a s ess genderstrategy or the po i e: ed ation, training,awareness ampaigns, resear h ana ysis andann a a dits. Tese need to e proper y eva ated and en or ed.

5.16.3 Vario s s rveys and resear h st dieshave revea ed that women are o ten re tant to approa h the po i e in matters re ating tovio en e/ r e ty against them. Even when a ase has een registered, ow onvi tion ratespoint to de ien ies in the investigation and the prose tion. Te enth P an so ght toaddress this pro em in a n m er o ways:

i) stri t en or ement o a re evant ega provisions and speedy redressa o grievan es with a spe ia o s on vio en e and gender-re ated atro ities;

ii) meas res to prevent and p nish sex a harassment at the work p a e, prote tionor women workers in the organised/ n-organised se tors and stri t en or ement

o re evant aws s h as Eq a Rem neration A t, 1976 and Minim m Wages A t, 1948;

iii) reg ar review o rimes against women, their in iden e, prevention, investigation,dete tion and prose tion et . y the centre and States at distri t eve ;

iv) strengthening o Women’s e s in Po i e Stations, Women Po i e Stations, Fami y co rts, Mahi a co rts, co nse ing centres, lega Aid centres; and

v) Widespread dissemination o in ormation on a aspe ts o ega rights, h man

rights and other entit ements o women.

5.16.4 Sin e the po i e is the primary agen y o the rimina j sti e system whi h prote tsh man rights, it is essentia to sensitise po i e personne to gender iss es. A we designedgender training, whi h interna ises responses, an p ay a major ro e in hanging mindsets,

iases and entren hed attit des.

5.16.5 Another aspe t o gender disparity o the rimina j sti e system is the ow representation o women in a wings and espe ia y the po i e. It is estimated that women onstit te on y a o t 2% o the ivi po i e.56 Tis sit ation needs to e redressedthro gh a rmative a tions. Te Nationa commission on Women has made vario sre ommendations regarding the hanges to e made in di erent aws. Tey have a so mades ggestions a o t sensitizing the entire rimina j sti e system. Whi e the re orm o the

rimina j sti e system as s ggested in this Report wo d he p in making investigationmore pro essiona and he p the vi tims in ding women to get j sti e, the commission

ee s that po i e at a eve s needs to e sensitized on gender iss es.


a. Te representation o women in police at all levels should be increased througha rmative action so that the constitute about 33% o the police.

b. Police at all levels as well as other unctionaries o the criminal justice s stemneed to be sensitised on gender issues through well structured training programmes.

c. Citizens groups and NGOs should be encouraged to increase awareness about gender issues in societ and help bring to light violence against women andalso assist the police in the investigation o crimes against women.

5.17 Crimes against Vulnerable Sections

crimes against S hed ed castes and S hed ed ri es

5.17.1 certain se tions o so iety ike the S hed ed castes, S hed ed ri es and hi drenare more v nera e to exp oitation and are o ten easy vi tims o rime. In these ases,maintenan e o the esta ished order or the stat s q o whi h may e exp oitative does not

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56 So r e: Te Padmana haiah committee on Po i e Re orms.



ens re j sti e and there ore is not a g aranteeo permanent pea e and p i tranq i ity.Prote tion and en or ement o the rightso these se tions wo d amo nt to a r eo aw and j sti e in the rea sense o the

term. In their ase, there ore, the ro e o theadministration and po i e e omes a themore important. Tese se tions, parti ar y the S hed ed castes and S hed ed ri es,in addition to eing vi tims o other rimes, are a so vi tims o atro ities, dis riminationand prej di es perpetrated y other se tions o so iety. Arti e 17 o the constit tion o India a o ished nto ha i ity and in rtheran e o the constit tiona provision, theProte tion o civi Rights A t was ena ted in the year 1955 providing or p nishment

or nto ha i ity o en es. Te S hed ed castes and S hed ed ri es (Prevention o Atro ities) A t was ena ted in 1989 to r atro ities on these se tions.

5.17.2 Te Government o India and the State Governments have taken severa meas resto prevent exp oitation o the S hed ed castes and S hed ed ri es. Te commission orS hed ed castes and S hed ed ri es was esta ished in 1978 thro gh an administrative

order and was given constit tiona stat s in 1992, vide the Sixty Fi th Amendmento the constit tion. Te Eighty Ninth Amendment o the constit tion ro ght in toexisten e a separate commission or theS hed ed ri es in 2004. o assist theState Governments in imp ementation o the provisions o the two A ts mentioneda ove, the union Government provides

inan ia assistan e or strengtheningo the administrative, en or ement and j di ia ma hinery, awareness generationand re ie and reha i itation meas res.Te State Governments on their part have

onstit ted ‘civi Rights En or ementce s’ or en or ement o these A ts. State

and Distri t eve committees periodi a y review the imp ementation o these A ts.

5.17.3 However, the imp ementation o these provisions as meas red y the pa e o disposa o ases nder these A ts eaves m h to e desired. under the Sc/S (Prevention

o Atro ities) A t, 32324 ases were nderinvestigation (in ding those ro ght

orward) in a States in 2004; o whi h48.4% were hargesheeted in o rts, 21.38%

osed a ter investigation and 30.22% were

pending with the po i e at the end o 200457

.Moreover, the onvi tion rate nder Te Sc/S (Prevention o Atro ities) A t (30.5%)and Prote tion o civi Rights A t (19.7%)is signi ant y ower than the same nderspe ia and o a aws (86%) as we as IPc

rimes (40.6%). Tis trend, o p ed with thehigh penden y ratio, needs to e addressed.Tese g res moreover do not apt re a s stantia n m er o o en es whi h are notreported or registered.

5.17.4 At times, the assertion o ivi rights y the S hed ed castes and S hed ed ri esis met with hosti e reprisa against them y other se tions o so iety. Sometimes evenen or ement agen ies are re tant to en or e the ivi rights o the weaker se tions or

ear o rther tro e. Tis tenden y in the administration and the en or ement agen iesneeds to e stri t y r ed. Te administration sho d nderstand that ivi rights o a ,more so o the weaker se tions need to e respe ted and en or ed. Te administration andthe po i e have to p ay a more proa tive ro e in dete tion and investigation o these rimes,parti ar y in remote r ra areas where the awareness eve s are ow and vi tims o ten donot ome orward to odge omp aints. Te re ommendations on po i e re orms in thisreport are geared towards making the po i e servi e in India more pro essiona , responsiveand itizen- riend y. However, the po i e wi have to e spe ia y sensitised to the pro emso the S hed ed castes and S hed ed ri es. Tis o d e a hieved thro gh appropriatetraining programmes.

5.17.5 In areas with a history o omm na and ing isti vio en e, as we as vio en eagainst S hed ed castes and S hed ed ri es, these v nera e gro ps o ten har o r asense o inse rity. S h apprehensions an e a ayed to a arge extent i the o a po i ehave adeq ate representation rom these omm nities.

crimes against chi dren

5.17.6 A re ent st dy ommissioned y the Ministry o Women and chi d We are,Government o India, ased on a s rvey o 13 States and 12,447 hi dren, has ome o t

126 127


57 So r e: Ann a Report on Te S hed ed castes and S hed ed ri es (Prevention o Atro ities) A t



with start ing data on oppressionand r e ty towards its mostv nera e segment i.e. hi dren.Te s rvey revea s that over ha the hi dren interviewed (53%)

have een sex a y a sed with23% eing severe y a sed.chi dren who are working as we as street hi dren are seen to

e parti ar y v nera e. Whi ethe indings rom the st dy need to e moderated sin e they

o sed on the most v nera egro ps o hi dren and not on a representative samp e o the Indian hi d pop ation,nonethe ess it does point to a serio s pro em that has remained in the oset. Fig. 5.5gives g res ( or the year 2005) regarding in iden e o vario s types o rimes against

hi dren. ime series data on these g res a so show a genera in rease in a ategories o rimes parti ar y those re ating to tra king o gir s or prostit tion as we as ases o hi d marriage and rape.

5.17.7 he Government has taken some important steps re ent y orimproving the ondition o hi dren in ding the passing o omprehensiveamendments to the J veni e J sti e (care and Prote tion o chi dren) A t, 2000 and setting p o Nationa and State commissions or the prote tion o hi drights as we as chi dren’s co rts or providing speedy tria s o o en es or vio ation o

hi dren’s rights. However, as the s rvey re erred to ear ier indi ates, m h remains to edone.

5.17.8 a k ing rimes dire ted at the most v nera e se tions o o r so iety req ires aom ination o pro essiona ism and sensitivity to ens re that the vi tims are not s je ted

to se ondary vi timisation even as they s er rom post tra mati stress. un ike othervi tims, hi dren o ten do not even rea ise that they are eing wronged, and even i they dorea ize this, very ew wo d omp ain a o t it to the a thorities. Tere ore, the en or ementagen ies sho d themse ves dete t s h vio ations and ook the g i ty. Te norma approa ho eginning an investigation on y on re eipt o an FIR wo d not s e or dea ing with

rimes against hi dren.

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a. Te administration and police should be sensitised towards the special problemso the Scheduled Castes and Scheduled ribes. Appropriate training programmescould help in the sensitising process.

b. Te administration and police should pla a more pro-active role in detectionand investigation o crimes against the weaker sections.

c. En orcement agencies should be instructed in unambiguous terms that en orcement o the rights o the weaker sections should not be downpla ed or

ear o urther disturbances or retribution and adequate preparation should bemade to ace an such eventualit .

d. Te administration should also ocus on rehabilitation o the victims and provideall required support including counselling b e perts.

e. As ar as possible the deplo ment o police personnel in police stations withsigni cant proportion o religious and linguistic minorities should be inproportion to the population o such communities within the local jurisdictiono such police station. Te same principle should be ollowed in cases o localitieshaving substantial proportion o Scheduled Castes and Scheduled ribespopulation.

. Government must take concrete steps to increase awareness in theadministration and among the police in particular, regarding crimes against children and take steps not onl to tackle such crimes, but a lso to deal withthe ensuing trauma.

5.18 National Securit Commission

5.18.1 Te S preme co rt has dire ted that the union Government sho d set p aNationa Se rity commission:

“Te Central Government shall also set up a National Security Commission at the Unionlevel to prepare a panel or being placed be ore the appropriate Appointing Authority, or selection and placement o Chie s o the Central Police Organisations (CPOs), whoshould also be given a minimum tenure o two years. Te Commission would also

review rom time to time measures to upgrade the e ectiveness o these orces, improve the service conditions o its personnel, ensure that there is proper coordination betweenthem and that the orces are generally utilized or the purposes they were raised and make recommendations in that behal . Te National Security Commission could be headed by the Union Home Minister and comprise heads o the CPOs and a couple o security experts as members with the Union Home Secretary as its Secretary”.



5.18.2 Te tasks assigned to the said commission are to re ommend a pane o names orappointment o the chie s o the centra Po i e Organisations and to ens re oordination

etween these or es and a so to review meas re to pgrade the e e tiveness o theseor es.

5.18.3 Te centra Po i e Organisations in de severa armed or es o the union, ea honstit ted nder a separate stat te as indi ated e ow:

border Se rity For e:

Constitution o the Force: Tere shall be an armed orce o the Union called the Border Security Force or ensuring the security o the Borders o India.58

Indo- i etan border Po i e:

Tere shall be an armed orce o the Union called the Indo- ibetan Border Police Force or ensuring the security o the borders o India and per orming such other duties as may be entrusted to it by the Central Government.59

centra Ind stria Se rity For e:

Constitution o the Force : Tere shall be constituted and maintained by the Central Government an Armed Force o the Union to be called Central Industrial Security Force or the better protection and security o Industrial undertakings owned by that Government and to per orm such other duties entrusted to it by the Central Government.60

centra Reserve Po i e For e:

Tere shall continue to be an armed orce maintained by the Central Government and called the Central Reserve Police Force.61

5.18.4 From the a ove it is evident that a these ‘For es’ are in e e t armed or es o theunion tho gh they are ra keted together as centra Po i e Organisations. Having thechie o one o these For es to re ommend a pane o names or se e tion o the chie o another For e may not e appropriate. For one, he/she wi not e ami iar with the working o other For es. More over, a chie o one o these For es may a so e in the zoneo onsideration or eing appointed as chie o another For e.

5.18.5 Tese For es work in ose oordination with the Army in the order areas andin areas a e ted y ins rgen y. Tere ore, oordination me hanisms are req ired at the

operationa eve . F rthermore, when they are dep oyed to assist the ivi administration,oordination is req ired with the state a thorities and the State Po i e. It is th s ne essary

to have operationa oordination me hanisms rather than a oordination me hanism atthe nationa eve in whi h neither the Army nor the State Governments are represented.Simi ar y, meas res or pgrading the e e tiveness o ea h o these For es sho d e reviewed

or ea h or e separate y.5.18.6 Another aspe t whi h needs to e emphasised is that the ‘set p’ re ommended orthe State Po i e annot e rep i ated or the centra Po i e For es as the Armed For es o the union annot e ompared with the State Po i e. Te State Po i e en or e aws andinvestigate rime. Te Armed For es o the union do not investigate rime.

5.18.7 In the ight o the a ts mentioned a ove, it is ear that the answer to the q estiono appointment o the chie o these Armed For es o the union does not ie in the reationo a Nationa Se rity commission. More so e a se, or dea ing with a aspe ts o nationase rity, there a ready exists the high powered Nationa Se rity co n i , headed y thePrime Minister. Te commission is o the view that th e existing instit tiona me hanismo the oversight o the entra po i e or es may ontin e to e dis harged y the Ministry o Home A airs o the Government o India. Te se e tion o the chie s o these centraPo i es For es is done na y at the highest eve o the Governmernt o India thro gh theesta ished pro ed re o the ca inet committee on Appointments.

5.18.8 Te commission a so notes that the union Government is p a ing the re evant a tse ore the S preme co rt.

5.18.9 Recommendation:

a. Tere is no need or a National Securit Commission with a limited unctiono recommending panels or appointment to Chie s o the Armed Forces o the Union. Tere should be a separate mechanism or recommending thenames or appointment as Chie o each one o these orces, with the nalauthorit vesting in the Union Government.

5.19 Union-State and Inter-State Cooperation and Coordination

5.19.1 crime has no respe t or state o ndaries or even internationa orders. With rapidexpansion o transport and omm ni ation a i ities, severa major rimes ike organised

rimes, terrorism, a ts threatening nationa se rity, tra king in arms and h man eingsand serio s e onomi ra ds are posing a serio s threat to the so iety. In the past a so, there was movement o rimina s a ross the state orders posing j risdi tiona and operationa

130 131


58 Te border Se rity For e A t; Se tion 4.59 Te Indo- i etan border Po i e A t, 1992; Se tion 460 centra Ind stria Se rity For e A t, 1968; Se tion 361 centra Reserve Po i e For e A t, 1949; Se tion 3



ha enges to the state po i e, t these were most y on ned to the inter-state order areas.Me hanisms have een evo ved etween the states or proper oordination in dea ing withinter-state rimes and these have een in the orm o oordination ommittees etweenstates as we as at operationa eve s. Tere are a so arrangements etween the states whi h

a i itate ertain operations within a state y the po i e o another state. However, despite

these arrangements, at times, iss es ome p whi h have to e reso ved y higher eve so po i e or even y the State Government. Tis eads to de ay whi h may hamper po i eoperations. Apart rom de ay, there may e iss es over whi h there are disagreements etweenthe po i e o two or more states and this sit ation is ia e to e exp oited y rimina s whoare today ar etter organised and have a wide network.

5.19.2 Dea ing with rimes, whi h have inter-state as we as nationa dimensions, a s ore e tive oordination at the nationa eve in addition to ooperation etween the states.Tis is a so ne essary e a se the reso r es (te hni a , pro essiona and nan ia ) o thestates are not adeq ate to meet the ha enging req irements o these rimes. In ertain ases

ike in dea ing with Naxa ism, there are nationa eve oordination me hanisms in dinga ew union–State and Inter-State proto o s or oordinated n tioning. In most ases,however, there are hard y any instit tiona arrangements apart rom periodi on eren esand meetings whi h are o vio s y inadeq ate.

5.19.3 use essons an e drawn rom the E ropean examp e, where the o ntries areompara e in size to the Indian states. Tese o ntries have di erent rimina j sti e systems,

di erent str t res o po i e and sti th ey have een a e to evo ve me hanisms to dea withrimes whi h have internationa rami ations. When the Ec (E ropean comm nities)

was onstit ted it o sed on e onomi integration. Tis ro ght in ree movement o persons, goods and servi es. To gh this move ene ted the mem er o ntries, it a so easedmovement o rimina s and deve opment o internationa rimina networks. Te rst stepto r this mena e was the 1992 Maastri ht reaty whi h extended the mandate o theE ropean comm nities to in de ooperation in j sti e and home a airs. cooperationin rimina matters is termed as the ‘third pi ar’ o the E ropean union. An internationa

ody, E ropo (simi ar to Interpo ) oordinates ross- order investigations, and seeks toprovide s pport to domesti aw. Te S hengen agreement is m h more e e tive and itin des sharing o in ormation, ross- order s pervision, “hot p rs it” a ross ordersinto the territory o another Mem er State et . To gh these arrangements have ertain

imitations, they have worked satis a tori y.

5.19.4 In the united States, there are a arge n m er o o a and State po i e or es.cooperation etween the vario s po i e systems is a hieved thro gh inter-state ompa ts.Te Federa b rea o Investigation ooks into severa rimes whi h have inter-state

rami ations. It investigates into vario s Federa crimes s h as organised rime, dr gtra king, espionage, terrorism, ank ro ery, extortion, ra keteering, kidnapping, money

a ndering, ank ra d and em ezz ement. It investigates inter-state rimina a tivity andan arrest gitives who ross state ines to avoid prose tion.

5.19.5 Te commission is o the view that tho gh ea h state may have its own str t reo po i e, q ite nderstanda e in a o ntry o s - ontinenta dimensions, with the asirimina aws eing the same nationa y, it is possi e and high y ne essary to have nationaeve oordination instit tions or vario s types o major rimes. It is a so ne essary to draw

standard proto o s or ooperation and oordinated n tioning etween the union andthe states. Tese proto o s sho d over iss es ike in ormation sharing, joint investigation, joint operations, inter-state operations y a state po i e in another state, regiona ooperationme hanisms and the sa eg ards req ired.


a. Te Ministr o Home A airs should proactivel and in consultation withthe states, evolve ormal institutions and protocols or e ectivecoordination between the Union and the states and among the states.Tese protocols should cover issues like in ormation/intelligence sharing, joint investigation, joint operations, inter-state operations b a state policein another state, regional cooperation mechanisms and the sa eguardsrequired.

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6 MAIN AINING PUBLIC ORDER

6.1 Public Order Management

With wide-ranging re orms in the po i e and the rimina j sti e system, the magnit deand req en y o major p i disorders s h as riots sho d red e, t expe ting that they wo d not o r wo d e o vio s y nrea isti . Tere ore, the proper management o riots wo d ontin e to e an important n tion o the po i e as we as the administration.Te meas res req ired to dea e e tive y with riots or riot- ike sit ations are examined inthis hapter.

6.1.1 Dea ing with Mo Vio en e

6.1.1.1 Te n m er o ases o riots reported sin e Independen e has shown an in reasep to the 1990s and then a grad a de ine (Fig 6.1). A riot or mo vio en e is an extreme

mani estation o p i disorder. It may e d e to a ash etween two or more se tions o so iety, or demonstration o anger against the esta ished a thority. A tho gh every e orthas to e made to a void mo vio en e, o ten despite est intentions mo vio en e does takep a e. Te administrative ma hinery, parti ar y the aw en or ement ma hinery m st egeared to a e any s h event a ity.

6.1.1.2 Government o India as we as State Governments have iss ed instr tionsrom time to time o t ining the steps to e taken or dea ing with mo vio en e62.

Severa commissions o Inq iry, whi h enq iredinto in idents o movio en e, parti ar y

omm na riots, havea so made a arge n m ero re ommendations toprevent the re rren e o s h in idents and a so

or e e tive y dea ing with s h o t reaks o vio en e.

6.1.1.3 It may appear that riots, espe ia y omm na riots, reak o t spontaneo s y, t adeeper ana ysis wo d revea that genera y there is an in ation period d ring whi h the

nder ying a se deve ops and the dis ontent/distr st keeps on simmering. Te spark isprovided y an in ident, whi h may even e a identa , a sing the sit ation to are p.Te administration and po i e have to take meas res as appropriate d ring di erent stages.

broad y, these meas res o d e assi ed as o ows:a. Meas res to e taken d ring norma times to address any sit ation so that it

does not deve op as a a se or rioting.. Meas res to e taken when an o t reak o riot is apprehended.. Meas res to e taken on e a riot has started.

d. Meas res to e taken on e the riot has een ontro ed.

6.1.2 Meas res to e aken d ring Pea e ime

6.1.2.1 Preventing a riot is very important, sin e on e it starts, it an a se irrepara e damageto i e, property and harmonio s so ia re ations. Tere ore every e ort m st e made toaddress a events/iss es whi h may ead to o t reak o riots and vio en e. For this, the rstand oremost req irement is that the administration m st win the tr st o a se tions o so iety y eing responsive, transparent, vigi ant and air in their dea ing with a se tionso so iety. Te grievan es o individ a s as we as gro ps sho d e prompt y attended to.Te po i e sho d a t in a rm and air manner against a aw reakers witho t oming

nder the in en e o any person or a thority. Te Distri t O er an p ay an importantro e here y providing eadership as we as oordinating and monitoring the a tivitieso vario s departments/agen ies. Tere are severa examp es wherein the administrationand po i e have e e tive y sed the me hanism o pea e ommittees to red e and evene iminate vio en e. S h ora improve m t a nderstanding among mem ers o di erent

omm nities and a so etween them and the administration.

6.1.2.2 Whi e the governan e meas res detai ed a ove wo d go a ong wa y in preventingreakdown o aw and order, it is eq a y ne essary to ens re that spe i riot ontro

p ans ased on gro nd rea ities are in p a e to meet any event a ity. In this onne tion itis ne essary to ens re that ea h state and distri t has prepared riot ontro /interna se rity p ans whi h are d y pdated and are ased on ons tations with a stakeho ders in the

ight o previo s episodes. F rther, it is important that these p ans are exp ained to an tionaries in ding the po i e, the exe tive magistra y and omm nity eaders so

that they are y aware o the ro es req ired o them and their response is oth q i k and j di io s in times o risis. Te J sti e b N Srikrishna commission had o served:

134 135

Maintaining P i Order

62 Te Ministry o Home A airs iss ed detai ed g ide ines in 1997 to promote omm na harmony.



“ Tough in the Communal Riot Scheme o 1986, and the ‘Guidelines’ there has beenidenti cation o the communal organisations in Maharashtra, and it is required that the police stations maintain an accurate and updated list o communal goondas, there has been scant attention paid to these. Tat is one o the weaknesses in the present Riot Control Scheme, which, though envisioned as e cacious, ailed in practice”.

6.1.2.3 Inte igen e gathering sho d not s a ken d ring this phase. As per the g ide inesiss ed y the Ministry o Home A airs, apart rom the reg ar inte igen e agen ies, theDistri t Magistrate and the po i e sho d a so deve op independent so r es o in ormation.Tis exer ise sho d e arried o t at mi ro eve in the distri t. Te Government o Indiaand the State Governments have identi ed sensitive distri t/ ities whi h sho d e givenspe ia attention. J sti e b N Srikrishna commission has re ommended:

“Te o cers at all levels must realise that the best way o eeling the pulse o the people is by moving with them and not travelling in vehicles with excessive security. O cers must continuously get an input o the judgement o the public o their role and keepcorrecting themselves and their subordinates to ensure that there is no deviation romacceptable standards”.

It is the vigi and a ertness maintained d ring norma pea e times y having onta ts withdi erent se tions o so iety, gathering, he king and o nter- he king inte igen e, andenhan ing the eve o preparedness, whi h an timate y prevent the reakdown o p iorder. E e tive imp ementation o reg atory aws y a p i agen ies wi in rease their

omp ian e and there y a so assist in mitigating the a tors eading to disorder.


a. Te administration should be responsive, transparent, vigilant and air indealing with all sections o societ . Initiatives such as peace committeesshould be utilised e ectivel to ease tensions and promote harmon .

b. Te internal securit plan/riot control scheme should be updated periodicall in consultation with all stakeholders and in the light o previous episodes.Te role o all major unctionaries should be clearl e plained to them.

c. A micro anal sis should be carried out in each district to identi sensitive

spots and this should be regularl reviewed and updated.d. Te intelligence machiner should not slacken during normal times andcredible intelligence should be gathered rom multiple sources.

e. Regulator laws such as the Arms Act, 1959, E plosives Act, 1884 and

Municipal Laws related to construction o structures should be en orcedrigorousl .

. Public agencies should ollow a zero tolerance strateg in dealing with violations o laws.

6.1.3 Meas res to e aken When an O t reak o Riot is Apprehended

Te administration, espe ia y the po i e, is p t to rea test in this phase. Anti ipating a riotreq ires vita inp ts o inte igen e as we as a ertness and so nd j dgement parti ar y on the part o the po i e and the Exe tive Magistrates. S h an apprehension may e onthe asis o past o rren es, some r ia inte igen e inp t, re igio s estiva s espe ia y in ding pro essions, et . On e it appears that an o t reak o riot is ike y, the po i e hasgot powers whi h an e sed to prevent the o t reak. Tese in de:

• la n hing se rity pro eedings against the s spe ts; preventive arrests(Se 151 crPc) and preventive detention; depositing rearms;

• Reso ving disp tes re ating to possession o and y sing Se tion 145 crPc;• Reg ating pro essions and gatherings;

• Imposing prohi itory orders (Se tion 144 crPc); and• Dep oying po i e in sensitive areas/in reased patro ing and sear hing o s spe ted p a es.

6.1.3.1 Se rity Pro eedings

6.1.3.1.1 chapter VIII o Te Indian Pena code ists o t (in Se tions 141-158) vario s typeso o en es against p i order and pres ri es pena ties against the same. Te importan e o

ringing the o enders to ook ies in reating a sa tary and deterrent e e t against thoseprone to ommitting s h o en es. besides, the aw a so provides or a string o preventivemeas res in the stat te ooks whi h, i sed j di io s y, an great y he p the administrationin maintaining p i order. S h preventive meas res are o t ined in chapter VIII o the crimina Pro ed re code, 1973 (crPc). For prevention o t re ommission o o en es against p i order, the provisions o this hapter a thorize the J di ia /Exe tiveMagistrates to o tain onds rom s spe ted tro e makers. under Se tion 106, the J di iaMagistrate may order a previo s y onvi ted person to exe te a ond or goo d ehavio r.Se tion 107 a thorises an Exe tive Magistrate to req ire a person/persons to exe te a

ond with or witho t s reties or keeping pea e (Se tion 107). Te Exe tive Magistrate ano tain simi ar onds rom persons disseminating seditio s matter (Se tion108), s spe tedpersons (Se tion109) as we as ha it a o enders (Se tion110). In rgent ases o n isan e

136 137

P i Order Maintaining P i Order



or apprehended danger to p i tranq i ity, the Magistrate is empowered nder Se tion144 crPc to ar p i assem ies and dire t person/s to a stain rom spe i ed a ts thatmay a se a rea h o p i pea e. Fina y, Se tion 151 crPc empowers a po i e o er toarrest witho t a warrant any person s spe ted to ommit an o ense in ding any o en eagainst p i order.

6.1.3.1.2 Despite the avai a i ity o s h wide powers to the a thorities to take preventivemeas res against those trying to rea h p i tranq i ity, the time y, we p anned and j di io s se o these provisions y the o a po i e and magistra y is o ten a king. Te

e d n tionaries, oth in the exe tive magistra y and po i e, are o ten not y aware o the manner in whi h these provisions sho d e sed. In many states, no detai ed g ide ines

or their se have een pres ri ed or the Po i e and the Exe tive Magistrates and thetwo o ten work at ross p rposes when it omes to taking preventive meas res. Tere areinstan es where the Exe tive Magistrate reje ts the in ormation report s mitted y thepo i e witho t proper appre iation o the a ts. Tere are a so instan es o the po i e resortingto preventive meas res more or ro nding p vagrants and oosting their ase statisti sthan initiating s h meas res against rea tro e makers. Most o ten these pro eedingson e initiated are not taken to their ogi a on sion and are a owed to apse a ter thepres ri ed period o six months. It is there ore ne essary that the po i e and espe ia y the

Exe tive Magistrates nderstand the importan e o these provisions in the maintenan eo p i order.

6.1.3.1.3 Recommendations:

a. Te use o preventive measures in a planned and e ective manner needs to beemphasized. raining and operational manuals or both E ecutive Magistra tesand police need to be revised on these lines.

b. Regular supervision and review o these unctionaries b the DM and the SPrespectivel should be done to ocus attention on e ective use o these provisions.For this purpose, a joint review on a periodic basis b the DM and SP shouldbe done.

6.1.3.2 Addressing Property Disp tes to Prevent Disr ption o P i Order

6.1.3.2.1 A variety o a tors in ding ragmentation and more req ent trans er o and, nsatis a tory stat s o and re ords and a ove a , ex eeding y ong drawn o t ivipro eedings on erning property disp tes in the ivi o rts, a o nt or the steadi y in reasing instan es o rea h o p i order and tranq i ity d e to disp tes over properties. Whi e property disp tes a ways prominent y g red as motives or rime, the tenden y,

o ate, is or s h disp tes to provoke gro p vio en e as with in reasing press re on and,property disp tes gain prominen e and invo ve more peop e. Tere are a so indi ationsthat in reasing tenden ies o a tion ormation in vi ages is a so responsi e or property disp tes eading to gro p ashes. last y, in iso ated po kets where waste and or nsett ed

and is sti avai a e, de ays in removing or reg arising en roa hments, too, have ed to

serio s rea hes o pea e.6.1.3.2.2 Disp tes over tit e or ownership are norma y to e adj di ated in a ordan e with the provisions o the civi Pro ed re code read with app i a e aws ike the IndianEviden e A t, the s ession aws, the persona aws governing the s je t and otherre evant provisions. However, there are two road ex eptions to these provisions. First isthe powers o the Reven e co rts to arry o t m tations and a nd re ords ased on prima

a ie eviden e (Reven e co rts in the eastern parts o the o ntry are however genera y,dis o raged rom granting m tations on e a q isition o interest is disp ted). Te otherex eption is the power o Exe tive Magistrates to ta ke immediate preventive a tion whena person in possession o a immova e property apprehends or i e dispossession or isdispossessed within a period o two months pre eding the date o ing a omp aint withthe on erned Exe tive Magistrate. Te re evant provisions or dea ing with s h omp aintare o nd in Se tions 145, 146 and 147 o the code o crimina Pro ed re. Se tion 145

is invoked when there is apprehension o rea h o pea e on a o nt o property disp teand the Exe tive Magistrate, on eing satis ed a o t the vera ity o s h in ormation,is req ired to a pon the disp ting parties to s mit their aim in the orm o writtenstatements. Witho t going into the merits o the riva aims to tit e, the Magistrate is todetermine who was in a t a physi a possession rom the date o omp aint or whether the

omp ainant was or i y evi ted in the pre eding two months rom the date o omp aint.based on his/her o je tive determination, the Magistrate an then iss e an order dire tingthat the party in possession sha not e dist r ed (ex ept y the d e pro ess o aw) orthe party wrong y dispossessed sha e restored possession. I the Magistrate is na eto satis y himse as to who was in possession, the property is atta hed and a re eiver isappointed ti the rights are de ided y the civi co rt.

6.1.3.2.3 Whi e these provisions have o ten proved e e tive in preventing property disp tesrom a sing rea h o p i tranq i ity, re ent prono n ements o o rts have di ted

their ti ity. T s, a tho gh the provisions o the crPc nowhere s ggest that the Exe tiveMagistrate sho d re rain rom sing these provisions so e y on the gro nd o s sisten e o a ivi s it in respe t o the property in q estion, ertain prono n ements o the S premeco rt and High co rts {Mahant Ram S mer P ri vs State o uP AIR 1985 Sc472, andShanti Prasad vs Shak nta a Devi 2004 (1)Scc 438} have ed to the view that in ase o pending itigation in civi co rts, pro eedings nder Se tion 145 wo d not ie and the

138 139




civi co rt itse m st e approa hed or appropriate interim re ie . It has rther eenpropo nded that in ase o apprehension o rea h o pea e, the provision nder Se tion107 crPc sho d e sed in p a e o Se tion 145 crPc. Tese re ent orders o theS preme co rt are at varian e with ear ier prono n ements in Deo K er vs. Sheoprasad1965(3) ScR 655 and bhinka vs charan Singh 1959 ScR (S pp) 798 whi h took the

assi a view that pro eedings nder Se tion 145 crPc e ore the Exe tive Magistrateare maintaina e even i the s stantive matter is pending e ore the civi co rt.

6.1.3.2.4 Te commission has are y onsidered the matter. considering the time takenin disposa o ivi s its, the preventive and interim nat re o pro eedings nder the crPcand the a t that pro eedings nder this se tion entai on y a temporary remedy, there doesnot appear to e any j sti ation to deny the opport nity o q i k redressa to the wrongedparty on the gro nd that a ivi o rt is ooking at the ong term so tion o the disp te.Given the time taken y the average ivi s it, there is a ways a possi i ity that one o theparties may take the aw into its own hands and a se a rea h o pea e y attempting todis odge the other party o possession. Te o rt o the Exe tive Magistrate has a very

imited ro e in ases whi h does not a rogate rom the ndo ted powers o the ivio rt to adj di ate on q estions o tit e or even iss e de arations on possession, ased on

detai ed examination o eviden e. Te who esome provision o Se tion 145 crPc m st e

permitted to operate in the imited sphere aid down therein and not rther restri ted.6.1.3.2.5 Pro eedings nder Se tion 107 crPc are no s stit te to those nder Se tion 145 where the a se o an apprehended rea h o pea e is a disp te over possession o immovea eproperty or o ndaries thereo . It is ear that the s ope o inq iry avai a e nder the

ormer Se tion is not s ita e or determination o q estions o physi a o pation oror i e o ster o possession within sixty days. It is a so ear to the commission that i , inases a ready nder itigation in the ivi o rts, the Exe tive Magistrates were to pro eednder Se tion 107 crPc the nat re o their inq iries wi e pra ti a y the same as is aid

down nder Se tion 145 crPc.

6.1.3.2.6 Tere is itt e do t that disp tes re ating to possession, parti ar y with regardto o ndaries o and and water, arise more req ent y where and re ords, in ding maps,are not periodi a y pdated. As ar as r an areas are on erned, in a arge n m er o states there is no provision or maintenan e o and re ords proper y and property re ords

or the p rpose o m ni ipa taxation re e t the gro nd position poor y, ontri ting todisp tes a o t o ndaries and demar ation o properties. Te commission proposes to

onsider this aspe t in its report on r an governan e.

6.1.3.2.7 Recommendations:

a. An E planation ma be inserted below Section 145 o the Code o CriminalProcedure clari ing that when rom the evidence available with the E ecutiveMagistrate it is clear that there is an attempt to dispossess a person or wherea person has been illegall dispossessed o his propert within si t da s o

ling the complaint and that such acts cause a reasonable apprehension o a breach o the peace, such magistrate can pass an order contemplated in sub-section (6) o the a oresaid Section notwithstanding pendenc o a civil casebetween the parties involving the same propert .

b. A time rame o si months ma be stipulated or concluding theproceedings.

c. Speci c but indicative guidelines ma be issued b the Ministr o UrbanDevelopment to the State Governments to la down the minimum standards

or maintenance o land records in urban a reas including municipal ward mapsso as to minimize possibilit o disputes about possession and boundar o immoveable propert .

d. Detailed guidelines alread e ist in almost all states to periodicall update landrecords in rural areas. Strict compliance o such guidelines needs to be ensuredas out o date land records contribute to disputes and resultant breaches o peace.

6.1.4 Reg ating Pro essions, Demonstrations and Gatherings:

6.1.4.1 A arge n m er o omm na riots have their origin in re igio s pro essions.Sometimes, re igio s pro essions e ome a show o strength or a omm nity and theorganisers o s h pro essions de i erate y wish to take the pro essions thro gh omm na y sensitive areas. It has een o served that when s h pro essions pass thro gh sensitive areas,even sma in idents, a idents, or r mo rs res t in o t reak o major omm na vio en e.It is, there ore, ne essary that s h pro essions are proper y reg ated and a pre a tionsare taken so that the s ope or any omm na are p is minimised. Other pro essionsand demonstrations a so, i not reg ated proper y, have the potentia o pre ipitatingvio en e.

6.1.4.2 J sti e D P Madon commission on the bhiwandi, Ja gaon and Mahad Riots inMay 1970, o served:

“Processions in one orm or another, particularly by way o demonstration or a protest march or morchas, have become the regular eature o ones daily li e, dislocating tra c,

140 141




preventing other citizens, tired a ter a day’s hard and honest work, rom going home at reasonable hour, and causing anxiety to police and the law and order agencies. What was once the the King’s highway or his subjects to pass and repass has today become the venue or demonstrations and morchas and a battleg round or political and communal orces. Even processions taken out on religious and estive occasions today stand on no

di erent ooting, but pose an equal law and order problem. Te spirit o estivity has long gone out o them and what was once a season o estivals has now become a seasono tension and disorder”.

6.1.4.3 Pro essions an e reg ated nder the Indian Po i e A t, the State Po i e A ts oreven nder crPc. Pro essions, espe ia y re igio s ones, sho d e reg ated and proper y es orted. commissions o Inq iry, in the past have made severa re ommendations toreg ate pro essions.

6.1.4.4 G ide ines need to e ramed in advan e to ay down the norms o ond t ororganizers and parti ipants o pro essions and demonstrations. Re o rse may e takento existing provisions o aw to en or e the g ide ines, i req ired. Vio ation o s hg ide ines/orders sho d entai a tion nder Se tion 188 IPc. Tere is a strong ase or

evying exemp ary ‘damages’ on organizations or individ a s o nd to have instigated riotingand gro p vio en e. Te p nitive nes may e in proportion to the damage a sed and itspro eeds dis rsed among the vi tims.


a. Based on the e perience with major riots and the recommendations o variousCommissions o Inquir and pronouncements o the Supreme Court andthe High Courts, resh and comprehensive guidelines ma be drawn up orregulation o processions, protest marches and morchas 63.

b. Te guidelines should include preparator steps (through intelligence sources),serious consultation and attempts to arrive at agreement with the groups/communities involved, regarding route, timing and other aspects o procession.Te should also cover prohibition o provocative slogans or acts as well as carr ing o lethal weapons. It should be speci call stated in the guidelines that a llprocessions or demonstrations should be dealt with the same degree o airness

and rmness.c. Organisations and persons ound guilt o instigating violence should be liable

to pa e emplar damages. Te damages should be commensurate with theloss caused b such violence. Te law should provide or distribution o theproceeds o damages to the victims o such violence.

6.1.5 Imposition o Prohi itory Orders:

6.1.5.1 Se tion 144 crPc empowers the Exe tive Magistrates to impose severa kinds o prohi itory orders. Tis is a very e e tive too in the hands o the administration to prevento t reak o vio en e. However, it is o nd that o ten s h orders are prom gated on y a ter o t reak o vio en e. A tho gh, the imposition o prohi itory orders, even a ter theo t reak o vio en e he ps in ontaining vio en e, s h orders an e very s ess i they are prom gated and en or ed e e tive y e ore the o t reak o vio en e. As prohi itory orders have ar rea hing onseq en es, they are sometimes ha enged in o rts o aw. Itis there ore ne essary that the orders are orre t y dra ted. Exe tive Magistrates sho d eproper y trained to pass orders whi h an withstand j di ia s r tiny. It wo d e desira ei a man a or Exe tive Magistrates is iss ed y the State Governments or the g idan eo the Exe tive Magistrates. S h man a s sho d a so ontain vario s ase aws on thes je t.

6.1.5.2 It has een ro ght to the noti e o the commission that at times prohi itory ordersare not stri t y en or ed. S h a pra ti e may e ome o nter prod tive. A vio ators o prohi itory orders sho d e prose ted nder Se tion 188 IPc. On e prohi itory ordersare imposed, a s seq ent events sho d e video-graphed in sensitive areas. Tis wo da t as a deterrent as we as e avai a e as eviden e in prose ting the o enders.

6.1.5.3 Recommendation:

a. Prohibitor orders once imposed, should be en orced e ectivel . Videograph should be used in sensitive areas.

6.1.6 Meas res to e aken On e a Riot has Started

6.1.6.1 To gh there is a aid down dri or the management o aw and order pro ems,ertain meas res need to e re-emphasised here. As soon as rea h o pea e is apprehended,

the po i e or e avai a e in the distri t/ ity sho d e proper y mo i ised. I onsideredne essary, additiona or e may e req isitioned and i the sit ation so warrants there sho d

e no hesitation or de ay in a erting, req isitioning and dep oyment o entra or es. Itsho d e ens red that po i e o ers with know edge o o a areas are dep oyed in sensitivespots. Despite preventive meas res, i vio en e er pts, the rst priority wo d o vio s y eto s ppress this vio en e. In ase o omm na vio en e the sit ation sho d e ro ght

nder ontro y e e tive se o or e. Prohi itory orders, i not a ready imposed, sho de prom gated orthwith and en or ed rm y. Tere wo d e need or vigi an e even i

there is a e a se it has een noted that this period o temporary respite is o ten sed y the tro e makers and rioters to re-organise themse ves and arry o t s seq ent atta ks.V nera e areas need to e patro ed and prote ted even a ter pea e has een restored.142 143


63 Mor ha: It is a Hindi word whi h onnotes an organised demonstration



6.1.6.2 Te po i e o ten resort to ro nding p rowdy and mis hievo s e ements to ringthe sit ation nder ontro . Whi e this is ne essary, it is eq a y important to ens re thatthe instigators are a so arrested.

6.1.6.3 It appears that there is a tenden y to de ay the dep oyment o armed or es even i the sit ation so warrants. J sti e b N Srikrishna commission has o served:

“Te top o cers and the State Administration should not treat the calling out o the army or any other orce as in ra dig or as a blow to their pride. In a contingency where it is required, a ter honest and sel searching appraisement, the army authorities should at once be moved or operational duties or dispersal o unlaw ul assemblies”.

6.1.6.4 Te commissioner o Po i e or the Distri t Magistrate and the S perintendento Po i e sho d e given a ree hand in dea ing with the sit ation. unwarranted po iti ainter eren e sho d not e a owed at any ost whi e dea ing with mo vio en e or, ater, whi e investigating ases. D ring riots, visits y po iti a eaders sho d e need ased. Even we intended visits req ire VIP ando ast e orts whi h take away essentia po i e sta romthe m h needed dep oyment or ma intenan e o aw and order. A so, any provo ative a ts

ike p i disp ay o the dead or wo nded sho d e tota y anned. Te media sho d erie ed with orre t a ts and g res so that there is no s ope or r mo r mongering.

6.1.6.5 On e pea e has een restored, re ie meas res sho d e taken p immediate y. Any de ay in doing so (even on gro nds o sheer atig e) an res t in pro onged s ering o the vi tims whi h may rther aggravate tensions. D ring extended periods o p rohi itory orders, the Distri t Magistrate sho d ens re that essentia s pp ies are maintained, espe ia y in the v nera e areas.


a. I violence erupts, then the rst priorit should be to quickl suppress the violence. In cases o communal violence, the situation should be brought undercontrol b e ective use o orce.

b. Prohibitor orders must be en orced rigorousl .c. I the situation so warrants, the orces o the Union and the Arm should be

requisitioned and used without an reluctance or dela .d. Te Commissioner o Police or the District Magistrate and the Superintendent

o Police should be given a ree hand to deal with the situation in accordance with law.

e. Te media should be brie ed with correct acts and gures so that there is noscope or rumour mongering.

. Te police needs to be equipped with state-o -the-art crowd dispersalequipments.

g. Te District Magistrate should ensure that essential supplies are maintainedand relie is provided, especiall in vulnerable areas and particularl during prolonged spells o ‘cur ew’.

6.1.7 Meas res to e aken On e Norma y has een Restored

6.1.7.1 Tis is an important phase in dea ing with mo vio en e, as positive steps takend ring this phase o d red e the possi i ity o t re riots. Investigation and prose tiono o en es is an important part o this phase. P i memory eing short, this phase is o tennot taken serio s y and as a res t the rea prits es ape p nishment. Sometimes, po iti aand other extraneo s in en e is ro ght on the po i e so that ases against the prits arenot registered, or i s h ases have a ready een registered, not proper y investigated. Tecommission has a ready re ommended separation o investigation rom oth er n tions o po i e and the grant o s stantia a tonomy to the investigation agen y. It is hoped thatthis wo d ins ate the investigation rom any nwarranted in en e.

6.1.7.2 A arge n m er o riots in ding omm na riots are o ten in ited y vested interests who attempt to promote enmity etween di erent re igio s or so ia gro ps. A s h a ts

onstit te an o en e nder Se tion 153A o IPc:

“153A. Promoting enmity between di erent groups on grounds o religion, race, place o birth, residence, language, etc., and doing acts prejudicial to maintenance o harmony.

(1) Whoever

(a) By words, either spoken or written, or by signs or by visible representations or otherwise, promotes or attempts to promote, on grounds o religion, race, place or birth, residence, language, caste or community or any other ground whatsoever,disharmony or eelings o enmity, hatred or ill-will between di erent religious,racial, language or regional groups or castes or communities, or

(b) Commits any act which is prejudicial to the maintenance o harmony betweendi erent religious, racial, language or regional groups or castes or communities,and which disturbs or is likely to disturb the public tranquility, 2[or]

144 145




Shall be punished with imprisonment which may extend to three years, or with ne, or with both.”

An o sta e in the speedy investigation o ases re ated to p i order, espe ia y againstthe instigators is e a se o the need to o tain san tion or prose tion nder Se tion 196crPc.

“196. Prosecution or o ences against the State and or criminal conspiracy to commit such o ence.

(1) No Court shall take cognizance o -

(a) any o ence punishable under Chapter VI or under section 153A, o Indian Penal Code, or 2*[Section 295 A or sub section (1) o section 505] o the Indian Penal Code (45 o 1860) or

(b) a criminal conspiracy to commit such o ence, or

(c) any such abetment, as is described in section 108A o the Indian Penal Code (45 o 1860), except with the previous sanction o the Central Government or o the State Government.”

6.1.7.3 A s ggestion was made e ore the Madon commission that no san tion sho de ne essary or a prose tion nder Se tion 153A o the Indian Pena code. Te Madon

commission, however did not agree with this s ggestion and stated that the power to grantsan tion to prose te sho d rest on y with the union Government or the State Governmentas now provided y Se tion 196(i) o the crPc.

6.1.7.4 Tis iss e has een examined y the commission. It is e t that the san tionpres ri ed nder Se tion 196 crPc does not serve any se p rpose. Moreover, on ea ase is hargesheeted y the po i e, the magistrate wo d rame harges on y i there isa prima a ie ase, and this is adeq ate and reasona e prote tion against any ma i io sprose tion. Moreover, with the he ks and a an es s ggested in this Report with regardto po i e n tioning, s h a provision e omes even more nne essary. Tere ore, s hsan tion sho d not e ne essary or prose tion.

6.1.7.5 It has een ro ght to the noti e o the commission that, not in req ent y, asesa n hed against persons or rioting have een so ght to e withdrawn on gro nds o ‘p i

interest’. J sti e b N Srikrishna commission re ommended that on e a prose tion haseen a n hed against a person or rioting or other omm na o en e, it sho d nder noir mstan es e withdrawn. Te commission y agrees with this view.

6.1.7.6 commissions o Inq iry are s a y instit ted o owing arge s a e riots. O ten thesecommissions take nd y ong to s mit their reports. S h de ays are not in p i interestsin e this o d ead to de ay in o ow p a tion y the a thorities against those who wereresponsi e or the riots. It sho d there ore e mandated that s h commissions o Inq iry s mit their reports within six months and in no ase ater than one year. Te government

sho d a t pon the re ommendations immediate y. I or some reason, government doesnot agree with the re ommendations/o servations in the report, it sho d re ord its reasonsand make them p i .

6.1.7.7 A riots sho d e do mented proper y and ana ysed so that essons o d e drawnrom s h experien es. Te man a or instr tions or po i e and exe tive magistratesor dea ing with aw and order pro ems sho d e periodi a y revised in the ight o

experien e gained.

6.1.7.8 last t not the east, the existing arrangements or ong term re ie and reha i itationo vi tims o riots eave m h room or improvement. San tion o ex-gratia payments or

oss o i e and property, apart rom eing inadeq ate are o ten a eged to e ar itrari y distri ted. Te ins ran e system is so ar not geared to re ompense oss o property.con rete steps need to e taken to orm ate reha i itation pa kages in v nera e areas.


a. No sanction o the Union Government or the State Government should benecessar or prosecution under Section 153(A). Section 196 Cr PC should beamended accordingl .

b. Prosecution in cases related to rioting or communal o ences should be not sought to be withdrawn.

c. Commissions o Inquir into an major riots/violence should give their report within one ear.

d. Te recommendations made b a Commission o Inquir should normall beaccepted b the Government and i the Government does not agree with an observation or recommendation contained in the report o the Commission, it should record its reasons and make them public.

e. All riots should be documented properl and anal sed so that lessons could be

drawn rom such e periences.. Tere is need or adequate ollow up to ensure proper rehabilitation o victims.

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6.2 Accountabilit o Public Servants Charged with Maintaining Public Order

6.2.1 Te G jarat riots o 2002 have rekind ed the de ate a o t the ro e o p i servants who have a onstit tiona d ty to maintain p i order t who, y their ina tion,a eged y d e to po iti a inter eren e, a owed arge s a e rea h o p i tranq i ity to govirt a y n he ked. At the other extreme, ona de a tions o p i servants who orderthe se o or e to q e rioting may ead to setting p o a commission o Inq iry to gointo their ond t. Te net res t is a skewed in entive that seems to pena ise a tion andreward ina tion. As a res t, many key e d n tionaries hesitate to take de isions on thespot, even tho gh they are empowered to do so and pre er to wait or instr tions ‘ romthe top’.

6.2.2 Despite the setting p o a arge n m er o commissions o Inq iry, in ding thetwo histori a ones o owing the anti-Sikh riots in De hi in 1984 and the post-Godhrariots in G jarat in 2002, there have hard y een any instan es o q i k and s re j sti e

eing meted o t to the rioters as we as their instigators. Simi ar y, rare y is a senior po i eor administrative o er p nished or ina tion. Tis sit ation nders ores the need or asystem that ens res pena ty or ina tion and at east prote tion, i not reward, or those who take de isive a tion in good aith.

6.2.3 In genera , most states x the responsi i ity on the DM and the SP or major reakdownsin aw and order. us a y, this takes the orm o s mmary trans ers or s spensions, neithero whi h an e onsidered a pena ty given that s h s spensions are on y temporary.Inq iry commissions that are o ten set p in the a termath o major p i disorder area se too or the state to de e t p i anger t o ten their pro eedings are too ongdrawn and their ndings too de ayed or them to serve any se p rpose. Tere ore, apermanent and independent a o nta i ity ody as proposed y the commission wo dhave the twin ene t o a ording prote tion to p i servants who a t in good aith intrying to maintain p i order and xing responsi i ity on those who shirk even their

aw d ties.


a. Te State Police Complaints Authorit should be empowered to identi

and responsibilit in cases o glaring errors o omission and commissionb police and e ecutive magistrates in the discharge o their duties relating to the maintenance o public order.

148 149


64 Se tion 4, Po i e A t, 186165 Se tion 16, Te Karnataka Po i e A t, 1964

6.3 Te E ecutive Magistrates and the District Magistrate

6.3.1 An Exe tive Magistrate is an o er o the Distri t administration who has eenassigned ertain responsi i ities nder the crPc, the State Po i e A ts and a so nder

ertain spe ia aws. Exe tive Magistrates are a thorized to se or e against peop e. Tey an a so take the assistan e o the Armed For es to q e a riot. Te exe tive magistra y

has a hierar hy – Exe tive Magistrate ( a ka/ ehsi /Spe ia ), S -Divisiona Magistrate, Additiona Distri t Magistrate and Distri t Magistrate.

6.3.2 Te Po i e A t, 1861 states:

Te administration o the police throughout the local jurisdiction o the Magistrate o the district shall, under the general control and direction o such Magistrate, be vested in a District Superintendent and such Assistant District Superintendents as the State Government shall consider necessary.64

6.3.3 Te State Po i e A ts (wherever they exist) a so provide a simi ar str t re and ontrome hanism.

Te Superintendent o Police shall be the head o the Police in the district or part o the district or which he is appointed as Superintendent. (2) Te administration o the Police in a district or part o a district by the Superintendent o Police shall be subject to the general control o the District Magistrate o the District. (3) In exercising such control,the District Magistrate shall be governed by such rules and orders as the Government may make in this behal .65

6.3.4 Te Distri t Magistrate (DM) is the head o distri t administration and is a soresponsi e or the maintenan e o aw and order in the distri t. Te Po i e A t/State Po i e A ts give the DM power o s perintenden e, dire tion and ontro over the distri t po i e. An iss e whi h has een raised o ten is to what extent, i at a the Distri t Magistratesho d ontro the Distri t Po i e. Tis iss e has engaged the attention o a most every Po i e commission and they have given di erent views.

6.3.5 Te West benga Po i e commission (1961) o served:

“We think it important that the District Magistrate’s position, as the o cer ultimately responsible or police administration in the district, should not be whittled away or allowed, to be whittled away in any manner although he may have other duties toattend to. Law and order and prevention and detection o crime are no less important



than any development activities with which he may be concerned, and it seems to us wholly undesirable that police o cers should come to regard him as interloper or intermeddler in a eld which they should have all to themselves.”

6.3.6 Te ami Nad Po i e commission examined this iss e and stated:

“We believe that existing arrangements are working well in practice. Tere is, however a eeling among the higher police o cers to which expression has been given in the memorandum urnished to us by the Madras branch o the Indian Police Service Association, that the role assigned to the District Collector, in relation to the working o the Police Department in the districts is anamolous; that it constitutes, somehow arefection on the competence o the police department to per orm the unctions assigned to it; and that the District Collector should be divested o powers o “direction and control” relating to the eld o responsibility assigned to the Superintendent o Police.

Te unctions vested in the District Collector under existing rules and standing orders quite clearly are not intended in order to enable the ormer to inter ere with the internal administrative independence o the Superintendent o Police or with the unctioning o the chain o authority rom top to bottom o the police department. It is intended to ul l overall policy requirements o the government at the district level

through a single authority. Te simplest way in which the relationship between the District Collector and the Superintendent o Police may be described is that it is intended toreproduce at the district level the relationship between the Chie Minister and the Home Minister at the State political level”.

6.3.7 Te bihar Po i e commission (1961) o served:

“Te Commission eels that the relationship between the District Magistrate and the Superintendent o Police should be that o two colleagues working to a common end but they are o the view that time is not ripe or recommending that the general control o the District Magistrate as contemplated in Section 4 o the Police Act, 1861 should be modi ed. Tey however, express the hope that i all the improvements that have beensuggested in this Report or a better police administration are given e ect to, the police orce should come up to the required standard and a time may come when their o cers

may be in a position to exercise g reater and greater executive power.” 6.3.8 Te uttar Pradesh Po i e commission re ommended:

“In principle we do not agree that there is anything basically wrong with controls exercised by the District Magistrate over the Police….. We ully endorse the ollowing observations made by the Indian Police Commission, 1902.

“It is true that the absolute necessity o maintaining the responsibility o District Magistrate demands that he should receive the ullest assistance rom the Superintendent o Police, and the latter should promptly carry out his orders. But the administrationo the police is vested in the Superintendent o Police. He is the Head o Police in the District. Tough he must carry out al l law ul orders o the District Magistrate, he is not

his assistant in the sense his Assistant Collector is; and it destroys police work to put him in that position. No unnecessary inter erence with the Superintendent o Police should be allowed. Te Police Force, though bound to obey the Magistrates orders inregard to criminal administration, should be kept as ar as possible departmentally distinct and subordinate to its own o cers. And the District Magistrate should avoid so as to weaken the infuence and authority o the Superintendent o Police; or discipline is one o the most important eatures o police work.”

6.3.9 Te Nationa Po i e commission (1977) stated:

“Te new police which we hope to create should have a sel -contained organizational structure where there is no distortion o command and no dilution o accountability. We have also noted that police unctions both in the investigative and preventive areas all under the law and are subject to judicial scrutiny. Tere ore, the police should per ormwith ull accountability to the law o the land. Te activities o the police organizationrequire a high degree o interactive and multi-directional communicative skills with the community. Hence the police should have direct contact with the people whom they pro ess to serve. We are, there ore, o the view that the new police organization should unctionwith a high degree o operational independence subject only to the control and directiono its own departmental hierarchial levels.

We recommend that the role o the District O cer as the Chie Coordinating Authority inthe district be recognised and respected by the police. Te District O cer should have the capability to generally advise the police regarding the extent and quantum o per ormance required rom them or the purpose o achieving developmental targets and also tomaintain administrative standards. Te District O cer is in a unique position o being responsible or the overall wel are o the people o the district and the overall e ectiveness o administration in the district. In discharging his responsibility he has a large measure o public contact and as such is likely to have substantial in ormation regarding the mood and temper o the population and its various other requirements. We are o the view that the District Collector should not only share his in ormation with the police in the district but should also be in a position to ascertain the steps taken by the police to ensure that quick solutions to problems are ound to public satis action and the level o administrationis maintained at a high pitch o e ciency.

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We do not think that subordination o any agency to another is essential or inescapable to bring about healthy cooperation between the two agencies. On the contrary we eel that subordination is extremely unsuitable actor to generate satis actory coordination.Subordination pre-supposes the carrying out o orders and hence instead o there being any dialogue, discussion and therea ter a decision, the only implicit compliance where

one party per orms under resentment and the other under apprehension. Tere ore, i ,as we have recommended subordination o the police to the District O cer is removed,would bring about better coordination in a cordial and congenial atmosphere where identi cation o a common interest and orientation o action towards that interest would become automatic”.

6.3.10 Te First Administrative Re orms commission (1967) a so went into this iss e andre ommended that the co e tor and the Distri t Magistrate as the head o the reg atory administration in the distri t sho d exer ise genera s pervisory ontro over the po i eorganization in the distri t. Ex ept in an emergen y, he sho d not inter ere with the interna working o the po i e administration.

6.3.11 Te Rajasthan Administrative commission a so examined this iss e and was o theview:

“Lastly, rightly or wrongly, Collector has since the beginning come to be regarded as the key coordinator and representative o the Government at the district level. Both these capacities as coordinator and representative o Government postulate certain overriding powers that can help in satis actory redressal o people’s grievances and generate aithin their minds that on behal o Government the Collector will look a ter their general wel are. Erosion o this eeling will directly a ect his responsibility as the coordinator on behal o Government and to that extent give a cruel blow to the entire administrative set-up in the society. With the trend now irrevocably in the direction o democratic decentralisation, Collector’s role and powers in the sphere o general developmental activities are in any case on the wane. In other words, the authority and power o patronage that he derived rom his role in wel are activities will no longer be available to him. Tis situation makes it all the more desirable that his say and infuence inother spheres o general administration is retained so as to enable him to discharge his role as the coordinator and representative o Government. Tere ore, looking to the above it appears that on the balance, non-integration o magisterial powers with police is more convenient as well as in keeping with democratic values o our society.”

6.3.12 Te Po i e A t Dra ting committee, whi e dra ting the mode po i e A t, de nedthe re ationship etween the DM and SP as o ows:

“Coordination within the District Administration

(1) For the purpose o e ciency in the general administration o the district, it shall be law ul or the District Magistrate, in addition to the provisions o the Code o Criminal Procedure, 1973 and other relevant Acts, to coordinate the unctioning o the police with other agencies o district administration in respect o matters relating to the ollowing:(a) the promotion o land re orms and the settlement o land disputes;(b) extensive disturbance o the public peace and tranquility in the district;(c) the conduct o elections to any public body;(a) the handling o natural calamities and rehabilitation o the persons a ected

thereby;(b) situations arising out o any external aggression or internal disturbances;(c) any similar matter, not within the purview o any one department and

a ecting the general wel are o the public o the district; and (d) removal o any persistent public grievance.

(2) For the purpose o such coordination, the District Magistrate may call or in ormationo a general or special nature, as and when required, rom the Superintendent o Police and heads o other departments o the district. Where the situation so demands,the District Magistrate shall pass appropriate orders and issue directions in writing,to achieve the objective o coordination.

(3) For the purpose o coordination, the District Magistrate shall ensure that all departments o the district, whose assistance are required or the e cient unctioning o the police, will render ull assistance to the Superintendent o Police.”

6.3.13 Te commission is o the view that po i e administration is very m h a part o ivi administration. Di ting the ro e o the distri t magistrate is neither desira e nor

pra ti a . Governan e req ires oordinated e orts o vario s wings o government andthis ne essitates the existen e o a oordinating agen y. coordination e omes ine e tivei the oordinating agen y has no a thority over the departments invo ved. Moreover, aspo i e represents the oer ive power o the State, there is need to temper this power y a government n tionary who an take a ho isti view o the sit ation. Tere is need to

a hieve a a an e etween the imperative to se po i e or e and the rights o itizens. Tiso d e est a hieved when s h a a an ing is done y an independent n tionary. Tecommission is however o the view that this ontro sho d not spi over to operationamatters or whi h th e Distri t Po i e chie sho d have a thority and responsi i ity.

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6.3.14 Te commission is o the view that the orm ation proposed y the PADc needsto e hanged so that there is no am ig ity in the ro e o po i e a nd the Distri t Magistrate. A tho gh the ir mstan es nder whi h the Distri t Magistrate an iss e dire tions to thepo i e have een isted in the Mode bi , there is need to widen this list. It needs to eprovided that the Distri t Magistrate sho d e a e to iss e dire tions or imp ementation/

en or ement o aws and government po i ies and programmes. It sho d a so e stip atedthat s h dire tions sha e inding on the po i e.


a. Te position o the District Magistrate vis-à-vis the police, and as a coordinatorand acilitator in the district needs to be strengthened. Te District Magistra teshould be empowered to issue directions under the ollowing circumstances:i. promotion o land re orms and settlement o land disputes;ii. e tensive disturbance o public peace and tranquilit in the district (Te

decision o the DM as to what constitutes e tensive disturbance o publicpeace should be nal);

iii. conduct o elections to an public bod ;iv. handling o natural calamities and rehabilitation o the persons a ected

thereb ;v. situations arising out o an e ternal aggression or internal

disturbances;vi. an similar matter, not within the purview o an one department and

a ecting the general wel are o the public o the district;vii. removal o an persistent public grievance (as to what constitutes persistent

public grievance, the decision o the DM shall be nal); andviii. whenever police assistance is required to en orce/implement an law or

programme o the government.

b. hese directions shall be binding on all concerned. Directions inrespect o item No. ii should normall be issued in consultation withthe Superintendent o Police.

6.4 Capabilit Building o E ecutive Magistrates6.4.1 It has een o served that Exe tive Magistrates are o ten inadeq ate y trained todis harge their ega responsi i ities whi h req ire them to work ose y with the po i e, e

sensitive to the on erns o the itizens and the po i e and have a thoro gh know edge o aws and r es. As they have to ond t ega pro eedings and pass q asi-j di ia orders, it

is very ne essary that they have the apa i ity to pass speaking orders, whi h an withstand j di ia s r tiny. Tis o d e a hieved y proper y designed training programmes. besides,having a Man a or Exe tive Magistrates, periodi a y pdated, on the ines o the po i e

man a wo d go a ong way in g iding them in their tasks.6.4.2 Recommendations:

a. All o cers likel to be posted as E ecutive Magistrates should be speciall trained in the relevant laws and procedures and should be eligible or posting onl a ter quali ing in an e amination.

b. On the lines o a police manual, each state should also evolve a Manual orE ecutive Magistrates.

6.5 Inter-Agenc Coordination

6.5.1 As stated ear ier, maintenan e o pea e and order is the ornerstone o goodgovernan e and has severa stakeho ders. It o ows there ore that even in ‘pea e time’vario s governmenta agen ies need to e invo ved to r e o t any threat to p i order.

It has een the experien e that where the po i e and magistra y do not en ist the s pporto other agen ies, anti ipation and oresta ing o ntoward in idents is o ten nota hieved. Agen ies invo ved with the norma tenor o so ia and e onomi a tivities a sohave an eq a y important ro e. Where there is rea h o pea e, the ro e o a s h agen iesass mes even greater signi an e, in restoring norma y. Instit tiona me hanisms need to

e evo ved at a eve s to ens re s h oordination.

6.5.2 In parts o the o ntry whi h are a ing pro ems o mi itan y, extremism andterrorism, apart rom the agen ies o ivi administration, centra Po i e For es and eventhe Army have remained dep oyed or ong periods. Need ess to say, e e tive instit tioname hanisms or oordination etween a agen ies operating in a ommon area, overing

entra and state agen ies, wo d have to e p t in p a e, at di erent eve s. F rther, the ro eand responsi i ities o ea h agen y, as ar as possi e, sho d e ear y spe t o t keeping inmind the overa o je tive o maintaining p i order.

6.5.3 Te need or oordination is even more ne essary or sharing o inte igen e. Tis needsspe ia attention in ‘sensitive’ areas where there is a m tip i ity o inte igen e agen ies, ea hreq ired to omm ni ate inp ts verti a y within their own hierar hies. Tis o ten red es

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the e a y o the o a administration to respond to any emerging risis. Tere sho de a me hanism providing or inte igen e inp ts o an operationa nat re whi h are a soon rrent y shared with the o a administration. both orma and in orma me hanismso d e sed or this p rpose.

6.5.4 In the distri ts, the instit tion o the Distri t Magistrate provides a or m or e e tiveoordination, tho gh over the years, its e a y has een eroded. In igger ities there is noorma oordination me hanism. Te Po i e A t Dra ting committee has in their Mode

bi re ommended the in sion o the o owing se tion:

“In order to ensure proper liaison, consultation and coordination between the police, the municipal authorities, the district administration and such other departments o the government, whose unctioning impacts the working o the police, the State Government by noti cation, will constitute appropriate coordination machinery and lay down procedures. Te structure o the machinery will be as noti ed.”

6.5.5 Some states have noti ed Ministers to e in harge o distri ts. Tis ha s een done toreview spe i deve opmenta programmes and a so to a hieve oordination. At times, s ha thorities transgress their powers and iss e operationa dire tions to the aw en or ementma hinery. Tis pra ti e needs to e dis o raged. Te stat tory a thorities entr sted with

the responsi i ity or maintenan e o aw and order sho d e given reedom to a t ina ordan e with aw.

6.5.6 However, in igger ities, whi h have the Po i e commissioner System, there isno e e tive oordination me hanism. In r an areas there are a arge n m er o servi eproviders and proper oordination e omes very important in sit ations o risis or a major

aw and order sit ation. In s h ases, the State Government norma y oordinates thee orts o a agen ies. It wo d e desira e to reate a permanent str t re to ens re s h

oordination. Tis commission in its Report on crisis Management has re ommendedthat the Mayor assisted y the M ni ipa commissioner and the Po i e commissionersho d e dire t y responsi e or any risis management. Te same str t re sho d e

sed or oordination d ring aw and order pro ems a so, with a the servi e providerseing represented on the coordination committee, to e headed y the Mayor. A simi ar

str t re sho d e evo ved at s -distri t/town eve s.


a. In a District, the District Magistrate should coordinate the role o all agenciesat the time o crisis.

b. In major cities, with the Police Commissioner S stem, a coordination committee

should be set up under the Ma or, assisted b the Commiss ioner o Police andthe Municipal Commissioner. All major service providers should be representedon this Coordination Committee.

6.6 Adoption o Zero olerance Strateg

6.6.1 As mentioned in para 3.1.1 whi e iting the so a ed “broken Window Syndrome”and as high ighted in box 6.1, ghting rime and pho ding the r e o aw req ires am ti-dimensiona approa h in order to insti in the itizens o any o a omm nity ahea thy respe t or aw. T s, in New York, the s ess rime ightingstrategy tried to address the iss eso r an de ay and a ienation inthe inner ities y trying to p a e a

po i ing strategy within a roaderramework o r an regeneration. Tis was ens red y a tion dire ted not j stagainst serio s rimes t at a typeso o en es in ding petty “q a ity o i e” o en es ike gra ti, vagran y,

ittering et . A simi ar zero to eran estrategy has een o owed over a m h

onger period y Singapore and in othities, s stantia red tion in the rates

o rime o d e a hieved.

6.6.2 In o r o ntry there is a tenden y or some en or ement agen ies not to

rigo ro s y en or e the provisions o aw. Tis is q ite evident in ase o

tra re ated vio ations, ivi o en es,in ringement o po tion ontro awset . For their part, sometimes, the

156 157


Bo 6.1: Zero olerance Policing

Te “zero to eran e” po i ing invo ved a ro st and proa tiveapproa h y the po i e towards petty rimina s and those g i ty o degrading the r an environment.

Tis more aggressive sty e o po i ing was om ined with

making o a ommanders dire t y a o nta e or theirper orman e. wi e week y “compstat” meetings had o apre in t ommanders gathered in the NYPD war roomto review rime statisti s and e ross-examined on theirper orman e. Some o ers per ormed we . Some did not,and were to d to ret rn with proo that the p ro em had eenta k ed e e tive y. Some were demoted or resigned. Te so eo je tive o the exer ise at every stage was ear: the red tiono rime. Te rime g res responded extreme y we to thiszero-to eran e approa h.

• Overa rime e y 54 per ent etween 1992 and 2000(So r e: civitas)

• between 1993 and 2000, New York nderwent a 67 perent de rease in the tota amo nt o ro eries.

• Te mans a ghter and m rder rate a so de reased y 72per ent in the same period.

Zero to eran e po i ing is not eno gh in itse . Po iti a eadersneed to give the po i e nswerving po iti a s pport as they takedetermined a tion to red e rime. Tis was the ase in New

York, where Mayor G i iani gave his a king to the po i ein their ght against rime.

So r e:http://www.re orm. o. k/we site/re ormaro ndthewor d/newyork.aspx



ommon itizen is eq a y to ame or o ting r es with imp nity and witho t regard top i hea th, sa ety and onsideration or others. A ra kdown on these types o o en es insome ities ike De hi, whether en or ed y co rts or other wise, have tended to operate as

ampaigns and may there ore e na e to reate and s stain a ong term impa t e a se they are driven y persona ities or y o rt verdi ts rather than y the instit tions themse ves.

6.6.3 Instit tiona ising a zero to eran e strategy toward o en es in the ities req ires aom ination o proa tive eadership and organisationa re orms sed with in entives and

pena ties or the e d eve n tionaries o the vario s agen ies invo ved (in ding thepo i e). Independent monitoring me hanisms wo d have to e evo ved whi h wo d ho dp i n tionaries answera e or non-en or ement o aws/r es. Modern te hno ogy in ding the se o I , GIS mapping, sate ite imagery and e e troni s rvei an e an

a i itate this exer ise. Despite the a t that many en or ement agen ies pay ip servi e tothe type o a o nta i ity me hanisms as mentioned a ove, there is re tan e to on rontthe stat s q o y going eyond the genera ities to orm ate and app y simp e parametersdesigned to eva ate the per orman e o the en or ement o ia s and then reate appropriatein entives and pena ties or them. Te cOMPS A 66 strategy sed y th e New York Po i eprovides one s h mode whi h o d e s ita y adapted not j st y the po i e t a so

y other agen ies in order to imp ement a road ased zero to eran e strategy to red e atypes o o en es in ding serio s rimes and reate onditions in whi h p i tranq i ity

an e preserved on a ong term asis. At the same time, a zero to eran e po i ing strategy sho d e om ined with initiatives to invo ve the omm nity in po i ing and rimeprevention n tions so that a se o ivi rights and i erties are avoided.


a. All public agencies should adopt a zero tolerance strateg towards crime, inorder to create a climate o compliance with laws leading to maintenance o public order.

b. Tis strateg should be institutionalised in the various public agenciesb creating appropriate statistical databases, backed up b moderntechnolog , to monitor the level and trends o various t pes o o ences and link these to a s stem o incentives and penalties or the o cials working in

these agencies. It should be combined with initiatives to involve thecommunit in crime prevention measures.

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P i Order

7REFORMS IN HE CRIMINAL JUS ICE SyS EM

7.1 Role o the Criminal Justice S stem

7.1.1 A strong and e e tive rimina j sti e system is a ndamenta req irement o theR e o law. Te rimina j sti e system omprises the po i e (investigation), the prose tor(prose tion), the o rts (tria ) and the prison (p nishment and re orms). Te ro e o thepo i e is, no do t, important in dea ing with imminent threats to pea e and order as weas in ta k ing vio en e when it er pts. However, or s staining pea e and order in so iety on a ong term asis, the ro e o other wings o the rimina j sti e system is even moreimportant. It is the rimina j sti e system whi h prote ts a aw a iding itizen and detersa potentia aw reaker. Te essen e o an e ient rimina j sti e system is that the tria o an a sed sho d e swi t and p nishment or a rimina sho d e ertain and deterrent.In this regard, o r tra k re ord has een rather disma , with de ays, mo nting penden y

and a ing onvi tion rates eing major short omings. Tere are inn mera e examp eso prits, in ding those ommitting heino s o en es, going s ot- ree. A ormer chie J sti e o India o served:

“Te criminal justice delivery system appears to be on the verge o collapse due to diverse reasons. Some o the responsibility will have to be shared by the Executive brancho the State. Not much has been done or improvement o the investigative & prosecutionmachinery. Signi cant suggestions or separation o Investigative wing rom Law & Order duties and changes in rules o evidence still lie unattended. he public outrage over the ailure o the criminal justice system in some recent high pro le cases must shake us all up intothe realisation that something needs to be urgently done to revamp the whole process, though steering clear o knee jerk reactions, remembering that law is a serious business.” 67

67 Spee h at the ina g ration o the Joint con eren e o chie J sti es and chie Ministers he d on 11th Mar h 2006 y Hon’ e Mr. J sti e Y.K. Sa harwa ; chie J sti e o India

66 cOMPS A is the name given to the interna a o nta i ity me hanism to monitor rimes in New York Po i e Department. It makes extensive se o In ormation e hno ogy too s.



7.1.2 o q ote romIndia’s Legal System: Can it be Saved? (2006), a thored y the veteranega expert, Fa i S. Nariman, “Te penden y o rimina ases in the s ordinate o rts

is in the region o 1,32,00,000 ases and thee e tive strength o j dges in s ordinate

o rts is on y 12,205. co rts are a e to

dispose o , on an average, on y 19 per ent o the pending rimina ases ea h year.”

7.1.3 here is a genera per eption thatone an ommit an o en e with imp nity.Te pro i eration o rime has generated a

ee ing that rimina a tivity has e ome ahigh ret rn and ow risk a tivity and th sa pro ta e vent re. En or ement o evensimp e ivi aws is so poor that it gives riseto the ‘broken Window Syndrome’. For avi tim, it is an phi task to get j sti e. Inthe rst instan e, it is di t to get an FIR registered. Even a ter the FIR is registered,investigation pro eeds in a as a and an

npro essiona manner. On e the ase isharge-sheeted it may take severa years or

the on sion o the tria . Making repeatedvisits to the o rt is s a y an np easantexperien e or the vi tim and the witnesses. D ring tria , witnesses o ten resi e rom theirorigina statements. Prose tion is o ten ine e tive e a se o a k o oordination withinvestigation. Te net res t in many ases is the a q itta o the prit who had a t a y

ommitted the rime. Tis, apart rom em o dening the a sed, a so eads to yni ismin the minds o aw a iding itizens. Te re ent p i o t ry against the a q itta o thea sed in some high pro e ases is a pointer to this deeper ma aise. Immediate restorationo the peop e’s aith in the rimina j sti e system is there ore vita in the interests o p iorder and a j st so iety.

7.1.4 Te re orms req ired in the rimina j sti e system wo d in de the o owing:

• a i itating a ess to j sti e;• proper investigation;• e e tive prose tion;• etter and swi t tria ; and• improving the prison system.

7.2 Measures aken in the Recent Past

7.2.1 Some meas res have a ready een takenin re ent years to expedite disposa o oth

ivi and rimina ases. P ea argaining hasnow een re ognised y the crimina law Amendment A t, 2005. Tis meas re wo dhe p in dea ing with the arge penden y o

rimina ases and wo d a so provide re ie to ndertria prisoners. Te ‘shi t system’ has

een mooted or the n tioning o o rts.On J y 25, 2006, the chie J sti e o Indiaproposed that o rts work in two shi ts.Te asi idea o the shi t system is that thein rastr t re avai a e an e p t to sed ring the ‘id e’ time o the day. G jarat hasstarted the system o evening o rts in whi hpetty ases are eing heard and de ided. Telaw commission in its 125th Report (1988)had o served:

“Te buildings available to courts are hardly ully utilised, especially the building o the Supreme Court. Courts assemble at 10:30 am and leave at 4 O’ clock. Tere ore, i some Courts start unctioning at 8:30 am, then without spending a arthing on building, additional courts can e ectively operate in the same building….Tere will be slight rise in the expenditure or providing some additional sta to the additional courts” .

7.2.2 On the re ommendations o the 11th Finan e commission, 1734 Fast ra k co rts were san tioned or disposa o ong pending Sessions and other ases and a grant o Rs 502

rore was a so provided or disposing these ases. Te s heme envisages the appointmento ad ho j dges rom among retired sessions/additiona sessions j dges, as we as j dges

promoted on ad ho asis and posted in these o rts rom among mem ers o the bar.Se e tion o j dges wo d e done y the High co rts. State Governments wo d have to

the onseq entia va an ies res ting rom ad ho promotion o j dges thro gh a spe iadrive. Te Fast ra k co rts o Sessions J dge disposed o 133475, 168861 and 171626

ases in 2003, 2004 and 2005 respe tive y. Te lok Ada ats, onstit ted nder the lega

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P i Order Re orms in the crimina J sti e System



Servi es A thority A t, 1987, have eens ess in sett ing a arge n m er o

ases, parti ar y the aims nder theMotor Vehi es A t. Fast ra k co rtshave a so proved to e s ess .

7.2.3 Apart rom strengthening thein rastr t re and in reasing then m er o o rts, a arge n m ero s ggestions have een made toexpedite disposa o ases in o rtso aw. Former chie J sti e o India, J sti e Y K Sa harwa has made severas ggestions68. Nota e among theseare:

• carrying o t a J di ia Impa t Assessment o ea h new egis ation and

making appropriate provisions or reso r es or a gmentation o the j di iary;

• Adopting ase management te hniq es whi h in de69:o Identi ying key iss es in a ase;o En o raging parties to sett e ases or agree on iss es;o S mmary disposa o weak ases and trivia iss es;o De iding the order in whi h the iss es are to e reso ved;o Fixing a time ta e or parties to take spe i steps;o A o ating ea h ase to spe i tra k (Fast ra k/M ti ra k) o rts;

• Adopting co rt Management e hniq es;• c assi ation and assignment o ases;• Managing a se ists in a rationa manner so that nne essary ases are not

posted mere y or the sake o eing a ed o t;• Making se o A ternate Disp te Reso tion methods;• Modernisation and omp terisation o o rts;• Video on eren ing;• Setting p Fast ra k s ordinate o rts;• rans er o petty ases rom reg ar o rts to spe ia o rts;• Adopting dis retionary prose tion;• using modern means o omm ni ation or servi e o s mmons;• cond ting pre-tria hearings;

• En arging the ist o ompo nda e o en es; and• S mission o ‘Statement o Prose tion’ o owed y a ‘Statement o

De en e’.

7.2.4 Te ormer chie J sti e has a so stated that a arge n m er o ases invo ving petty o en es (41,34,024) were pending e ore magisteria o rts. He has s ggested that sin ethe penden y e ore Magisteria co rts is very high, there is need to trans er s h asesto co rts o Spe ia Magistrates, to e sta ed y retired J di ia O ers/retired seniorGovernment servants.

7.2.5 Te commission witho t going into the detai s o ea h o these meas res, wo dreiterate that the s ggestions sho d e given rgent attention and imp emented on apriority asis.

7.2.6 A tho gh the s stantive, ega and pro ed ra iss es pertaining to the re orms in therimina j sti e system are very omp ex, the commission has examined some key e ements

whi h have a dire t earing on the maintenan e o p i order.

7.3 Facilitating Access to Justice - Local Courts

7.3.1 Te meas res en merated a ove are essentia t not s ient in themse ves toimprove a ess to j sti e or a o mmon itizen. Providing itizens with improved a ess to j sti e a so req ires a major thr st on in reasing the n m er o o rts; eq ipping th e o rts with req ired h man, materia and te hno ogi a reso r es; simp i ying their m ersomepro ed res and p a ing an in reased emphasis on se o the o a ang age to de iver swi t j sti e at ower osts.

7.3.2 Te law commission in its 120th Report (1987) had re ommended that the n m ero j dges sho d e in reased so that there are 107 j dges per mi ion pop ation y the endo year 2000. Tis ratio was a hieved y uSA in 1981.Te S preme co rt, in the A India J dges Asso iation ase (Mar h 2003; itation:2002 SOl case No.204), he d as o ows:

“Under the circumstances, we eel it is our constitutional obligation to ensure that the backlog o the cases is decreased and e orts are made to increase the disposal o cases. Apart rom the steps which may be necessary or increasing the e ciency o the judicial

o cers, we are o the opinion that time has now come or protecting one o the pillars o the Constitution, namely, the judicial system, by directing increase, in the rst instance,in the judge strength rom the existing ratio o 10.5 or 13 per 10 lakh people to 50 judges or 10 lakh people. We are conscious o the act that overnight these vacancies cannot be lled. In order to have additional judges, not only the posts will have to be

68 J sti e So hag Ma Jain Memoria le t re on de ayed J sti e De ivered y Hon’ e Shri Y.K. Sa harwa , chie J sti e o India on esday,the 25th J y, 2006

69 case Management as stated y lord Woo in his report “A ess to J sti e”

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created but in rastructure required in the orm o additional court rooms, buildings,sta , etc., would also have to be made available. We are also aware o the act that alarge number o vacancies as o today rom amongst the sanctioned strength remain tobe lled. We, there ore, rst direct that the existing vacancies in the subordinate courts at all levels should be lled, i possible, latest by 31st March, 2003, in all the states. Te

increase in the judge strength to 50 judges per 10 lakh people should be e ected and implemented with the lling up o the posts in a phased manner to be determined and directed by the Union Ministry o Law, but this process should be completed within a period o ve years rom today. Perhaps increasing the judge strength by 10 per 10 lakh people every year could be one o the methods which may be adopted thereby completing the rst stage within ve years be ore embarking on urther increase i necessary”.

7.3.3 Te iss e o the arge penden y o rimina ases with s ordinate o rts was dis ssedin the chie J sti es’ con eren e he d on 9th &10th Mar h 2006 and it was s ggestedthat petty o en es in ding tra and m ni ipa ha ans e trans erred to the co rtso Spe ia Metropo itan Magistrates/Spe ia J di ia Magistrates to e sta ed y retired J di ia O ers and retired senior government o ers.

7.3.4 Whi e serio s o en es req ire high y ski ed and thoro gh investigation, s h higheve o expertise and di igen e are not req ired in most petty o en es or o en es ndero a aws. E orts are a so nderway to reate a system o o a o rts with s mmary

pro ed res and adeq ate sa eg ards o appea and inspe tions, to dea with the argen m er o minor ases at the o a eve . Te commission nderstands that the unionGovernment is ontemp ating the introd tion o a bi reating s h o a o rts withthe o owing eat res:

• One o rt (honorary magistrate) or every 50000 pop ation;• S mmary pro ed res and tria at the s ene o o en e where possi e;• Ex sive j risdi tion o ases o p to one year’s imprisonment and a other

ases spe i ed y aw;• Integra part o independent j sti e system;• Provision or appea ; and• Verdi t within 90 days.

7.3.5 Ear ier, there was a system o se ond ass magistrates whi h worked air y we . Tere were a so honorary magistrates and mo i e o rts. Pan hayats and Vi age co rts were a soempowered to dispense j sti e in petty ases in some parts o the o ntry. A these no

onger exist ex ept that in some a kward area s, Pan hayats (most y aste-dominated) sti

dispense j sti e in orma y (and i ega y). Tere is, there ore, need or a system o o a o rts whi h are easi y a essi e and whi h an dispense j sti e q i k y. Te q estion nat ra y arises whether ‘ o a o rts’ sho d e part o the independent j di iary or whether o agovernments (espe ia y Pan hayats) sho d e empowered to dispense j sti e. Te atter hasstrong sentimenta attra tion, t it has een vehement y arg ed e ore the commission,on eha o weaker se tions, that it wo d e disastro s to empower o a e e ted odies todispense j sti e, espe ia y in the ontext o the ontin ing so ia prej di es, ineq a ities andinj sti es as we as asymmetry in power among o a gro ps in many parts o the o ntry.Te commission has are y onsidered this q estion and is o the view that, at the presentstage o deve opment o o r demo r a y and o a governments, it is desira e to ens re the

on den e o the peop e that o a o rts orm an integra part o the independent j di iary and are there ore independent o any e e ted or exe tive ody.

7.3.6 An in rease in the n m er o tria o rts o d th s e a hieved y setting p a n m ero o a o rts. Tere o d e one s h o rt or a pop ation o 25,000 in r ra areas (in

r an areas this n m er o d e enhan ed). A retired j dge or government o er may e appointed y the Distri t and Sessions J dge in ons tation with his two senior-mosto eag es. Te o a o rt j dge o d e appointed or a period o three years whi h o de extended depending pon his/her per orman e. S h o rts an n tion rom one o

the existing government or o a government i dings. In order to ens re that j sti e isdispensed with swi t y, these o rts sho d o ow s mmary pro ed res and sho d have j risdi tion to try rimina ases where the pres ri ed p nishment is ess than one year(and orresponding ne). An appea rom these o rts sho d e to the Magistrate o Firstc ass who sho d a so have the powers to inspe t these o rts. Te High co rt sho dhave the powers to rame r es or the ond t o siness o the o a o rts. In order toens re ni ormity thro gho t the o ntry, these o rts sho d e onstit ted thro gh a

aw passed y the Par iament.


a. A s stem o local courts should be introduced as an integral part o the judiciar . here should be one such court or a population o 25,000 in rural areas (this norm could be modi ed or urban a reas).

b. Te local courts should have powers to tr all criminal cases where the

prescribed punishment is less than one ear. All such trials should bethrough summar proceedings.

c. Te judge o the local court should be appointed b the District andSessions Judge in consultation with his/her two senior-most colleagues.

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already had an extensive IC in rastructure which is in the process o urther innovationand expansion. Similarly, most o the High Courts are using in ormation technology since 1990 and onwards although the extent o usage varies. Tere is a demand or upgradation o the IC tools and to make it uni orm across the country. Some o the district courts are also using computers but it is essentially or digital transcriptions o court orders and judgments. In states like Karnataka, Delhi and Maharashtra, the IC environment was better at all levels o state judiciary.

Te Supreme Court and all High Courts at their principal seat and benches have internet connectivity, computer rooms equipped with machines and related peripherals. All the Judges o these courts have even been provided with laptops. Desktops/PCs are available with Judges as also the court o cials in some o the States or judicial and administrative work. Te judgements and orders o the Supreme Court and some o the High Courts are available on the internet. Te cause lists o Supreme Court and High Courts are being hosted on their websites.”

7.4.4 In a ordan e with the Nationa Po i y and A tion P an prepared y the e-committee,a ve-year Nationa Programme or comp terisation o the Indian j di iary was a n h edin 2005 to e arried o t in three phases.

7.4.5 In the rst phase, the A tion P an envisages the o owing : provision o aptops to a j dges; awareness and introd tion o Ic and omp ter- ased environment in the j di iasystem; video- on eren ing etween o rt and prisons at 100 o ations; a y deve opedand in ormative we site – www.indianj di iary.in; reation o a Nationa J di ia Data Grid;

reation o committees and High co rt leve committees to monitor and g ide the Icimp ementation in the co rt omp exes; imp ementation o Wi-Fi at the S preme co rtand High co rt premises and reation o comp ter Rooms at co rt omp exes.

7.4.6 Phase II o the A tion P an in des: oordination o Ic in rastr t re or the j di ia system; imp ementation o So tware or J di ia Pro esses at a eve s; reation o re ia e riti a in rastr t re and ontin ation o I training a tivities and extension o training programmes.

7.4.7 Phase III in des: se o advan ed Ic too s, intensive training, wareho sing andmining too stomization to rysta ize hange management, biometri a i ities, Gateway inter a e with other agen ies; pgradation o entra ized a i ity and Digita Ar hive o there ord room and a Digita li rary Management System.

Retired judges or retired government o cers (with appropriate e perience)could be appointed.

d. Tese courts ma unction rom government premises and could alsobe in the orm o mobile courts.

e. Tese local courts ma be constituted b a law passed b the Parliament toensure uni ormit .

7.4 Using In ormation and Communication echnolog (IC ) to Modernize theIndian Courts

7.4.1 Te Nationa In ormati s centre (NIc) has een s pporting the omp terisationprogramme o the S preme co rt, High co rts and the s ordinate o rts or overa de ade now. It has set p cOuR NIc whi h provides in ormation thro gh NIc’snetwork, on pending ases in ding ase ists, stat s reports, dai y a se ist et as we as JuDIS (J dgement In ormation system) whi h is an on ine ase aw i rary ontaining areporta e j dgements o the S preme co rt rom 1950 onwards.

7.4.2 An e-committee was onstit ted y Government in 2004 nder Dr. J sti e G.c.bhar ka to assist the chie J sti e o the S preme co rt in orm ating a nationa p an onthe comp terisation o the Indian J di iary and to advise on the attendant te hno ogi a ,

omm ni ation and management re orms req ired. It made the o owing o servation inits report:

“With the enormous case load and workload, increase o courts, piling o arrears and erosion o values and work culture, the governance and administrative control over the judicial institutions through manual process has become extremely di cult resulting in systematic ailure. Tis has directly impeded judicial productivity leading todisappointment and dissatis action among the justice seekers. Te systematic ailure has occasioned many vices and ill practices bringing disrepute to this constitutional organ.”-Report on Strategic Plan or implementation o IC in Indian Judiciary prepared by the E-Committee constituted by the Government.”

7.4.3 Te stat s and extent o imp ementation o I c in the Indian j di iary was re ent y assessed70 as o ows:

“Te Indian judiciary comprises o nearly 15,000 courts situated in approximately 2,500 court complexes throughout the country. O these, it was ound that the Supreme Court

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70 Dr. J sti e G. c. bhar ka - Modernising Indian co rts - con epts and cha enges



7.4.8 Te commission is o the view that modernisation o the Indian j di iary thro ghse o in ormation te hno ogy needs to e given m h greater impet s, parti ar y o sing

on the ower o rts where the impa t o Ic at present is imited and where m h o the de ay o rs. In reasing the e ien y o the tria o rts wi have a major impa t ondisposa o ases and wi have a m tip ier e e t in terms o improving p i order andinsti ing respe t or the r e o aw.

7.4.9 In parti ar, there is an rgent need to o s on the riti a pro ed res that need toe modernised s h as the o tmoded methods o re ording ora eviden e whi h sho de rep a ed y digita so nd and video-re ording om ined with text trans riptiony trans ri ers working o tside the o rt rooms. A y deve oped I -ena ed ase

management system, in ding on- ine payment gateways or payment o ees and iss e o a thenti ated opies o o rt re ords, and a - edged reengineering o j di ia pro essesto e om ined with se o modern te hno ogy too s wo d improve per orman e o the j sti e de ivery system. Virt a o rts or e-co rts witho t the physi a presen e o a thekey parti ipants viz. awyers, a sed, witnesses, j dges et in the same p a e and rea timem ti-media trans ripts to rep a e paper sho d e the timate goa . Prioritization andse e tion o o rts or the programme o omp terisation ased on eve s o penden y and se o a stering approa h to provide ommon physi a in rastr t re to proximates ordinate o rts thro gh the se o o a area networks(lANs)wo d e an appropriateimp ementation strategy. Tis has to e arried o t in onj n tion with arge-s a e expansionand pgradation o physi a in rastr t re, phasing o t the o d and o tdated o rt i dingsand rep a ing them with modern, state-o -the art i dings with the atest a i ities and

xt res. A Nationa J di ia In rastr t re P an has reported y een drawn p y theNationa J di ia A ademy and has een endorsed y the Ann a con eren e o chie J sti es in Apri , 2007. Imp ementing s h an in rastr t re pgradation p an or o r o rtsin synergy with the a ready approved Nationa P an or comp terisation o the J di iary wo d have a signi ant and positive impa t on j di ia e ien y and prod tivity. And

y providing modern data ases and te hno ogy too s to assess the per orman e o J dges,s h modernization wi he p to enhan e j di ia a o nta i ity as we .

7.4.10 Te commission witho t going into rther detai s o ea h o these initiativesand s ggested meas res wo d reiterate that these need to e imp emented in a phasedmanner ear y.

7.5 Re orms in Investigation

On e a rime is registered, investigation y the po i e egins, whi h prepares the gro nd orprose tion and tria . As mentioned ear ier, it has een o served that very o ten investigationsare done in a s per ia manner with itt e re ian e on modern orensi s ien e. StateGovernments have pres ri ed detai ed po i e man a s whi h ontain e a orate provisionsregarding investigation pro ed res. Tese man a s are o ten not o owed and s pervisionand monitoring o rimina investigations has a so e ome ine e tive. Te Nithari ki ings

on rm that there is arge s a e non-registration o FIRs d e to oth rampant orr ption as we as de ien ies in the rrent departmenta methods o monitoring and review o rimes.Te commission has made wide-ranging re ommendations regarding grant o a tonomy topo i e, emphasis on pro essiona investigation, o s on ‘ rain’ rather than ‘ rawn’, improvingtraining o the po i e, taking steps to improve the mora e o the tting edge n tionarieset . It is expe ted that with these hanges, the q a ity o investigations wo d improvevast y. Te commission has examined in detai two important aspe ts o investigations– registration o FIRs and ond t o inq ests – in the o owing paragraphs.

7.5.1 citizen Friend y Registration o crimes

7.5.1.1 Se tion 154 o the code o crimina Pro ed re, 1973 dea s with the orma ities

pertaining to the re ording o the First In ormation Report, more pop ar y known as theFIR. When in ormation re ating to the ommission o a ogniza e o en e is given ora y to an o er in harge o a po i e station, that o er is req ired to red e it in writing.Te FIR so written sha e read over to the in ormant. S h in ormation whether given in writing or red ed to writing, sha e signed y the person giving the said in ormation anda opy o the FIR sho d e given to the omp ainant. A ter registering the FIR, the o erin harge o the po i e station sha immediate y send a opy o the FIR to the j risdi tiona

o rt. Te po i e o er is o nd to register the FIR and i he/she re ses to do so, thenthe aggrieved person an approa h the s perior po i e o ers. Registration o an FIR setsthe rimina j sti e system in motion.

7.5.1.2 Te Nationa Po i e commission in its Fo rth Report (1980) o served:

“A complaint o ten heard against the police is that they evade registering cases or taking up investigation when speci c complaints are lodged at the police station. In the study conducted by the Indian Institute o Public Opinion, New Delhi, regarding “Image o the Police in India”, over 50% o the respondents have mentioned “non-registration o complaints”, as a common malpractice in police stations. Among the several malpractices,

168 169




it is ranked third, the rst two being (i) showing particular bias towards rich or infuential people in cases involving them or reported by them, and (ii) shielding ‘goondas’ and other criminal elements involved in gambling dens, illicit distillation, etc. Tis malpractice stems rom several actors, including the extraneous infuences and corruption that operates in the system, as well as the disinclination o the sta to take on the additional burden o investigative work in the midst o heavy pressure o several other duties. Among all such actors, the most important one which, in our view, accounts or a substantial volume o crime going unregistered is the anxiety o the political executive in the State Government to keep the recorded crime gures low so as to claim be ore the State Legislature, the public and the press that crime is under control and is even going down as a result o ‘ e cient’ police administration under their charge. Te Chie s o Police and other senior police o cers also nd it easy and convenient to toe the line o the Government in developing such a biased and distorted statistical approach or assessing the crime situation and evaluating police per ormance. As a c onsequence, this attitude o ‘burking’ permeates the entire hierarchy down the line and is refected at the police stations in their reluctance and re usal to register cases when crimes are brought to their notice.” 71

7.5.1.3 Te NPc s ggested the setting p o reporting entres, espe ia y in r an areas where spe i ed itizens may e a thorized to register FIRs and then pass these on to the

on erned po i e station.

7.5.1.4 Te commission is o the view that sin e registering the FIR is the rst step in therimina j sti e system and n ess short omings in the registration pro ed re are set right,

other re orms parti ar y in the s seq ent stages wo d have imited impa t. Tere ore,a system has to e evo ved in whi h registration o FIRs is tota y transparent and instan eso re sa to register FIRs are e iminated.

7.5.1.5 With the rapid spread o omm ni ation a i ities, severa states have tried the seo te hno ogy to make the pro ess o registration transparent. Rajasthan has introd ed aninnovative proje t a ed ‘Aarakshi’ that aims to improve the e ien y o po i e pro ed res.Ea h omp ainant is given a token n m er at the time o registration o his/her omp aint whi h an e sed or t re re eren ing. citizens an then a ess the po i e stationsthro gh the internet and as ertain the stat s o the omp aint. Te s pervising o ers an

a so monitor the progress in investigation. Tis rings a greater degree o a o nta i ity in the investigation. Andhra Pradesh has a n hed a state-wide omp terized network o po i e stations – ‘e- ops’ (e-comp terised Operations or Po i e Servi es). T s, a ter a

ase is registered in the omp ter o the nearest Po i e Station, a printo t o the FIR isgiven to the omp ainant. On e registered, the stat s o the FIR o d e viewed y the

omp ainant rom anywhere y a essing e- ops. Te Tir vananthap ram city Po i e hasdeve oped a system to re eive ertain types o omp aints e e troni a y thro gh its we site.citizens an register any type o omp aint s h as tra pro ems, petty the ts, omm nadist r an es, eve-teasing, pi k- po keting, i i it disti ation o iq or.

7.5.1.6 Te commission ee s that with the rapid expansion o omm ni ation a i ities,espe ia y the internet, a types o omm ni ations to a po i e station sho d e taken

ognisan e o . At the same time, a omp ainant sho d have the option o registeringomp aints thro gh vario s modes. As mentioned, severa methods have een tried to

ens re smooth registration o FIRs. In order to ens re that the registration o rime e omestota y hass e- ree, a ‘ a entre’ approa h is one option. Tis a entre sho d re eive

omp aints rom itizens y means o voi e re ordings or axes. A s h in ormation wo dget registered. Tese omp aints o d then e s r tinised y an a thorized po i e o erand redire ted to the on erned po i e station or registration. S h a system wo d havethe added advantage o preventing ‘ rking’ (i.e. not registering ases). Another option

o d e to set p s ita e o tposts, kiosks or ‘Kobans ’ (as in Japan) to a i itate odging o omp aints. S h kiosks o d a so e given other tasks.

7.5.1.7 Even a ter s h te hno ogi a interventions, a arge n m er o peop e wo d stigo to po i e stations or registering their omp aints. It wo d, there ore, e desira e tohave a ontin o s video-re ording o the itizen-po i e intera tion in a po i e station ands h videos sho d e monitored random y y the s pervising o ers.

7.5.1.8 Apart rom the iss e o registration o FIR, another major iss e is the ontents o theFIR. It is said that“A good FIR must address the six issues o what is the nature o the incident,where and when did it happen, who is reporting and against whom and why did the incident happen. Tese six W’s begin the process o data collection, collation and analysis that hope ully results in the arrest and prosecution o the involved person or persons. In this investigation,additional in ormation gathered rom the witnesses, common citizens, in ormers and even other police o cers is an important step or solving the case.”72

7.5.1.9 As noted y the Nationa Po i e commission (NPc) (1980), FIRs have drawn an m er o o rt r ings that have tended to give nd e importan e to the omission o any sa ient a t in the FIR even i s h omission was d e to the dist r ed or on sed state o

mind o the omp ainant. As a res t, a ording to the NPc, po i e o ers resort to thema pra ti e o de aying the FIR in order to o tain additiona detai s e a se o the inordinateevidentiary va e p a ed y the o rts on the FIR. Te NPc there ore re ommended the

o owing amendments in Se tion 154 crPc to remedy the sit ation:

71 Nationa Po i e commission Report. 72 Te Indian Po i e, Arvind Verma, 2005

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i O d i h i i i S



7.5.2.2 Se tion 176 crPc providesor mandatory magisteria enq iries

in spe i ases. Exe tive Magistrates(who o ten are not thoro g h with aw,

ntrained and a k investigative ski s)genera y have not een ond tingthese inq ests in a pro essiona mannerand ro tine y p the pres ri ed

orms. h s the asi p rpose o inq est – nding the a se o death – isde eated y s h per n tory enq iry.

7.5.2.3 he State Government o Karnataka has iss ed R es73 nderSe tion 174 crPc whi h pres ri ethe manner in whi h investigationsinto a nnat ra deaths have to

e ond ted. Te high ight o theR es is that the inq est has to edone in an open and a o nta emanner assisted y a pro essiona y q a i ied gro p. he Exe tiveMagistrate has to re ord a inding

ased on appre iation o eviden eo e ted as to whether the nnat ra

death is to e onsidered an a ident, s i ide or homi ide. Te commission is o the view that the ond t o inq ests sho d e open and transparent and invo ve

itizens’ gro ps and pro essiona s, so that proper enq iry is ond ted in a ases o nnat ra deaths.


a. All State Governments should issue Rules prescribing in detail the procedureor inquests under Section 174 CrPC.

7.5.3 Statements Made be ore a Police O cer

7.5.3.1 One iss e whi h was ro ght e ore the commission parti ar y y po i e o ers, was the distr st o the po i e i t into the rimina j sti e system. A mani estation o

• Po i e sho d e a owed to q ery the in ormant to o tain additionadetai s and ari ations;

• Make it ear that registration o FIR is mandatory, whether or not thea eged o en e has taken p a e within the j risdi tion o the po i estation; and

• A ow onstit ent nits o the po i e station s h as po i e o tposts et toa so re ord FIRs.

7.5.1.10 Government and senior po i e o ers q ite right y ay emphasis on keeping therime sit ation nder ontro . un ort nate y, this message has o ten een misinterpreted

down the ine and res ts in rking to keep th e n m er o ases ow. Tis nd e emphasison rime statisti s to assess per orman e o a po i e station th s needs to e dis o raged. Tecommission is o the view that a more o je tive riteria sho d e evo ved or eva ating theper orman e o the po i e station. Emphasis sho d e o n the n m er o ases s ess y dete ted and prose ted and not ne essari y on the n m er o rimes registered.

Te commission is o the view that the a ove mentioned steps and se o te hno ogy wo dgo a ong way in making the registration o FIRs hass e- ree.


a. Registration o FIRs should be made totall citizen riendl . echnolog shouldbe used to improve the accessibilit o police stations to the public.Establishing call centers and public kiosks are possible options in thisregard.

b. Police stations should be equipped with CC V cameras in order to prevent malpractice, ensure transparenc and make the police more citizen- riendl .Tis could be implemented in all police stations within a time rame o ve ears.

c. Amendments to the CrPC should be made as suggested b the National PoliceCommission.

d. Te per ormance o police stations should be assessed on the basis o the casessuccess ull detected and prosecuted and not on the number o cases registered.Tis is necessar to eliminate the widel prevalent malpractice o ‘burking’

o cases.7.5.2 Inq ests

7.5.2.1 Se tion 174 o the code o crimina Pro ed re pres ri es what sho d e done when an nnat ra death is dis overed or reported.

73 Te R es have een iss ed vide Noti ation No. HD 95 cOD 99(Part-I), dated 24th Jan ary, 2004

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P i O d R i th i i J ti S t



this is the provision in the code o crimina Pro ed re that a statement made e ore thepo i e sha not e signed y the person making the statement and that it o d e sedin the co rt on y to ontradi t the witness and not to orro orate. Te prime reasons orin ding this provision in the crPc was to ens re that po i e does not o tain statementsthro gh oer ion.

7.5.3.2 Te code o crimina Pro ed re ( hapter XIV) a ong with the Indian Eviden e A t dea s with a aspe ts o investigation:

161. Examination o witnesses by police.-

(1) Any police o cer making an investigation under this Chapter, or any police o cer not below such rank as the State Government may, by general or special order, prescribe in this behal , acting on the requisition o such o cer, may examine orally any person supposed to be acquainted with the acts and circumstances o the case.

(2) Such person shall be bound to answer truly all questions relating to such case put to him by such o cer, other than questions the answers to which would have atendency to expose him to a criminal charge or to a penalty or or eiture.

(3) Te police o cer may reduce into writing any statement made to him in the

course o an examination under this section; and i he does so, he shall mak e aseparate and true record o the statement o each such person whose statement he records.

162. Statements to police not to be signed: use o statements in evidence.-

(1) No statement made by any person to a police o cer in the course o an investigationunder this Chapter, shall, i reduced to writing, be signed by the person making it; nor shall any such statement or any record thereo , whether in a police diary or otherwise, or any part o such statement or record, be used or any purpose,save as hereina ter provided, at any inquiry or trial in respect o any o ence under investigation at the time when such statement was made. Provided that when any witness is called or the prosecution in such inquiry or trial whose statement has been reduced into writing as a oresaid, any part o his statement,i duly proved, may be used by the accused, and with the permission o the Court, by the prosecution, to contradict such witness in the manner provided by section 145 o the Indian Evidence Act, 1872; (1 o 1872) and when any part o such statement is so used, any part thereo may also be used in the

re- examination o such witness, but or the purpose only o explaining any matter re erred to in his cross-examination.

7.5.3.3 Regarding this matter, three major iss es have drawn the attention o s essivelaw commissions. Tese are:

1. Whether witnesses sho d e made to sign their statements,2. whether the Investigating O er sho d re ord everything that ea h witness

states or he/she sho d re ord the statement o on y those witnesses whosestatement are re evant and to the extent the statement is re evant, and

3. o d the statement y the witness e sed to orro orate any othereviden e?

7.5.3.4. It has een arg ed that this distr st towards the po i e imp i it in Se tions 161 and162 crPc q oted a ove, nne essari y avo rs the a sed as the witnesses onvenient y make se o this to t rn hosti e at the tria stage. S h distr st towards the po i e a so owerstheir se -respe t and eads to nethi a pra ti es and onseq ent damage to the rimina j sti e de ivery. Tis has een vivid y ro ght o t in a n m er o sensationa m rder asesd ring the past de ade or so. Te committee on Re orms in the crimina J sti e Systemre ommended as o ows on this iss e :

“In the circumstances, the Committee is o the opinion that:

a. Section 161 CrPC 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 orm. Te statement should be read over i admitted correct should be got signed by the witness;

b. a copy o the statement should be immediately given to the witness.c. Section 162 o the Code should be amended so that the statement can be used

both or corroboration and contradiction.”

7.5.3.5 Te law commission in its 14 th Report (1958) re ommended:

“When a police o cer records a statement under Section 161 o CrPC, the personmaking the statement, i he is able to read it or himsel , should be required to read what

has been written and sign and date it and certi y that it is correct record o his statement.

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Te law should be amended so as to provide that the investigating o cer should record the statement o every person that the prosecution proposes to examine as a witness, and the statement should as ar as possible be in the witness’s own words”.

7.5.3.6 Te law commission in its 37 th Report (1967) stated:

“the signature o the witness in these circumstances, add very little to the strength o the statement recorded by the police o cer. It is true that the statement could be used to contradict the evidence o the witness in court, to the extent permitted by Section162. But, then, it can reasonably be envisaged that in every case where a witness is con ronted with the statement be ore the police o cer by showing him the signature to it he would invariably take the plea that his signature was given under duress or without reading what was recorded. It is not a statement made on oath. Te strength given by the signature o the witness below such a statement would be very little.

It has been said, that a literate person can read the signed statement himsel , and see whether it is correct, whereas an illiterate person cannot read his statement and could be duped by the police o cer. But there is no assurance that the literate persons will not be threatened by him. I a witness challenges a police o cer that the statement which has been recorded is not correct according to his version, he cannot urge that an amendment

should be made, by ling an a davit.Upon a reconsideration o the question, thus, we are unable to accept this recommendationo the 14th Report. Our reasons in this respect may be briefy re-stated-

a. the calibre o persons who are in the Police has not improved, and mal-practices in police investigation still continue to exist;

b. the requirement that witnesses making statements be ore the police should sign the statements, will not serve any use ul purpose;

c. such requirement may even deter the witnesses rom making such statement.”

7.5.3.7 Te law commission in the 41 st Report (1969), however, expressed di erent views.Tey o served:

“ he permissive and discretionary provisions now contained in Section 161

{“may examine orally” in Section 161(1) and “may reduce in writing” in Section 161(2)}should not be ettered down in any way.

Te word truly should be inserted a ter the words ’bound to answer’.

Tat a witness who can read his statement should be required to sign it.

Police statements are, at present, available or contradicting a witness, and to make themavailable or corroborating the same witness seems merely to complete the picture. Actually,however, there is a material di erence between contradiction and corroboration; and what is good enough or contradicting a witness is not always good enough or corroborating him. It is obvious that i a witness says one thing at one time and another at another time, it is a prima acie good ground or distrusting him; but i a witness says the same thing every time he is questioned, the reason or trusting him is not so obvious: many liars are consistent. Te policy o law in permitting a witness to be contradicted by a police statement and not permitting him to be corroborated by the same statement is basically sound and sensible. On the other hand, there seems to be considerable risk (in the existing circumstances) in extending the scope o the proviso along the suggested lines.

We are, there ore, not attracted by either proposal; and, apart rom the change we have suggested above in regard to the rst part o section 162(1), we are content, like the previous Law Commission to leave the substance o the second part and provisounchanged.”

7.5.3.8 Te Nationa Po i e commission a so examined this iss e and was o the view that

instead o re ording the statement o witnesses, the investigating o er sho d make astatement o a ts. It was a so s ggested th at a great meas re o redi i ity o d e impartedto the statement o a ts i it is provided that a opy o the statement, i desired y the witness, sho d e handed over to him/her nder a know edgement.

7.5.3.9 Te law commission in its 154th Report (1996), revisited this iss e on e aga in:

“A ter giving our earnest consideration and in view o the act that there is unanimity in respect o the need or making substantial changes in the law, we proposed that there should be changes on the ollowing lines:

“As recommended by the National Police Commission in its 4th Report, the Investigating O cer can make a record o the acts as ascertained by him on examination o witnesses which statements could be in the third person in the language o the Investigating O cer himsel . Tis ensures that the material witnesses have been examined at the earliest moment. Such a statement recorded in third person cannot be treated as a previous statement and consequently c annot be used or contradiction or corroboration. o that extent, a change in section 162 CrPC is necessary. Te signature o the witness on the statement thus recorded need not be obtained. But, i the witness so examined desires a

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copy o such statement so recorded shall be handed over to him under acknowledgement.o refect the shi t in emphasis, a corresponding amendment to Section 172 should also

be made to the e ect that the Investigating O cer maintaining the case diary should mention about the statement o the circumstance thus ascertained, and also attach tothe diary or each day, copies o the statement o acts thus recorded under Section 161CrPC Neither the accused nor his agent shall be entitled to call or such diaries whichcan be put to a limited use as provided under Section 172 CrPC Under the existing provisions o the Code, the preparation o the earliest recorded o the statement o witness is le t in the hands o Investigating O cer and as the mode o recording as provided in Section 162 does not ensure the accuracy o the record (It is well known that many good cases are spoiled by insidious incorrect entries at the instance o the accused and it is also well known that many innocent persons are sent up along with the guilty at the instance o the in ormant’s party) it is necessary amend Section 164 CrPC so as to make it mandatory or the Investigating O cer to get statements o all material witnesses questioned by him during the course o investigation recorded on oath by the Magistrate. Te statements thus recorded will be o much evidentiary value and can be used as previous statements. Such recording will prevent the witnesses turning hostile at their ree will. Such a change will also help the police to complete the investigation and submit a nal report on the basis o such statements made on oath and on other acts and circumstances, such as recovery, etc.). On the above mentioned lines, the relevant Sections can be amended as ollows:

7.5.3.10 Te law commission on ded y stating:

“As recommended, i a separate investigating agency manned by o cers o high caliber and integrity is established, the statements o acts by them will be more authentic. Keeping in view that the witness may prevaricate and the handicaps the de ence may ace, it is desirable that the statements should b e recorded under Section 164 o the Code”.

7.5.3.11 Te commission dis ssed this iss e with a gro p o h man rights a tivists in a workshop o-organised with the commonwea th H man Rights Initiative (cHRI). Teh man rights a tivists were against the grant o any more powers to the po i e and werenot in avo r o the re ommendations made in the Report o the committee on Re ormso crimina J sti e System.

7.5.3.12 Te commission has examined this iss e in detai . With the imp ementation o arge s a e re orms proposed in this Report, it is expe ted that po i e investigation wo de ome m h more pro essiona and n iased and wi e s pervised y a ody o ega and

other experts. Te itera y eve s in India have improved tremendo s y and wi improve

rther. Tere sho d there ore e no di ty in making witnesses sign their statements.Tis wo d ring more serio sness in the witnesses, whi e deposing e ore the po i e and wo d red e the possi i ity o witnesses t rning hosti e at a ater stage. Te commission iso the onsidered view that as a pa rt o the re orms regarding investigation, Se tions 161 and162 o crPc sho d e amended to provide or signing o the statement given y witnesses, whi h wo d e sed or oth orro oration and ontradi tion. In the ase o important witnesses, in addition, there sho d e a dio or video re ording o their statements.


a. Sections 161 and 162 o CrPC should be amended to include theollowing:

i. Te statement o witnesses should be either in narrative or in questionand answer orm and should be signed b the witness.

ii. A cop o the statement should be handed over to the witnessimmediatel under acknowledgement.

iii. Te statement could be used or both corroboration and contradictionin a Court o Law.

b. he statements o all important witnesses should be either audio or video recorded.

7.5.4 con essions e ore Po i e

7.5.4.1 Another provision o aw whi h distr sts the po i e is Se tion 25 o the IndianEviden e A t. Tis provides that no on ession made to a po i e o er sha e sed againsta person a sed o any o en e ex ept that portion o on ession whi h eads to dis overy o materia eviden e. Tis ar app ies to re ording o on ession y a po i e o er irrespe tiveo his rank. It has een arg ed y po i e o ers that in ertain heino s rimes and organised

rimes, getting independent eye witnesses is extreme y di t and that this em argo hased to many nethi a pra ti es.

7.5.4.2 Te law commission in its 48th Report (1972) stated as o ows:

“(1) In the case o a con ession recoded by a Superintendent o Police or higher o icer, the con ession should be admissible in the sense that the bar under sections 25 -26, Evidence Act, should not apply i the ollowing conditions are satis ed:-

(a) the said police o cer must be concerned in investigation o the o ence;(b) he must in orm the accused o his right to consult a legal practitioner o his

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choice, and he must urther give the accused an opportunity to consult such legal practitioner be ore the con ession is recorded;

(c) at the time o the making and recording o the con ession, the counsel or the accused, i he has a counsel must be allowed to remain present. I the accused has no counsel or i his counsel does not wish to remain present, this requirement will not apply;

(d) the police o cer must ollow all the sa eguards as are now provided or by section164, CrPC in relation to con essions recorded by Magistrates. Tese must be ollowed whether or not a counsel is present;

(e) the police o cer must record that he has ollowed the sa eguards at (b), (c) and (d) above.

(2) In the case o a con ession recorded by an o cer lower than a Superintendent o Police, the con ession should be admissible in the above sense i the ollowing conditions are satis ed:-

(a) the police o cer must be concerned in investigation o the o ence;(b) he must in orm the accused o his right to consult a legal practitioner o his

choice, and he must urther give the accused an opportunity to consult such legal practitioner be ore the con ession is recorded;

(c) at the time o the making and recording o the con ession, the counsel or the accused must be present. I the accused has no counsel or i his counsel does not wish to remain present, the con ession should not recorded;

(d) the police o cer must ollow all the sa eguards as are now provided or by section164, CrPC in relation to con essions recorded by Magistrates.

(e) the police o cer must record that he has ollowed the sa eguards at (b), (c) and (d) above.”

7.5.4.3 Te law commission in its 69th Report (1977) revisited this iss e and re-a rmedthe s ggestion made in the 48th Report.

7.5.4.4 On e again the law commission examined this s je t in great detai in its 185thReport (2003).

“Te Court quoted an article saying that “the technology o torture all over the world is growing ever more sophisticated – new devices can destroy prisoner’s will in a matter o hours – but leave no visible marks or signs o brutality.” Te Court observed, “Many police o cers, Indian and oreign, may be per ect gentlemen, many police stations, here and elsewhere, may be wholesome. Even so, the law is made or the generality and

Gresham’s law does not spare the police orce.” Te Court quoted rom Miranda vs. Arizona 384 US 436 and orm the Wickersham Commission Report and cases o interrogation by police to extract con essions. Te police, the Court said must give rest toits sts and restlessness to its wits. Te Court re erred to Art.20(3) and to the right against ‘sel incrimination’ and the right to silence. Te Court re erred to Art.22(1) and the right to consult a lawyer which is available even i a person is not under arrest. Te Court nally emphasized (see para 68 o SCC):

“Special training, special legal courses, technological and other detective updating, are important. An aware policeman is the best social asset towards crimelessness… More importantly, the policeman must be released romaddiction to coercion and be sensitized to constitutional values.”

Te experience o the Law Commission in seminars held in relation to the ‘Law o Arrest’ during the year 2000 showed that several senior police o cers suggested that the suspicionand stigma against arrest by police or in regard to police investigation while in c ustody is no longer warranted. Te plea was that arrest should be allowed to be made on mere suspicion and that con essions to police must be made admissible. Tese suggestions, inour view, do not take into consideration the ground realities today as disclosed by the press and Court judgments as to what is happening inside a police station and these

suggestions overlook the importance o clause (3) o Art.20 and Art.21. Further, the annual reports o the National Human Rights Commission are abundant evidence o the violence police are inficting on prisoners and the said Commission has recommended to government in several cases to pay compensation to the victims o police violence.Tese are also widely reported in the press.

Tere ore, we are compelled to say that con essions made easy, cannot replace the need or scienti c and pro essional investigation. In act, the day all con essions to police,in all types o o ences (other than those relating to a ew speci ed categories like con essions by terrorists to senior police o cers) is permitted and becomes the law, that will be the day o the demise liberty. Te police will no longer depend on scienti c techniques o investigation.

It is true, the provisions o certain special Acts dealing with terrorists or organised crime

(such as the ADA or the PO A or the Maharashtra Organised Crime Act and other similar State Acts) contain provisions or recording con essions by and be ore senior o cers o the level o Superintendents o Police and or treating them as admissible, subject tocertain conditions. Tere is good reason or doing so. In the case o such grave o ences,like terrorism, it is normal experience that no witness will be orthcoming to give evidence

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against hard-core criminals. Further, these o ender belong to a class by themselves requiring special treatment and are di erent rom the usual type o accused.

Te exception made in cases o ‘terrorists’ should not, in our view, be made applicable to all accused or all types o o ences. Tat would erode seriously into Article 21 and sections 24 and 25 o the Evidence Act and violate Art.14. Exception cannot become the rule.”

7.5.4.5 Te committee on Re orms o crimina J sti e System, 2003 a so went into thisiss e and re ommended:

“Hence, we recommend that section 25 o the Evidence Act may be suitably substituted by a provision rendering admissible, the con essions made be ore a Police O cer o the rank o Superintendent o Police and above. Provision should also be made to enable audio/video recording.”

7.5.4.6 Te commission dis ssed this iss e with some h man rights a tivists. Tey wereopposed to any s h power eing given to the po i e and were o the view that the existingprovision o taking an a sed e ore a magistrate or re ording on essiona statementssho d ontin e.

7.5.4.7 Te commission st died the position in di erent o ntries and its ndings ares mmarized as o ows:

• china (Hong Kong, SAR): con essions and statements are not admissi e where it is shown that they were not vo ntari y given. However, they an eadmissi e in ir mstan es where there is on y a pro ed ra irreg arity in theirtaking down.74

• united Kingdom: Po i e and crimina Eviden e A t 1984, Se tion 76(2)provides:“I , in any proceedings where the prosecution proposes to give in evidence a con essionmade by an accused person, it is represented to the court that the con ession was or may have been obtained— (a) by oppression o the person who made it; or (b) in consequence o anything said or done which was likely, in the circumstances

existing at the time, to render unreliable any con ession which might be made by him in consequence thereo ,

the court shall not allow the con ession to be given in evidence against him except in so ar as

the prosecution proves to the court beyond reasonable doubt that the con ession(notwithstanding that it may be true) was not obtained as a oresaid”.

• Germany: Po i e interrogations o a s spe t are governed y pro ed ra aw (StPO s 136, 136a). At the initia interrogation, the a sed m st e to d o the

harges against him and o his right to ons t with an attorney. Statementsmade d ring the interrogation wi e admitted in o rt provided they have

een o tained witho t the o owing disq a i ers: the se o or e, tri kery orde eit, threats, dr gs, hypnosis or exha stion.75

• So th Korea: For on essions made e ore the po i e to e sed aseviden e o g i t, there m st e a showing o (1) the vo ntary nat re o the on ession, (2) d e pro ess eing o owed in o taining the on ession,(3) the esta ishment o the tr th o the do ments, (4) the re ia i ity o the

on ession, and (5) existen e o s pporting eviden e.76

• uSA: Te andmark j dgement Miranda v. Arizona {384 u.S. 436 (1966)},ari ed the position:“ o summarize, we hold that when an individual is taken into custody or otherwise deprived o his reedom by the authorities in any signi cant way and is subjected to questioning, the privilege against sel -incrimination is jeopardised. Procedural sa eguards must be employed to protect the privilege, and unless other ully e ective means are adopted to noti y the person o his right o silence and to assure that the exercise o the right will be scrupulously honored, the ollowing measures are required.He must be warned prior to any questioning that he has the right to remain silent,that anything he says can be used against him in a court o law, that he has the right to the presence o an attorney, and that i he cannot a ord an attorney one will be appointed or him prior to any questioning i he so desires. Opportunity to exercise these rights must be a orded to him throughout the interrogation. A ter such warnings have been given, and such opportunity a orded him, the individual may knowingly and intelligently waive these rights and agree to answer questions or make a statement.But unless and until such warnings and waiver are demonstrated by the prosecution at trial, no evidence obtained as a result o interrogation can be used against him” .77

• So th A ri a: Se tion 217 o the crimina Pro ed re A t stip ates:“(1) Evidence o any con ession made by any person in relation to the commission o any o ence shall, i such con ession is proved to have been reely and voluntarily made by such person in his sound and sober senses and without having been unduly infuenced thereto, be admissible in evidence against such person at criminal proceedings relating to such o ence: Provided –

74 Wor d Fa t ook o crimina J sti e Systems; http://www.ojp. sdoj.gov/ js/p /as ii/w jhon.txt 75 Wor d Fa t ook o crimina J sti e System; http://www.ojp. sdoj.gov/ js/p /as ii/w jger.txt76 Wor d Fa t ook o crimina J sti e System; http://www.ojp. sdoj.gov/ js/p /as ii/w jsko.txt77 http://www.to ro aw.ed /pat h/Miranda/#F71; retrieved on 5-4-07

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(a) that a con ession made to a peace o cer, other than a magistrate or justice, or,in the case o a peace o cer re erred to in section 334, a con ession made to such peace o cer which relates to an o ence with re erence to which such peace o cer is authorized to exercise any power con erred upon him under that section, shall not be admissible in evidence unless con rmed and reduced to writing in the presence o a magistrate or justice; and ...”

7.5.4.8 Tere are severa aws in India where the investigating o er has een given thepower to re ord on essions o the a sed:

1. Se tions 8 and 9 o the Rai way Property un aw Possession A t, 1996; {Every s h inq iry as a oresaid, sha e deemed to e a “j di ia pro eeding” withinthe meaning o Se tions 193 and 228 o the Indian Pena code (45 o 1860)}.

2. Se tion 108 o c stoms A t, 1962; “Apex co rt has he d that:- A c stomO er is nder the A t o 1962 not a Po i e O er within meaning o Se tion25o the Eviden e A t and statements made e ore him y a person who is arrestedor against whom an inq iry is made are not overed y Se tion 25 o the IndianEviden e A t”78

3. Se tion 18 o ADA o 1987 (the constit tiona ity o the same was phe d y

the S preme co rt in Kartar Singh v State o P nja : (1994) 3 Scc. 569. Te A t has sin e apsed.)

4. Se tion 18 o the Maharashtra contro o Organised crime A t, 1999: “18. Certain con essions made to police o icer to be taken into

consideration. --(1) Notwithstanding anything in the Code or in the Indian Evidence Act, 1872

(1 o 1872), but subject to the provisions o this section, a con ession made by a person be ore a police o cer not below the rank o the Superintendent o Police and recorded by such police o cer either in writing or on any mechanical devices like cassettes, tapes or sound tracks rom which sounds or images can be reproduced, shall be admissible in the trial o such personor co-accused, abettor or conspirator:

Provided that, the co-accused, abettor or conspirator is charged and tried

in the same case together with the ac cused.(2) Te con ession shall be recorded in a ree atmosphere in the same language

in which the person is examined and as narrated by him.

(3) Te police o cer shall, be ore recording any con ession under sub-section (1),explain to the person making it that he is not bound to make a con essionand that, i he does so, it may be used as evidence against him and such police o cer shall not record any such con ession unless upon questioning the person making it, he is satis ed that it is being made voluntarily. Te concerned police o cer shall, a ter recording such voluntary con ession,certi y in writing below the con ession about his personal satis action o the voluntary character o such con ession, putting the date and time o the same.

(4) Every con ession recorded under sub-section (1) shall be sent orthwith tothe Chie Metropolitan Magistrate or the Chie Judicial Magistrate having jurisdiction over the area in which such con ession has been recorded and such Magistrate shall orward the recorded con ession so received to the Special Court which may take cognizance o the o ence.

(5) Te person rom whom a con ession has been recorded under sub-section(1) shall also be produced be ore the Chie Metropolitan Magistrate or the Chie Judicial Magistrate to whom the con ession is required to be sent under sub-section (4) along with the original statement o con ession, written or

recorded on mechanical device without unreasonable delay.(6) Te Chie Metropolitan Magistrate or the Chie Judicial Magistrate shall

scrupulously record the statement, i any, made by the accused so produced and get his signature and in case o any complaint o torture, the personshall be directed to be produced or medical examination be ore a Medical O cer not lower in rank than o an Assistant Civil Surgeon.

5. Se tion 32 o Prevention o errorism A t, 200279

“Certain con essions made to police o cers to be taken into consideration.-(1)Notwithstanding anything in the Code or in the Indian Evidence Act, 1872 (1 o 1872), but subject to the provisions o this section, a con ession made by a personbe ore police o cer not lower in rank than a Superintendent o Police and recorded by such police o cer either in writing or on any mechanical or electronic device like cassettes, tapes or sound tracks rom out o which sound or images can be reproduced,shall be admissible in the trial o such person or an o ence under this Act or the rules made thereunder.”

78 Romesh chanra Mehta vs State o West benga , AIR 1970 Sc 940

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79 Tis has een repea ed y the Prevention o errorism (Repea ) A t, 2004.




7.5.4.9 Te commission has s ggested wide-ranging re orms in the str t re o thepo i e. It has een proposed that the investigation agen y sho d e separated rom theState aw and order agen y. It has a so een re ommended that the investigation agen y sho d e s pervised y an a tonomo s board o Investigation. Tis wo d ens re that th eInvestigation Agen y is ins ated against any extraneo s in en es and it wo d n tionin a pro essiona manner. It has a so een re ommended that the sta o the investigationagen y sho d e spe ia y trained or their jo with emphasis on o e ting eviden ethro gh se o orensi too s and es hewing oer ive methods. Moreover the commissionhas re ommended the setting p o a Distri t comp aints A thority and a so a State Po i ecomp aints A thority whi h wo d e e tive y dea with ases o any mis ond t y po i e. With these e a orate sa eg ards there sho d e no reason to ontin e to distr st thepo i e with regard to admissi i ity o statements made e ore them. Te commission is o the view that on essions e ore the po i e sho d e made admissi e. Te commission wo d however re ommend ertain additiona sa eg ards simi ar to those provided nderthe PO A.


a. Con essions made be ore the police should be admissible. All such statementsshould be video-recorded and the tapes produced be ore the court. Necessar

amendments should be made in the Indian Evidence Act.b. Te witness/accused should be warned on video tape that an statement he

makes is liable to be used against him in a court o law, and he is entitled to thepresence o his law er or a amil member while making such a statement. I theperson opts or this, the presence o the law er/ amil member should be securedbe ore proceeding with recording the statement.

c. Te accused should be produced be ore a magistrate immediatel therea ter, whoshall con rm b e amining the accused whether the con ession was obtained voluntaril or under duress.

d. Te above-mentioned recommendations should be implemented onl i the re orms mentioned in Chapter 5 are accepted.

7.6 Prosecution

7.6.1 Te commission has a ready re ommended the introd tion o a system o Distri t Attorneys. It is expe ted that this wo d improve oordination etween the investigationand prose tion, enhan e the q a ity o prose tors and in rease a o nta i ity in theprose tion ma hinery.

7.7 rial

7.7.1 Te J dge’s O igation to As ertain the r th

7.7.1.1 We have ontin ed with the adversaria rimina j sti e system inherited romthe british as opposed to the inq isitoria system preva ent in o ntries s h as Fran e.In the adversaria system the j dge a ows the prose tion and the de en e to present theriva eviden es and ontentions and tr th is arrived at y the weight o s h presentations, whereas in the inq isitoria system the j dge parti ipates in as ertaining the tr th. In theadversaria system, the a an e is ti ted against the prose tion and the vi tim. It o ows thatthe han es o a rimina getting a q itted nder the adversaria system are higher than inan inq isitoria system. However, stri t y speaking, in the a dversaria system the j dge may sti p ay a more a tive ro e. In the ase o Mohan a vs union o India the S preme co rto served as o ows: or consideration is whether the presiding o cer o a Court should simply sit as a mere umpire at a contest between two parties and declare at the end o the combat whohas won and who has lost or is there not any legal duty o his own, independent o the parties to take an active role in the proceedings in nding the truth and administering justice? It is awell accepted and settled principle that a Court must discharge its statutory unctions- whether discretionary or obligatory – according to law in dispensing justice because it is the duty o aCourt not only to do justice but also to ensure that justice is being done.

7.7.1.2 Te S preme co rt, in Smt. Shaki a A d Ga ar Khan vs. Vasant Rag nath Dho eand Another80, o served:

“As pithily stated in Jennison v. Backer (1972 (1) All E.R. 1006), “ Te law should not be seen to sit l imbly, while those who de y it go ree and, those who seek its protection lose hope”. Courts have to ensure that accused persons are punished and i de ciency ininvestigation or prosecution is visible or can be perceived by li ting the veil trying to hide the realities or covering the de ciencies, deal with the same appropriately within the ramework o law. Justice has no avourite, except truth. It is as much the duty o the prosecutor as o the Court to ensure that ull and material acts are brought on record so that there might not be miscarriage o justice”.

186 187

y

80 crimina Appea No. 857 o 1996; (2003)7Scc749




7.7.1.3 In the ase o Zahira Ha i a H. Sheikh and Anr. vs. State o G jarat and Ors.(2004) 4 Scc 158, the S preme co rt stated:

“Right rom the inception o the judicial system it has been accepted that discovery,vindication and establishment o truth are the main purposes underlying existence o Courts o justice. Te operating principles or a air trial permeate the common law in both civil and criminal contexts. Application o these principles involve a delicate judicial balancing o competing interests in a criminal trial, the interests o the accused and the public and to a great extent that o the victim have to be weighed not losing sight o the public interest involved in the prosecution o persons who commit o ences.”

Te co rt rther o served that:

“Since the object is to mete out justice and to convict the guilty and protect the innocent,the trial should be a search or the truth and not a bout over technicalities, and must be conducted under such rules as will protect the innocent, and punish the guilty. Te proo o charge which has to be beyond reasonable doubt must depend upon judicial evaluation o the totality o the evidence, oral and circumstantial and not by an isolated scrutiny.”

With the a ove in mind, the S preme co rt presented the pith and s stan e o th e who edis ssion as o ows:

“Te Courts have to take a participatory role in a trial. Tey are not expected to be tape recorders to record whatever is being stated by the witnesses. Section 311 o the Code and Section 165 o the Evidence Act con er vast and wide powers onPresiding O cers o Court to elicit all necessary materials by playing an active role in the evidence collecting process. hey have to monitor the proceedings in aid o justice in a manner that something, which is not relevant, is not unnecessarily brought into record. Even i the prosecutor is remiss in some ways, it can control the proceedings e ectively so that ultimate objective i.e. truth is arrived at.”

7.7.1.4 Te committee on Re orms o crimina J sti e System o served that in pra ti ethe j dge in his anxiety to demonstrate his ne tra ity s a y opts to remain passive and

tr th e omes a as a ty, as there is no express provision in the rimina aw whi h imposesa d ty on the o rt to sear h or tr th, whi h is the timate o je tive o the rimina j sti e system.

7.7.1.5 Eminent j rist Fa i Nariman has o served:

“Te main problem in our criminal justice system is that there is little room or proactive trial judge to make all manner o procedural orders or ascertaining the truth. Te tools are there, but they are seldom used. Section 311 o the Code o Criminal Procedure o 1973 provides that any court may, at any stage o inquiry,trial or other proceedings, summon any person as a witness, examine any person present though not summoned as witness, recall and re-examine any person already examined, and goes on also to provide that the Court shall summon and examine,or recall or re-examine any such person ‘i his evidence appears to be essential or a just decision o the case’. And the Supreme Court had observed that the requirement o ‘a just decision o the case’ did not limit the action o the Court to something in the interest o the accused only – ‘the action may equally bene t the prosecution’.But despite this decision, this provision remains a dead letter. In practice, rarely does the trial magistrate or the sessions judge ever summon on his own a material witness in a criminal case. He or she leaves it to the prosecution, and i the prosecution ails to call essential witnesses, the accused is a cquitted.” 81

7.7.1.6 Se tion 311 o the code o crimina Pro ed re empowers the o rts to get additionaeviden e. It reads as o ows:

“Any court may, at any stage o 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 i his evidence appears to it to be essential to the just decision o the case.”

7.7.1.7 Te S preme co rt in K want Rai Sharma v union o India (1995 S pp(4) Scc451), so ght a report rom a Distri t J dge on the mysterio s death o a person in the

stody o the Dire torate o En or ement. Te Kera a High co rt a so took a simi ar standin the ase o the stodia death o one Varghese and that o Rajan.

7.7.1.8 Te committee on Re orms o crimina J sti e System re ommended that it isne essary to amend Se tion 311 crPc imposing a d ty on every o rt to s o mot a seprod tion o eviden e or the p rpose o dis overing the tr th and req iring every o rtto take into a o nt the eviden e so o e ted, in addition to the eviden e prod ed y the prose tion.

188 189

y

81 J rist Fa i Nariman in his ook ‘India’s lega System : can it e Saved?’, 2006.




7.7.1.9 A ter onsidering a these a tors, the commission is o the view that there is a strongand ompe ing ase or the j dge to q estion the a sed and the witnesses to as ertainthe tr th and arrive at a j st on sion ased on s h q estioning a ong with the othereviden e e ore him. S h a provision is parti ar y riti a in the tria o terrorism asesand organised rimes whi h a e t so iety at a rge. Amendments to the crPc, as s ggested

y the committee on Re orms o crimina J sti e System, wo d go a ong way to improvethe q a ity o eviden e and there ore o de isions.


a. It is necessar to amend Section 311 CrPC and impose a dut on ever court to suo motu cause production o evidence or the purpose o discovering thetruth, which should be the ultimate test o the criminal justice s stem. Suitableamendments to the Indian Evidence Act, 1872 ma also be made to acilitatethis.

7.7.2 Right to Si en e

7.7.2.1 A entra iss e a ing a rimina j sti e systems is to strike a a an e etweenthe extent to whi h an a sed o d e sed as a so r e o in ormation and his/her rightagainst se in rimination. Right to si en e is a nat ra oro ary o the maxim that noperson an e or ed to give eviden e against one’s own se . Te right to si en e is a egaprote tion enjoyed y an a sed person d ring investigation or tria . Tis right mandatesthat adverse in eren es annot e drawn y the j dge rom a re sa to answer q estions

e ore or d ring a tria or hearing. Te right genera y in des the o owing:

a. A general immunity, possessed by all persons and bodies, rom being compelled on pain o punishment to answer questions posed by other persons or bodies.

b. A general immunity, possessed by all persons and bodies, rom being compelled on pain o punishment to answer questions the answers to which may incriminate them.

c. A speci ic immunity, possessed by all persons under suspicion o criminal responsibility whilst being interviewed by police o cers or others in similar positions o authority, rom being compelled on pain o punishment to answer questions o any kind.

d. A speci c immunity, possessed by accused persons undergoing trial, rom being compelled to give evidence, and rom being compelled to answer questions put to them in the dock.

e. A speci c immunity, possessed by persons who have been charged with a criminal o ence, rom having questions material to the o ence addressed to them by police o cers or persons in a similar position o authority.

. A speci c immunity (at least in certain circumstances, which it is unnecessary to explore), possessed by accused persons undergoing trial, rom having adverse comment made on any ailure (a) to answer questions be ore the trial, or (b) to give evidence at the trial.82

7.7.2.2 Te law commission o India in its 180th Report, 2002 has e a orated a o t theRight to Si en e:

Te right to silence has various acets. One is that the burden is on the State or rather the prosecution to prove that the accused is guilty. Another is that an accused is presumed tobe innocent till he is proved to be guilty. A third is the right o the accused against sel incrimination, namely, the right to be silent and that he cannot be compelled toincriminate himsel . Tere are also exceptions to the rule. An accused can be compelled to submit to investigation by allowing his photographs taken, voice recorded, his blood sample tested, his hair or other bodily material used or DNA testing etc.83

7.7.2.3 Arti es 20 and 21 o the constit tion provide the asis o the right to si en e in

India:“ 20 (1) No person shall be convicted o any o ence except or violation o a law in orce at the time o the commission o the act charged as an o ence, nor be subjected to a penalty greater than that which might have been inficted under the law or in orce at the time o the commission o the o ence.

20 (2) No person shall be prosecuted and punished or the same o ence more than once.

20 (3) No person accused o any o ence shall be compelled to be a witness against himsel .

21 No person shall be deprived o his li e or personal liberty except according to procedure established by law”.

7.7.2.4 Te law commission has a so pointed o t that the ear ier history o these provisionsnder the code o crimina Pro ed re, 1898, is q ite revea ing. Se tion 342(2) o the said

code ontained a provision whi h reads as o ows:

190 19182 R v Dire tor o Serio s Fra d O e, Ex Parte Smith [1993] Ac 1, [1992] 3 A ER 456, [1992] 3 WlR 66, [1992] bclc 879, 95 cr App Rep 19183 law commission o India, 180th Report, 2002




“Sec. 342(2): Te accused shall not render himsel liable to punishment by re using toanswer questions or by giving alse answers to them; but the court and the jury (i any)may draw such in erence rom such re usal or answers as it thinks t.”

7.7.2.5 Tis provision was not, however, repeated in the code o crimina Pro ed re o 1973 and was dropped o vio s y e a se o the g arantee nder a se (3) o Arti e 20

o the constit tion o India whi h ame in to or e in 1950.

7.7.2.6 Te ega position regarding the right to si en e varies in di erent o ntries. Te Ameri an and canadian co rts have not permitted any inroads into the right to si en e whi e british, E ropean and A stra ian co rts permit the j ry and the co rts to takethe si en e o the a sed into onsideration e ore arriving at a nding o g i t eyondreasona e do t, o o rse where a prima a ie ase is made o t and the a sed is in ormedo his right to an attorney.84

7.7.2.7 Te law commission on ded as o ows:

“Te law in India appears to be same as in USA and Canada. In view o the provisions o clause (3) o Art. 20 and the requirement o a air procedure under Art. 21, and the provisions o ICCPR to which India is a party and taking into account the problems aced by the Courts in UK, we are irmly o the view that it will not only be impractical to introduce the changes which have beenmade i n UK bu t any suchchanges will be contrary to the constitutional protections re erred to above. In act,the changes brought about in the Criminal Procedure Code, 1973 leaving out the certain provisions which were there in 1898 Code, appear to have been the result o the provisions o clause (3) o Art. 20 and Art. 21 o our Constitution. We have reviewed the law inother countries as well as in India or the purpose o examining whether any amendments are necessary in the Code o Criminal Procedure, 1973. On a review, we nd that nochanges in the law relating to silence o the accused are necessary and i made, they will be ultra vires o Art. 20(3) and Art. 21 o the Constitution o India.We recommend accordingly.”

7.7.2.8 Te committee on Re orms o crimina J sti e System has arg ed against theright to si en e:-

“Right granted by Article 20(3) is in reality an immunity to the accused rom compulsionto speak against himsel . Even when the accused is not compelled to speak, he has the discretion to speak or not to speak. I he chooses to speak, the court c an draw appropriate in erences rom his statement. Article 20(3) does not in terms speak o any immunity rom drawal o appropriate in erence when the accused re uses to answer. It is di cult to in er how immunity rom drawal o appropriate in erence including adverse in erence fows rom or is a part o the immunity against testimonial compulsions. I the court candraw an adverse in erence against the accused rom his silence there would be less incentive or the police to resort to compulsion or trickery to obtain a con ession. I drawing o such adverse in erence is not permissible it would tend to encourage suchbehaviour. Immunity rom compulsion to be a witness against himsel is a concept o ancient origin long be ore the time o the Star Chamber. Te concept o immunity rom adverse in erence however is o the 20th century. Tis would suggest that immunity rom adverse in erence on silence o the accused would not fow rom immunity against compulsion. It may not be right to say that adverse in erence should always be drawn rom the silence o the accused. Adverse in erence should be drawn only where an answer is reasonably expected rom the accused and not mechanically in every case. Tat adverse in erence would be drawn by a trained judicial mind is su cient to guarantee that it would be exercised reasonably and on irrelevant considerations.

In the considered view o the Committee, drawing o adverse in erence against the accused on his silence or re using to answer will not o end the undamental right granted by Article 20(3) o the Constitution as it does not involve any testimonial compulsion.Tere ore the Committee is in avour o amending the Code to provide or drawing appropriate in erences rom the silence o the accused.”

7.7.2.9 Te committee, there ore, re ommended:

“Section 313 o the Code may be substituted by Section 313-A, 313-B and 313-C onthe ollowing lines :-i) 313-A In every trial, the Court shall, immediately a ter the witnesses or the prosecutionhave 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 o trial and shall, a ter the examination under Section 313-A and be ore he is called on his

192 19384 i id




de ence put such questions to him as the court considers necessary with the object o discovering the truth in the case. I the accused remains silent or re uses 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 in erence including adverse in erence as it considers proper inthe circumstances.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 p unishment or re using to answer any question or by giving alse answer to them. Te answers given by the accused may be taken into consideration in such inquiry or trial, and put in evidence or or against him in any other inquiry into, or trial or, or any other o ence whichsuch answers may tend to show he has committed.”

7.7.2.10 Te british j rist, Jeremy bentham, a most 170 years ago said :

“I all criminals o every c lass had assembled, and ramed a system a ter their own wishes,is not this rule the very rst which they would have established or their security? Innocence never takes advantage o it. Innocence claims the right o speaking, as guilt invokes the privilege o silence.” 85

7.7.2.11 It has een arg ed that the a sed is an important so r e o in ormation and

there are many a ts whi h are so e y within the know edge o the a sed. under s hir mstan es, the right to si en e omes in the way o getting these vita in ormation. Itis a so rged that ‘pro essiona ’ rimina s seek she ter nder this right and are exp oitingthis weakness in the j di ia system.

7.7.2.12 Singapore rtai ed the right to si en e y amending its crimina Pro ed recode in the mid seventies. In the uK, the right to si en e was rtai ed y the crimina J sti e and P i Order A t 1994. Te A t permits the o rt hearing the harge againstthe a sed to draw s h in eren es as may appear proper rom the a t o si en e o thea sed nder ertain ir mstan es:

7.7.2.13 Te commission on examining a these views and on a an e is o the view that tho gh there sho d e a right to si en e in a ases t in ases re ated to organised

rimes and terrorism there is need to empower o rts to draw in eren e rom the si en eo the a sed. Te commission there ore re ommends that co rts sho d have powerto draw in eren e rom the si en e o the a sed d ring tria in ase o spe i ed o en es

ike terrorism and organised rime.


a. Regarding grave o ences like terrorism and organised crimes, in the case o re usal b the accused to answer an question put to him, the court ma draw an in erence rom such behaviour. Tis ma be speci call provided in the

law.7.7.3 Perjur

7.7.3.1 In the a termath o the Zahira Sheikh and Jessi a la ases, the riti a need tota k e perj ry as a rime whi h an s vert j sti e, has ome to the ore ront. Perj ry isgenera y onsidered a major a tor in ringing down onvi tion rates ( or a IPc rimes)in India rom 64.8% in 1961 to 42.4 % in 2005. D ring the same period, or m rder asesthe ompara e rates were 49% and 34%.

7.7.3.2 contrary to pop ar e ie , pres ma y arising rom the in req ent app i ation o these aws, perj ry in India is a rime and its de nition is aid down nder Se tion 191 o the Indian Pena code. Te de nition states that “whoever being legally bound by the oath or by any express provision o law to state the truth or being bound by law to make a declarationon any subject makes any statements which is alse and which he either knows or believes to be alse or does not believe to be true, is said to give a alse evidence” . Te p nishment or givings h a se eviden e in j di ia pro eedings has een aid down nder Se tion 193 o theIPc whi h states that s h an o en e sho d e p nisha e with imprisonment or a term whi h may extend p to seven years.

7.7.3.3 Keeping the growing instan es o perj ry in mind, Se tion 195A was inserted inchapter XI o the Indian Pena code y A t 2 o 2006, there y providing or a p nishmento imprisonment or a term p to seven years, or with ne, or with oth to a person whothreatens any person to give a se eviden e. It a so provides that i an inno ent person is

onvi ted and senten ed in onseq en e o s h a se eviden e with death or imprisonmentor more than seven years, the person who threatens sha e p nished with the same

p nishment and to the same extent.

7.7.3.4 chapter XXVI o crPc dea s with provisions pertaining to o en es a e ting the

administration o j sti e. Se tion 344 therein provides or s mmary pro ed re or tria orgiving a se eviden e. Te p nishment to a person giving a se eviden e nder this Se tion,is imprisonment p to three months or ne extending to ve h ndred r pees, or with oth.Evident y, these provisions are inadeq ate in he king witnesses t rning hosti e on theirown vo ition or thro gh ind ement or threat. o a t as a deterrent, the p nishment nderSe tion 344 crPc sho d e enhan ed to a minim m o one year imprisonment. F rther,

194 19585 reatise on Eviden e at 24; extra ted rom ba an e in the crimina law; Review Gro p on the Right to Si en e; Interim Report; Jan ary 31st, 2007;




7.7.4.4 Te S preme co rt o India in its o servations in the ase o NHRc vs Te Stateo G jarat (2003) regretted that “no aw has yet een ena ted or giving prote tion to witnesses”. later, the co rt whi e trans erring the best bakery ase (2004) rom the G jaratHigh co rt to M m ai a so ordered prote tion to the witnesses in the matter. Te Apexco rt again o served in Zahira Ha i ah Sheikh and another vs State o G jarat andOrs. (2006) 3 Scc 374 that:

“ ime has come when serious and undiluted thoughts are to be bestowed or protecting witnesses so that ultimate truth is presented be ore the Court and justice triumphs and that the trial is not reduced to a mockery.”

Te need or egis ation on the matter was again e t y the co rt whi h stated:

“Legislative measures to emphasise prohibition against tampering with witness, victimor in ormant have become the imminent and inevitable need o the day. Conducts which illegitimately a ect the presentation o evidence in proceedings be ore the Courts have to be seriously and sternly dealt with. Tere should not be any undue anxiety toonly protect the interest o the accused. Tat would be un air, as noted above, to the needs o the society.”

Te Seventeenth law commission took p the two iss es o witness anonymity and witnessprote tion and re eased a detai ed cons tation paper on this iss e in 2004 whi h emphasizedthe need to “ a an e the right o an a sed to an open and air tria with the need or airadministration o j sti e in whi h the vi tims and witnesses an depose witho t ear ordanger o their ives or property or those o their ose re atives”.

7.7.4.5 Te pro em with imp ementing an Ameri an sty e witness prote tion program inIndia is that an individ a Indian’s identity is so inextri a y inked with his so ia gro p, joint ami y and p a e o origin that it may e pra ti a y impossi e to extri ate him romthe same and re o ate him with a resh identity somewhere e se in the o ntry. It is a soextreme y ost y. conseq ent y, witness prote tion programs o that type and s a e may not e easi e ex ept in a sma n m er o very rare ases. Neverthe ess, there is need ora stat tori y a ked witness prote tion programme.


a. A statutor programmme or guaranteeing anon mit o witnesses and or witness protection in speci ed t pes o cases, based on the best internationalmodels should be adopted earl .

196 197

it sho d e ens red that the existing perj ry aws are e e tive y app ied y the tria o rts witho t waiting or the main tria to ome to a on sion.

7.7.3.5 Proving that a hosti e witness has given a se eviden e is a time ons ming andm ersome task and there are roader iss es s h as the need to prote t the anonymity

o witnesses and to give physi a prote tion to them, so that the ph enomenon o witnesses

t rning hosti e is ontro ed. Tese roader iss es, in ding that o signing o statementsy witnesses and the evidentiary va e o their statements e ore the po i e have a ready een dea t with separate y in chapter 6.


a. Te penalties provided under Section 344 CrPC or those ound guilt o perjur a ter a summar trial should be enhanced to a minimum o one ear o imprisonment.

b. It should be made incumbent upon the Courts to ensure that e isting perjur laws providing or summar trial procedure are un ailingl and e ectivel applied b the trial courts, without awaiting the end o the main trial.

7.7.4 Witness Prote tion

7.7.4.1 Witness prote tion and ens ring the anonymity o witnesses is ne essitated y twosets o a tors, one d e to ases o intimidation and threats to the persona sa ety o the witness and, se ond, d e to the parti ar v nera i ity o the witness on a o nt o age,sex or d e to the tra ma that he or she may have s ered.

7.7.4.2 In India, o rts have re ognised the need or and granted witnesses anonymity on a ase y- ase asis, to a imited extent. Tey have a so at vario s times reiterated theneed or a omprehensive egis ation and an instit tiona ized witness prote tion programin the o ntry.

7.7.4.3 Many o ntries, nota y the united States, A stra ia and So th A ri a haveomprehensive witness prote tion programs. Te uS witness prote tion program was

esta ished y the Organised crime contro A t,1970 and o t ines the moda ities y whi h the uS Attorney Genera may provide or re o ation and prote tion o a witness inan o ia pro eeding re ated to organised rime or other serio s o en es. Te programo ers witnesses a new name and o ation as we as physi a prote tion y the uS Marsha s’servi e or the FbI.




events given by her so as to make them appear inconsistent with her allegations.Te court, there ore, should not sit as a silent spectator while the victim o crime is being cross-examined by the de ence. It must e ectively control the recording o evidence in the court. While every latitude should be given to the accused to test the veracity o the prosecutrix and the creditability o her version throughcross-examination, the court must alsoensure that cross-examination is notmade a means o harassment or causing humiliation to the victim o crime. A victim o rape, it must be remembered, has already undergone a traumatic experience and i she is made to repeat again and again, in un amiliar surroundings what she had been subjected to, she may be too ashamed and even nervous or con used to speak and her silence or a con used stray sentence may be wrongly interpreted as discrepancies and contradictions’ in her evidence.” 86

7.7.5.2 Se tion 357 o the code o crimina Pro ed re, 1973 empowers the o rt to orderthe a sed to pay ompensation to any person or any oss or inj ry a sed y the o en e.However, this provision has een sed sparing y and on y in a nomina sense.

7.7.5.3 Severa o ntries have passed vi tim’s rights prote tion aws. For examp e, theVi tims Rights A t 2002, in New Zea and has given severa rights to the vi tims o rime.Tese in de: treating vi tims with o rtesy and ompassion, respe ting their d ignity and

priva y, keeping them in ormed a o t the pro eedings, taking the vi tim’s views on granto ai to the a sed, vi tim’s parti ipation or grant o paro e et .

7.7.5.4 Te law commission in its 144th Report examined this iss e and re ommendedthat a new se tion, 357A may e inserted in the code o crimina Pro ed re. under thisproposed se tion it is provided that every state government wo d prepare a s heme orproviding nds or the p rpose o ompensating the vi tim or his/her dependents whohave s ered oss or inj ry as a res t o the rime.

7.7.5.5 Te commission is o the view that there is need or a aw or the prote tion o vi tims’ rights. S h a aw sho d re ognize the v nera e position o the vi tim, respe t thesensitivities o the vi tim and treat him/her with dignity. Te aw sho d a so provide thatthe prose tion sha ons t the vi tim in ase o grant o ai to the a sed in heino so en es. Simi ar y, even or the re ease o prisoners on paro e the views o the vi tim m st

e taken into a o nt. Te aw sho d a so exp i it y provide or payment o ompensationto the vi tims and or this p rpose a spe ia nd may e reated.

7.7.5 Vi tim Prote tion

7.7.5.1 Tere is a genera impression that the rimina j sti e system avo rs the a sed andthe interests o vi tims are not prote ted a t a . Te vi tim o a rime is mere y a witness inthe entire pro eedings sin e prose tion is a State monopo y with the vi tim having itt esay in the matter. Whi e there are a arge n m er o sa eg ards or the a sed, there is

virt a y no spe ia dispensation or vi tims. A vi tim who has een wronged, apart romthe menta and physi a agony e a se o the rime, has to ndergo hosti e q estioning

y de en e awyers, intimidation y the a sed and is a so treated j st ike any other witness y the o rts. With the ow rate o onvi tion in rimina ases, the vi tim is o tendisi sioned as he/she o ten nds the rimina s eing et o witho t p nishment. Tisa so demora izes the vi tim and erodes his/her on den e in the rimina j sti e system.Te S preme co rt has a so expressed on ern over the p ight o vi tims.

“ here has been lately,lot o criticism o the treatment o the victims o s e x u a l a s s a u l t i nthe court during their cross-examination. he

provisions o Evidence Act regarding relevancy o acts notwithstanding,some de ence counsel adopt the strategy o continual questioning o the prosecutrix as to the details o the rape. Te victim is required torepeat again and againthe details o the rape incident not so much as to bring out the acts onrecord or to test her

credibility but to test h e r s t o r y o r i n c o n s i s t e n c i e s with a view to twist the interpretation o

198 19986 So r e: State o P nja vs G rmit Singh and Others (1996) 2 Scc 384.




are arge y a waste o time and e ort and do not ontri te appre ia y to the e ien y o the tria e ore the co rt o Session. It rther o served that the primary o je t o prote ting the inno ent a sed rom the ordea o a sessions tria has not een a hieved inpra ti e. Te law commission a so re ommended that the prose ting agen y sho d eseparated rom and made independent o its administrative o nterpart, that is the po i edepartment, and that it sho d not on y e responsi e or the ond t o prose tion inthe o rt t it sho d a so have the i erty o s r tinizing the eviden e parti ar y inserio s and important ases e ore the ase is a t a y ed in o rt. Te law commissionre ommended the a o ition o ommitta pro eedings. Te aw was again amended in 1978.Se tion 209 o the code o crimina Pro ed re, 1973 provides or ommitta pro eedings.It reads as o ows:

“209 Commitment o case to Court o Session when o ence is triable exclusively by it – when in a case instituted on a police report or otherwise, the accused appears or is brought be ore the Magistrate and it appears to the Magistrate that the o ence is triable exclusively by the Court o Session, he shall

a. commit, a ter complying with the provisions o Section 207 or Section 208, as the case may be, the case to the Court o Session, and subject to the provisions o this Code relating to bail, remand the accused to custody until such

commitment has been made;b. subject to the provisions o this Code relating to bail, remand the accus ed tocustody during, and until the conclusion o the trial;

c. send to that Court the record to the case and the documents and articles, i any,which are to be produced in evidence;

d. noti y the Public Prosecutor o the commitment o the case to the Court o Session”.

7.7.6.4 It may e noted that tho gh the aw orma y provides or ommitment o a asey a Magistrate, the Magistrate has to on y omp y with the provisions o Se tions 207 and

208 o the crPc and ommit the ase to the co rt o Session. under Se tion 207 and 208it has een stip ated that the Magistrate sho d s pp y opies o ertain do ments to thea sed. T s, nder the present dispensation the Magistrate is not s pposed to re ordthe eviden e o the witnesses. It has een rged e ore the commission that a o ition o

detai ed ommitta pro eedings (in whi h the eviden e o the witnesses o the prose tiono d e re orded) has in reased the time ag etween the ommitment o an o en e andthe re ording o eviden e on oath y the o rt. It has een arg ed that when the systemo detai ed ommitta pro eedings was in vog e the eviden e o r ia witnesses werere orded y the Magistrate and then the a se was orwarded to the co r t o Session. T s,

200 201


a. A new law or protecting the rights o the victims o the crimes ma be enacted.Te law should include the ollowing salient eatures:i. Victims should be treated with dignit b all concerned in the criminal

justice s stem.ii. It shall be the dut o the police and the prosecution to keep the victimupdated about the progress o the case.

iii. I the victim wants to oppose the bail application o an accused he/sheshall be given an opportunit to be heard. Similarl , or release o prisonerson parole, a mechanism should be developed to consider the views o the victims.

iv. A victim compensation und should be created b State Governmentsor providing compensation to the victims o crime.

7.7.6 committa Pro eedings:

7.7.6.1 Te aw governing ommitta pro eedings has ndergone major hanges a terIndependen e. unti 1955, the magistrate was req ired to take a the eviden e – ora anddo mentary – that was prod ed in s pport o the prose tion, or on eha o the a sed,satis y himse that there were s ient gro nds or ommitting the ase to the Sessionsco rt, rame harge(s) against the a sed, and therea ter ommit the ase to the co rto Session. I he was not so satis ed, he wo d dis harge the a sed. Te main p rposeo the ommitta pro eedings was to ens re that an inno ent person was not harassed y

eing made to a e a sessions tria .87

7.7.6.2 Tere was a proposa to a o ish ommitta pro eedings in po i e ases in 1954.However, this was not a epted y Par iament and a modi ed orm o ommitta pro eedings was introd ed (Se tion 207 A, crPc). Te law commission in its 14th Report (1958)examined the iss e o ommitta pro eedings. It did not avo r a o ition o ommittapro eedings or the o owing reasons: (i) there are o nd to e some ases in whi h themagistrate o d dis harge the a sed there y saving the pre io s time o the sessions o rt.(ii) ommitta pro eedings o er a han e to the a sed person to satis y the magistrate thatthere is no ase against him/her. (iii) the eviden e re orded in the ommitta pro eedings

is o great va e as the ear iest re ord on oath o their statements and de ays in re ordingthe eviden e wi en o rage the tenden y whi h a ready exists in witnesses to swerve romthe tr th.

7.7.6.3 Tis iss e was on e again examined y the law commission in its Forty- rstReport, 1969. Te commission was o the nanimo s opinion that ommitta pro eedings

87 law commission o India; Forty-First Report 1969




the re ording o eviden e took p a e at an ear y date; this o nd the witnesses down andthey were ess v nera e to extraneo s in en es and oer ion to hange their statements

ater.

7.7.6.5 Te commission has examined this iss e. It has a so st died the system prevai ingin other o ntries. In most o ntries, the system o ommitta pro eedings has een

a o ished. Te commission ee s that one o the major reasons or de ining onvi tionrates is e a se prose tion witnesses t rn hosti e. In s h ases, the witnesses are either wonover or oer ed to resi e rom their ear ier statements made e ore the po i e. However, i these statements are re orded on oath e ore a Magistrate the han es o witnesses resi ing

rom these statements wo d e m h ess. Moreover, i the witness gives ontradi tory eviden e ater, he wo d a so e ia e or perj r y. Tere ore, the commission is o the view that ommitta pro eedings wherein the statements o the witnesses or the prose tion areprompt y re orded sho d e reintrod ed. Te commission is aware that this may eadto some de ay t the advantages o s h pro eedings o tweigh the disadvantages. Tis isparti ar y e a se the deposition o witnesses is vita in rimina pro eedings.


a. Committal proceedings should be reintroduced where the magistrate shouldhave powers to record the evidence o prosecution witnesses. Suitableamendments ma be carried out in Chapter xVI o the Code o CriminalProcedure.

7.8 Classi cation o O ences

7.8.1 A ogniza e o en e is one in whi h the po i e an arrest a person witho t a warrant.Tey are a so a thorised to start investigations into a ogniza e o en e on their own anddo not need any orders rom a Magistrate to do so. A non- ogniza e o en e is one where apo i e o er does not have the a thority to arrest witho t a warra nt and annot investigates h an o en e witho t the order o a Magistrate having the power to try s h ases or

ommit the same or tria . compo nda e o en es are those that an e ompo nded with or witho t the permission o the o rt whi e non- ompo nda e o en es annot e

ompo nded. O en es are a so assi ed as ai a e and non- ai a e depending on whetherai is to e granted a tomati a y or is a matter o dis retion or the co rts.

7.8.2 Whether the assi ation o o en es into the a ove ategories mentioned a oveis se or not has een a point o onsidera e de ate. Te committee on Re orms o crimina J sti e System has made the o owing o servation on this iss e:

“It is necessary to reclassi y crimes in such a way that many o the crimes – which today take up enormous time and expense – are dealt with speedily at di erent levels by providing

viable and easily carried out alternatives to the present procedures and systems.” 7.8.3 It there ore re ommended as nder:

“It is recommended that non-cognizable o ences should be registered and investigated and as arrestability shall not depend on cognizability, the present classi cation has urther lost its relevance.

However the Committee eels that when reviewing the Indian Penal Code it may be examined whether it would be help ul to make a new classi cation into i) Te Social Wel are Code, ii) Te Correctional Code, iii) Te Criminal Code and iv) Economic and other O ences Code. Hence the ollowing recommendations:-

• o remove the distinction between cognizable and non-cognizable o ences and making it obligatory on the Police O cer to investigate all o ences in respect o which a complaint is made.

• Increasing the number o cases alling within the category o cases triable by ollowing the summary procedure prescribed by Sections 262 to 264 o the code.

• Increasing the number o o ences alling in the category o ‘Petty O ences’ which can be dealt with by ollowing the procedure prescribed by Section 206 o the Code .

• Increasing the number o o ences or which no arrest shall be made.• Increasing the number o o ences where arrest can be made only with the order

o the court and reducing the number o cases where arrest can be made without an order or warrant rom the Magistrate.

• Increasing the number o o ences which are bailable and reducing the number o o ences which are not bailable.

• Increasing the number o o ences that can be brought within the category o compoundable / settlement c ategory.

• he Committee recommends a comprehensive review o the Indian Penal Code, the Evidence Act and the Criminal Procedure Code by a broad based

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have more e a orate g ide ines with stat tory a king. Tere is another s hoo o tho ght whi h arg es that in a ig and diverse o ntry ike India it may not e possi e to odi y ea h and every sit ation, and it wo d e est to eave it to the j dgement o the co rt.

7.9.3 Tis iss e has emerged in other o ntries a so. Te senten ing rameworks prevai ingin other o ntries vary rom high y pres riptive ones where detai ed g ide ines have een

aid down to systems where tota dis retion has een given to the o rts. In the uS, theunited States Senten ing commission (uSSc), an independent agen y in the J di iabran h o the edera government, was reated thro gh the Senten ing Re orm A t 1985.Te o je tive o the A t is:

“ o provide certainty and airness in meeting the purposes o sentencing, avoiding unwarranted sentencing disparities among de endants with similar records who have been ound guilty o similar criminal conduct while maintaining su cient fexibility to permit individualised sentences when warranted by mitigating or aggravating actors not taken into account in the establishment o general sentencing practices; 28 U.S.C.§ 991(b)(1)(B)”.

7.9.4 In the uS, the Senten ing commission ays down road g ide ines to he p andg ide the o rts in xing the p nishment in onvi tion ases. A Senten ing Man a and

a e ay down a senten ing range in months, within whi h the co rt may senten e ade endant ased on the re ationship etween two primary a tors viz., nat re o the o en eand the de endants’ rimina history. Whi e Federa Senten ing G ide ines in the unitedStates were origina y stated to e mandatory, a s seq ent de ision o the united StatesS preme co rt in 2005 o nd that the g ide ines vio ate the onstit tiona right to tria

y j ry and there ore the g ide ines annot e mandatory and sho d e onsidered asdis retionary, whi h means j dges may onsider them t are not req ired to ne essari y adhere to them.

7.9.5 In the uK, a Senten ing Advisory Pane and a Senten ing G ide ines co n i wasonstit ted y the crimina J sti e A t, 2003. Te Se retary o State may at any time

propose to the co n i - that senten ing g ide ines e ramed or revised y the co n i (i)in respe t o o en es or o enders o a parti ar ategory, or (ii) in respe t o a parti armatter a e ting senten ing88. Te A t a so stip ates that every o rt m st (a) in senten ingan o ender, have regard to any g ide ines whi h are re evant to the o ender’s ase, and ( )in exer ising any other n tion re ating to the senten ing o o enders, have regard to any g ide ines whi h are re evant to the exer ise o the n tion.

204 20588 Se tion 170 (2); crimina J sti e A t 2003, uK; retrieved rom-http://www.opsi.gov. k/a ts/a ts2003/30044--o.htm#167

Committee representing the unctionaries o the Criminal Justice System,eminent men and women representing di erent schools o thoughts, social scientists and vulnerable sections o the society and to make recommendations to the Parliament”.

7.8.4 Te commission is in road agreement with the views o the committee on Re ormso crimina J sti e System.


a. A comprehensive reclassi cation o o ences ma be done urgentl to reducethe burden o work or both the Courts and the Police. A mechanism orensuring regular and periodic review o o ences should also be put in place tomake such reclassi cation an ongoing and continuing e ercise.

b. Te objective o this e ercise should be to ensure that crimes o a pett nature including those which require correctional rather than penalaction should be taken out o the jurisdiction o the police and criminalcourts so that the are able to attend to more serious crimes. Such o ences

should, in uture be handled b the local courts.

7.9 Sentencing Process

7.9.1 Senten ing o g i ty persons is an important and timate phase o the rimina j sti esystem. crimina aws norma y provide or a maxim m senten e that may e imposed i an o en e is proved. Tere is a ertain ategory o o en es where a minim m p nishmentis pres ri ed. Te o rts have a wide dis retion in de iding the q ant m o p nishment.It is ontended that s h dis retion is ne essary in order to ena e the j dge to impose ap nishment depending pon the ir mstan es o ea h ase. It has een arg ed however,that there are instan es when s h wide dis retion has res ted in varying p nishments

or simi ar rimes in simi ar ir mstan es. It has een rged that there sho d e s ita eg ide ines to he p j dges in arriving at the q ant m o p nishment in ea h ase.

7.9.2 Tere is a view that in India th ere is a rea pro em arising rom a a k o onsisten y in senten ing pra ti es a ross the o ntry. Tis is a so ompo nded y road exe tivedis retion in omm ting senten es and granting pardon. It is not as i the rimina o rtshave tota dis retion in de iding the amo nt o senten e. Apart rom the aw, the r ings o the High co rts and the S preme co rt a so a t as g ide ines or the s ordinate o rts.b t sti the iss e remains whether the existing ‘g ide ines’ are s ient or is there need to




ina i ity to pay or ai and/or or good ega representation. T s, hardened onvi ts as weas petty o enders ike ti ket ess trave ers o d end p eing imprisoned together or ongperiods in r m ing i dings with inadeq ate a ommodation a nd sanitary a i ities. Tesit ation in many prisons is appa ing eno gh to e onsidered a vio ation o h man dignity as we as the asi h man rights o the inmates. Paradoxi a y, a ew individ a s, who arepower are a owed to enjoy extraordinary a i ities not permitted nder the r es.

7.10.2 Te ase o Ma han la ng who was re eased in 2005 at the age o 77 rom a jaiin Assam a ter 54 years in prison or an IPc o en e, or whi h the maxim m senten e isnot more than 10 years, p ts a h man a e to the statisti s mentioned a ove. Te a t thatover 65% o o r prison pop ation omprises ndertria prisoners (with the ndertriapop ation rea hing 90% in the states o uP, Manip r and Megha aya) means that there

o d e a arge n m er o ompara e ases where simi ar inj sti e is eing meted o t toindivid a s y an impersona and sometimes r e rimina j sti e system.

7.10.3 Te report o the A India committee on Jai Re orms (1980-83) haired y J sti e A.N. M a, had o served that“Over-crowded prisons, prolonged detention o under trial prisoners, unsatis actory living conditions, lack o treatment programs and allegations o anindi erent and even inhuman approach o prison sta have repeatedly attracted the attentiono critics over the years”.

7.10.4 Modern prison re orms in the o ntry is norma y onsidered to have eg n romthe Indian Jai s committee o 1919-20. For the rst time, its report identi ed re ormationand reha i itation as the tr e o je tive o prison administration. Te committee made theimportant re ommendation that separate jai s sho d e ea rmarked or vario s ategories o prisoners, pres ri ing a minim m area o 75 sq are yards per inmate within the jai wa s. Ittook strong o je tion to the presen e o hi dren in jai s meant or ad ts. It re ommendedthe reation o spe ia o rts or hearing o ases o j veni e de inq ents and their ho singin remand homes. It rged the ho ding o a on eren e o Inspe tors Genera o Prisonevery a ternate year. b t many o its re ommendations were not imp emented as the s je to prisons was within the p rview o the provin ia governments. In a sense, the sit ationtoday remains a most n hanged.

7.10.5 Whi e prison re orms has een a neg e ted area or administration in India, co rtshave intervened to ay down spe i r es and g ide ines in regard to matters ike th e rightto physi a prote tion, prote tion against physi a assa t, restri tions on hand ngand etters, so itary on nement, the right to speedy tria , reedom o expression et . TeS preme co rt has a so iss ed dire tions regarding the pro ed re to e o owed when a

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7.9.6 Te commission is o the view that it is ne essary to have a ramework o senten ingg ide ines, to ens re simi ar treatment in simi ar y p a ed ases. Tis wo d a so he p inin reasing peop e’s on den e in the rimina j sti e system, as when peop e hear o widevariations in the amo nt o senten e or simi ar y p a ed ases, their on den e in the systemgets eroded. Te commission a so ee s that instead o ringing in s h g ide ines thro gha stat tory me hanism it wo d e etter to have them within the j di ia ramework,spe ia y sin e some sort o g ide ines have a ready evo ved thro gh j di ia de isions.


a. Te Law Commission ma la down ‘Guidelines’ on sentencing or the rialCourts in India so that sentencing across the countr or similar o ences becomesbroadl uni orm.

b. Simultaneous l , the training or trial court judges should be strengthened tobring about greater uni ormit in sentencing.

7.10 Prison Re orms

7.10.1. India’s prison pop ation stood at 331,391 as on 31.12.2004 re e ting a jai pop a tiono 30 per h ndred tho sand Indians and jai o pan y eve s whi h stood at 139% o

apa ity with the proportion o ndertria prisoners standing at 65.5%. Jharkhand had thehighest over rowding in its prisons (300.9%) o owed y De hi with 249.7%. Te n m ero jai esta ishments inIndia stood at 1147 whi h were ategorised as centra Jai s, Distri t Jai s, S -Jai s, J veni e and Women Jai s as we as open Jai s/camps. In

omparison to the unitedStates, whi h had a prisonpop ation o 2,193,798(and a prison rate o 724per 100,000 pop ation) orchina, whi h had a prison pop ation o 1,548,498 in the same period, India’s jai pop ationis q ite ow, oth as a proportion o the pop ation and in a so te terms. Despite this, o r jai s s er rom serio s over rowding with the k o the inmates omprising ndertriaprisoners as shown in Fig. 7.3. Tese are o ten peop e rom disadvantaged a kgro ndsinvo ved in minor and te hni a vio ations o the aw who are in ar erated d e to their




person is arrested. In Joginder K mar vs State o uP and others (1994), the co rt re erredto the Nationa Po i e commission’s nding that 60% o a arrests were either nne essary or nj sti ed and aid down o r req irements to e stri t y o owed:

i. Te right o the arrested person to req est that a riend, re ative or other personse in ormed o his arrest and the p a e where he is detained;

ii. Te d ty o the po i e o er to in orm the arrested person o this right;iii. Te need or an entry to e made in the po i e station diary as to who was

in ormed o the arrest;iv. Te d ty o the Magistrate e ore whom the arrested person is prod ed, to

satis y himse that these req irements have een omp ied with.

7.10.6 besides, a po i e o er making an arrest sho d re ord in th e ase diary the reasonsor making the arrest, imp ying there y that every arrest y the po i e has to e j sti ed

in aw.

7.10.7 Despite s h j di ia interventions and the e orts made in some jai s ike De hi’sihar Jai , to make the onditions or the prisoners more h mane, in respe t o most jai s

in the o ntry the des ription o the prison system as eing antiq ated and overstret hedremains va id. As mentioned ear ier, India’s prison pop ation ( oth in a so te terms andas a proportion o its pop ation) may e ow y internationa standards, t this may,regretta y, e a n tion o o r de ining onvi tion ratios. Nonethe ess, this means thatgiving etter a i ities to inmates and promoting a pro essiona and re ormative approa hin o r prison administration sho d e possi e and now ertain y within o r reso r es.S h hange req ires a on erted attempt to p t prison re orm on top o the agenda orthe union and State Governments. Re orms in prison administration req ires provisiono adeq ate reso r es or modernization o jai in rastr t re as we as pro ed ra re orms(thro gh hanges in the re evant stat tes and r es) in the entire rimina j sti e system tored e the n m er o arrests or petty o en es and in rease the avai a i ity o ai , speeding

p o tria s, providing a ternatives to in ar eration (s h as omm nity servi e) or essheino s o en es, reation o an impartia and pro essiona system to onsider remissiono senten es and paro e et .

7.10.8 Te M a committee had examined a aspe ts o prison administration and made wide-ranging re ommendations on iss es s h as the org anisationa str t re o the prisonservi es, the need or a ommon Jai Man a , the need to invo ve experts and NGOs in the

e d o treatment, are and reha i itation o o enders, the need or more open prisons et , whi h, i imp emented, wo d go a ong way to make prison administration more e ient,h mane and pro essiona . S seq ent y, the NHRc has a so prepared a mode Prison bi .

Te Ministry o Home A airs had ir ated a mode bi to the States in 1998 and someStates have adopted new egis ation or prisons s h as the Rajasthan Prisons A t, 2001. A new mode Jai Man a has a so een ir ated to a States y the union Governmentin 2003.

7.10.9 Witho t going into the ner detai s o these individ a re orms proposa s, the

commission is o the rm view that prison re orms is an integra part o any attempt tore orm o r rimina j sti e system in order to make it more h mane and re ormative. Forthis p rpose, the union and State Governments sho d e asked to ast-tra k modernisation,

pgradation and re orms o o r prison systems ased on the report o the M a committeeand the vario s egis ative proposa s mentioned in the pre eding paragraphs.

7.10.10 In addition, the iss e o mis se o the provisions or paro e and or remission o senten es has signi ant imp i ations or p i order e a se indis riminate and re k essgrant o paro e or remission o senten es an impa t p i order adverse y. Tere is an

rgent need to p t in p a e a non-partisan a nd pro essiona me hanism or taking de isionson these iss es rather than eaving it to the dis retion o individ a n tionaries.

7.10.11 Tis is o parti ar re evan e given the re ent a egations o a se o these powerson partisan and po iti a ines in states ike Kera a, Andhra Pradesh and Haryana and a sothe re ent ase o an Orissa po i e o er, whose son, a onvi ted rapist, j mped paro e inRajasthan and has een ntra ed or over severa months now. In Kera a state, a Divisionben h o the High co rt is rrent y examining the power o the Home Minister and theca inet to grant paro e to i e-term onvi ts and has reported y o served that the re evantprovisions in the Kera a Prison R es to grant paro e to onvi ts is eyond the egis ative

ompeten e o the State Governments on the gro nd that there is no s h provision in theparent Prison A t. Te ase itse entres on ertain ases o m rder onvi ts who happenedto e workers o parti ar po iti a party and who were a eged y granted paro e witho t j sti ation on partisan onsiderations.

7.10.12 S h ases have adverse rami ations or p i order as we as th e itizens’ respe tor the r e o aw e a se they reate an impression that in entia segments o so iety an o tain pre erentia treatment e ore the aw.

7.10.13 In order to ens re impartia ity and ni ormity in de ision-making, it is e t thatan Advisory board to e haired y a retired J dge o the High co rt with the State DGP

208 209




210 211

against P i J sti e needs a resh ook. O en es re ating to coin and Government Stamps(chapter XII) – have e ome o so ete in the a kgro nd o the ‘ e gi S am’ and wo dhave to e re ast. O en es re ating to Re igion (chapter XV) have to e so modi ed tomake a distin tion etween rimes ommitted with omm na motives and norma rimes.Simi ar y, the Indian Eviden e A t wo d a so have to e revisited to re e t 21st ent ry so ia va es.

and the IG (Prisons) as mem ers sho d e set p to make re ommendations to the StateGovernment on grant o paro e to onvi ts. Te re ommendations o the board sho dnorma y e a epted y the State Government. I the State Government di ers with theboard, it sho d express its di eren e o opinion in writing and o tain resh advi e o the board e ore taking a na de ision in the matter. Simi ar y, or grant o remission o senten es, states sho d onstit te Senten e Remission boards as advisory odies so thatthe de isions on this iss e an e taken in an impartia and j di io s manner.


a. Te Union and State Governments should work out, und and implement at theearliest, modernisation and re orms o the Prison S stem as recommended b the All India Committee on Jail Re orms (1980-83).

b. Te attendant legislative measures should also be e pedited.

c. Rules regarding Parole and Remission need to be reviewed. An Advisor Board with a retired judge o the High Court, the DGP and the InspectorGeneral o Prisons should be set up to make recommendations on parole.Te recommendation made b the Board should normall be accepted. In case o di erence, State Government should obtain the advice o the Board again, stating its own views in writing. A similar or the same Board ma deal withcases o remissions.

7.11 Amendment to Criminal Laws

7.11.1 laws dea ing with the rimina j sti e system, espe ia y the Indian Pena codeand the Indian Eviden e A t were ena ted in the 19th ent ry. Te very a t that these

aws are sti working esta ishes that these have stood the test o time. However, rapiddeve opments have taken p a e in the o ntry a ter Independen e. It is there ore ne essary to have a omprehensive re- ook at these aws, parti ar y the Indian Pena code, in the

ontext o the rrent so io, e onomi and po iti a sit ation. Te ‘de nitions’ have to erevisited and the entire A t has to e made more gender- riend y. O en es against the State(chapter IV) – the de nitions and the p nishments – have to e modi ed keeping in mindterrorist, ins rgen y, organised rimes, Naxa ism and other disr pting a tivities a e ting

the se rity and integrity o the o ntry. O en es against the P i ranq i ity have toe revisited so as to make se tion s h as 153 (A) o IPc more e e tive and stringent.O en es re ating to E e tions (chapter IX A) req ire major hanges keeping in mind the

rrent po iti a deve opments in the o ntry. chapter XI on Fa se Eviden e and O en es

constit tiona Iss es and Spe ia laws



8 CONS I U IONAL ISSUES AND SPECIAL LAWS

under o r constit tion the responsi i ity or maintaining p i order rests main y withthe State Governments. Tis does not di te the overa onstit tiona o igation o theunion Government to preserve order thro gho t the o ntry. Major p i order rises

an threaten o r so ia a ri and endanger nationa se rity. Te pro i eration o organisedrimes and terrorism, the rise o ins rgent movements in ertain parts o the o ntry and

the nex s among these, throw p ha enges that req ire a oherent nationa response in theorm o new aws and administrative str t res. Te union Government is seized o these

matters and has initiated severa steps. Tese have o ten raised ontentio s j risdi tionaiss es. Some o these iss es are dea t with in this hapter.

8.1 Should Public Order be Included in the Concurrent List?

8.1.1 under the constit tion, ‘P i Order’ and ‘Po i e’ are in the State list (list II) o

the Seventh S hed e. One iss e that is o ten raised is whether p i order sho d ontin eto e in list II or whether it sho d e ro ght in list III (con rrent list). At presentvario s s je ts isted in the Seventh S hed e re ated to ‘P i Order’ are as o ows:

list-I

Entry 2A: Deployment o any armed orce o the Union or any other orce subject to the control o the Union or any contingent or unit thereo in any State in aid o the civil powers; powers, jurisdiction, privileges and liabilities o the members o such orces while on such deployment.

Entry 5: Arms, rearms, ammunition and explosives.

Entry 8: Central Bureau o Intelligence and Investigation.

Entry 9: Preventive detention or reasons connected with De ence, Foreign A airs, or the security

o India; persons subjected to such detention.Entry 80: Extension o the powers and jurisdiction o members o a police orce belonging toany State to any area outside that State, but not so as to enable the police o one State to exercise powers and jurisdiction in any area outside that State without the consent o the Government

o the State in which such area is situated; extension o the powers and jurisdiction o members o a police orce belonging to any State to railway areas outside that State.

list II

Entry 1: Public order (but not including the use o any naval, military or Air orce or any

other armed orce o the Union or o any other orce subject to the control o the Union or o any contingent or unit thereo in aid o the civil power.

Entry 2: Police including railway and village police subject to the provisions o entry 2Ao List I.

list-III

Entry I: Criminal law, including all matters included in the Indian Penal Code at the commencement o this Constitution but excluding o ences against laws with respect o any o the matters speci ed in List I or List II and excluding the use o naval, military or air orces or any other armed orces o the Union in aid o the civil power.

Entry 2: Criminal procedure, including all matters included in the Code o Criminal Procedure at the commencement o this Constitution.

Entry 3: Preventive detention or reasons connected with the security o a State, the maintenance o public order, or the maintenance o supplies and services essential to the community; persons subjected to such detention.

Entry 4: Removal rom one State to another State o prisoners, accused persons and persons subjected to preventive detention or reasons speci ed in entry 3 o this List.

8.1.2 T s, in o r onstit tiona s heme, po i e as we as p i order omes within theex sive j risdi tion o State Governments. Te union Government he ps y providingthe ne essary ega ramework and a so y providing armed and para-mi itary or es o the union whenever req ired. It is a so the responsi i ity o the union to ens re that theexe tive power o every state e so exer ised as to ens re omp ian e with the aws made y Par iament and any existing aws whi h app y in that state. Arti e 256 empowers the unionto iss e dire tions to a state to ens re s h omp ian e. under Arti e 355, a d ty is ast on

the union ‘to prote t every state against externa aggression and interna dist r an e and toens re that the Government o every state is arried on in a ordan e with the provisionso this constit tion’. In addition to these powers, Arti e 356 on ers extraordinary powerson the union to dea with a onstit tiona reakdown in a state where pon a n tionso the State Government may e ass med y the union Government.

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P i Order constit tiona Iss es and Spe ia laws



8.1.3 Arg ments or in sion o ‘P i Order’ in the con rrent list

8.1.3.1 A o apse o ‘p i order’ has wide rami ations or nationa se rity, e onomideve opment and even on the egitima y o the State. Te a sen e o a ear- t ro e o the union Government in s h sit ations means that it is o ten power ess to intervenein major risis sit ations even when they threaten the so ia a ri and nationa se rity.

As a res t, the union Government an either se the extreme provision o Arti e 356 o the constit tion or mere y e a passive spe tator ti s h time tha t the State Governmentseeks its assistan e. A stat tory me hanism that provides or a more proa tive ro e or theunion Government, short o imposition o President’s r e, there ore appears ne essary. Itis arg ed that this an e provided y in ding ‘P i Order’ in the con rrent list.

8.1.3.2 Another reason o ten ited or ringing p i order in the con rrent list is th atinter-state rime is on the in rease. Di eren es in the ega and the administrative ramework among the States an e easi y exp oited y organised rimina gangs. D e to the rapidgrowth in omm ni ation a i ities and the se o modern te hno ogies, organised rimeand terrorism o ten operate on a nationa or even internationa s a e and an est e ta k ed

y providing or a ni ed ega , administrative and operationa ra mework or po i e or esa ross the o ntry. Tis wo d req ire ertain ni orm and e e tive egis ations to dea with oth organised rime and terrorism whi h an e est ndertaken i ‘P i Order’

is in the con rrent list.8.1.4 Arg ments against ringing ‘P i Order’ in th e con rrent list

8.1.4.1 As stated ear ier, ‘P i Order’ and ‘Po i e’ are the rst two entries in th e State listo the Seventh S hed e. Tis makes maintenan e o p i order the p rime responsi i ity o the State Government. Te prin ip e o s sidiarity demands that these n tions eexer ised y State Governments. In most o the arge deve oped o ntries, the nationagovernment does not hand e aw and order whi h is e t to the provin ia and even o agovernments. States in India are administered y responsi e, e e ted governments whose wi ingness to pho d p i order and the r e o aw sho d not e do ted. Any move to

ring p i order into the con rrent list wo d a so amo nt to d a ity o responsi i ity whi h may e detrimenta to the e ient hand ing o serio s p i order sit ations.

8.1.4.2 In an era o demo rati de entra isation a move to ring p i order into the

con rrent list wo d e a retrograde step and is ike y to e resisted y State Governmentsas they wo d view this as an en roa hment on their egitimate j risdi tion. Te size anddiversity o o r o ntry is another reason why ‘P i Order’ and ‘Po i e’ have een keptin the State list so that State Governments are in a position to en or e r e o aw as per

o a req irements.

8.1.5 Te commission has examined the arg ments in avo r and against the proposa o ringing ‘P i Order’ into the con rrent list. On a an e, the commission is o the

view that the existing onstit tiona responsi i ities etween the states and the union whi hhave stood the test o time sho d not e dist r ed. Given the size and diversity o India,p i order sho d ontin e to e the responsi i ity o State Governments. Moreover, withdemo rati de entra isation, there is need to entr st the responsi i ity to dea with minorp i order iss es to o a governments. A move to p a e ‘P i Order’ in the con rrentlist may a so ring in d a ity o responsi i ity. Tis wo d heighten and not essen any

on sion that may exist today in the ro e o the two eve s o government. Te existingprovisions o the constit tion maintain a very ne a an e etween the responsi i ity o theState Government to maintain p i order and the overa responsi i ity o the union toens re onstit tiona governan e in ea h state. Tere ore p i order sho d ontin e to ein the State list. Te union Government sho d ontin e to assist the State Governmentsin maintaining p i order.

8.2 Obligations o the Union and States

8.2.1 Te constit tion ontains spe i provisions to dea with sit ations where the StateGovernments ai to their constit tiona o igations. Te re evant Arti es are 256,352, 355, 356 and 365 and read as o ows:

256. Obligation o States and the Union.– Te executive power o every State shall be so exercised as to ensure compliance with the laws made by Parliament and any existing laws which apply in that State, and the executive power o the Union shall extend tothe giving o such directions to a State as may appear to the Government o India to be necessary or that purpose.

352. Proclamation o Emergency.– (1) I the President is satis ed that a grave emergency exists whereby the security o India or o any part o the territory thereo is threatened, whether by war or external aggression or armed rebellion, he may, by Proclamation, make a declaration to that e ect in respect o the whole o India or o such part o the territory thereo as may be speci ed in the Proclamation….

355. Duty o the Union to protect States against external aggression and internaldisturbance. – It shall be the duty o the Union to protect every State against

external aggression and internal disturbance and to ensure that the government o every State is carried on in accordance with the provisions o this Constitution.

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356. Provisions in case o ailure o constitutional machinery in States.– (1)I the President, on receipt o a report rom the Governor o a State or otherwise,is satis ed that a situation has arisen in which the Government o the State cannot be carried on in accordance with the provisions o this Constitution, the President may by Proclamation –

(a) assume to himsel all or any o the unctions o the Government o the State and all or any o the powers vested in or exercisable by the Governor or any body or authority in the State other than the Legislature o the State;

(b) declare that the powers o the Legislature o the State shall be exercisable by or under the authority o Parliament;

(c) make such incidental and consequential provisions as appear to the President to be necessary or desirable or giving e ect to the objects o the Proclamation,including provisions or suspending in whole or in part the operation o any provisions o this Constitution relating to any body or authority in the State:Provided that nothing in this clause shall authorise the President to assume tohimsel any o the powers vested in or exercisable by a High Court, or to suspend in whole or in part the operation o any provision o this Constitution relating to High Courts.

3 6 5 . E e ct o a i l ur et o c omp ly wi th , o r t o g iv ee ect to, directions given by theUnion.– Where any State has

ailed to comply with, or to give e ect to, any directions given in the exercise o the executive power o the Union under any o the provisions o this Constitution, it shall be law ul or the President tohold that a situation has arisen inwhich the Government o the State cannot be carried on in accordance with the provisions o this

Constitution.8.2.2 Whi e pres ri ing the o igationso the union and the States, Arti e 256

asts a responsi i ity on the union to

pho d the r e o aw. Arti e 256 has hard y een sed. It has o ten een arg ed that d ringthe Ayodhya risis (1992) the union Government o d have invoked this Arti e.

8.2.3 Dep oyment o For es o the union in ding Armed For es is made on the req esto or with the on rren e o the on erned State Government. In s h ir mstan es the Armed For es assist the ivi administration in restoring order. Te iss e, whi h arises, is

whether the union an dep oy its For es and/or order that the these For es a t on theirown witho t depending on th e State Government ma hinery.

8.2.4 On the q estion o the se o Arti e 356, the Sarkaria commission proposed:

“6.8.01 Article 356 should be used very sparingly, in extreme cases, as a measure o last resort, when all available alternatives ail to prevent or recti y a breakdown o constitutional machinery in the State. All attempts should be made to resolve the crisis at the State level be ore taking recourse to the provisions o Article 356. Te availability and choice o these alternatives will depend on the nature o the constitutional crisis, its causes and exigencies o the situation. Tese alternatives may be dispensed with only incases o extreme urgency where ailure on the part o the Union to take immediate actionunder Article 356 will lead to disastrous consequences.

(paragraph 6.7.04)

6.8.02 A warning should be issued to the errant State, in speci c terms, that it is not carrying on the government o the State in accordance with the Constitution. Be ore taking action under Article 356, any explanation received rom the State should be takeninto account. However, this may not be possible in a situation when not taking immediate action would lead to disastrous consequences.

(paragraph 6.7.08)

When an ‘external aggression’ or ‘internal disturbance’ paralyses the State administrationcreating a situation dri ting towards a potential breakdown o the constitutional machinery o the State, all alternative courses available to the Union or discharging its paramount responsibility under Article 355 should be exhausted to containthe situation.”

8.2.5 On the iss e o dep oyment o the Armed For es o the union, the Sarkaria

commission o served and re ommended:“ 7.5.01 Clearly, the purpose o deployment which is to restore public order and ensure that e ective ollow-up action is taken in order to prevent recurrence o disturbances, cannot be achieved without the active assistance and cooperation o the entire law-en orcing

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machinery o the State Government. I the Union Government chooses to take unilateral steps to quell an internal disturbance without the assistance o the State Government, these can at best provide temporary relie to the a ected area and none at all where suchdisturbances are chronic.

7.5.02 Tus, practical considerations, as indicated above, make it imperative that the

Union Government should invariably consult and seek the cooperation o the State Government, i it proposes either to deploy suo motu its armed orces in that State or todeclare an area as ‘disturbed’, the constitutional position notwithstanding. It need hardly be emphasized that without the State Government’s cooperation, the mere assertiono the Union Government’s right to deploy its armed orces cannot solve public order problems.

7.5.03 We recommend that, be ore deploying Union armed and other orces in a State in aid o the civil power otherwise than on a request rom the State Government, or be ore declaring an area within a State as a ‘disturbed area’, it is desirable that the State Government should be consulted, wherever easible, and its cooperation sought by the Union Government. However, prior consultation with the State Government is not obligatory”.

7.5.03 “Te existing relationship between the Union armed orces and the State civil authorities and the manner o their unctioning as prescribed in the relevant Unionlaws and procedures do not need any change. However, be ore the Union Government deploys its armed and other orces in a State in aid o the civil power otherwise thanon a request rom the State Government or declares an area within a State as “disturbed”,it is desirable that the State Government should be consulted, wherever easible, and its cooperation sought, even though prior consultation with the State Government is not obligatory. (paras 7.5.03 and 7.7.22).”

8.2.6 he Nationa commission to Review the Working o the constit tionre ommended:

“8.19.4 Te Commission eels that in a large number o cases where Article 356 has been used, the situation could be handled under Article 355 i.e. without imposing President’s rule under Article 356. It is most un ortunate that Article 355 has hardly

been used.” 8.2.7 Te S preme co rt in Naga Peop e’s Movement o H man Rights vs union o Indiar ed that:

“... A ter the Forty-second Amendment the legislative power o Parliament in respect o deployment o armed orces o the Union or any other orce subject to the control o the Union or any contingent or unit thereo in any State in aid o the civil power fows rom Entry 2-A o the Union List. Te expression “in aid o the civil power” inEntry 1 o the State List and in Entry 2-A o the Union List implies that deployment o the armed orces o the Union shall be or the purpose o enabling the civil power in the State to deal with the situation a ecting maintenance o public order which has necessitated the deployment o the armed orces in the State. Te word “aid” postulates the continued existence o the authority to be aided. Tis would mean that even a ter deployment o the armed orces the civil power will continue to unction. Te power to make a law providing or deployment o the armed orces o the Union in aid o the civil power in the State does not comprehend the power to enact a law which would enable the armed orces o the Union to supplant or act as a substitute or the civil power in the State. We are, however,unable to agree with the submission o the l earned counsel or the petitioners that during the course o such deployment the supervision and control over the use o armed orces has to be with the civil authorities o the State concerned or that the State concerned will have the exclusive power to determine the purpose, the time period and the areas withinwhich the armed orces should be requested to act in aid o civil power. In our opinion,what is contemplated by Entry 2-A o the Union List and Entry 1 o the State List is that in the event o deployment o the armed orces o the Union in aid o the civil power ina State, the said orces shall operate in the State concerned in cooperation with the civil administration so that the situation which has necessitated the deployment o the armed orces is e ectively dealt with and normalcy is restored.

…..Tis would show that the powers that have been con erred under Section 4 o the Central Act do not enable the armed orces o the Union to supplant or act as substitute or the civil power o the State and the Central Act only enables the armed orces to assist the civil power o the State in dealing with the disturbed conditions a ecting the maintenance o public order in the disturbed area.

Te expression ‘in aid o the civil power’ in Entry 2-A o List I and in Entry 1 o List II implies that deployment o the armed orces o the Union shall be or the purpose o enabling the civil power in the State to deal with the situation a ecting maintenance o public order which has necessitated the deployment o the armed orces in the State.

Te word ‘aid’ postulates the continued existence o the authority to be aided. Tis would mean that even a ter deployment o the armed orces the civil power will continue to unction.

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Te power to make a law providing or deployment o the armed orces o the Union inaid o the civil power o a State does not include within its ambit the power to enact alaw which would enable the a rmed orces o the Union to supplant or act as a subordinate or the civil power in the State. Te armed orces o the Union would operate in the State concerned in cooperation with the c ivil administration so that the situation whichhas necessitated the deployment o armed orces is e ectively dealt with and normalcy is restored.”

8.2.8 A committee 89 was onstit ted to review the Armed For es (Spe ia Powers) A t,1958. Whi e giving its re ommendations on this A t the committee s ggested that a new

hapter may e inserted in the un aw A tivities (Prevention) A t, 1967. One o theSe tions o the proposed hapter is as o ows:

“ I the Central Government is o the opinion that on account o terrorist acts or otherwise a situation has arisen in a State or a Union erritory or in a part o a State, as the case may be, where deployment o a orce under its control or any other armed orces o the Union, including army, navy or air- orce have become necessary to quell internal disturbance, it may do so notwithstanding that no request or such orce is received romthe State Government concerned. While deploying the orces under sub-sections (2) or (3), the Central Government shall by

a noti cation published in the Gazette,speci y the State or the part o the State in which the orces are to operate and the period o deployment (not exceeding six months). At the end o the period sospeci ed, the Central Government shall review the situation in consultationwith the State Government and may extend the period o deployment, i ound necessary, provided however, that suchextension shall not be or more than six months at a time. It shall also be competent or the Central Government to vary the area o deployment where the earlier noti cation is or a part o the State. Every noti cation extending the period o deployment or the areao deployment, shall be laid on the table o both Houses o Parliament, within one month

o publication o such noti cation.Te orce deployed under sub-section (2) or sub-section (3), shall act in aid o civil power and shall, to the extent easible and practicable, coordinate their operations with the operations o the Security Forces o the State Government. However, the manner in which

such orces shall conduct their operations shall be within the discretion and judgement o such orces.”

8.2.9 Tere are two main iss es in the dep oyment o the For es o the union. First, whether these For es an e dep oyed witho t the onsent o the State Government andse ond whether the For es, pon s h dep oyment, an a t on their own or need to re eive

instr tions rom the State Government orother a thorities o the State Government. A ording to one view, Arti e 355 empowersthe union to ni atera y dep oy its or es.Tey arg e that as per the said Arti e, theunion is o nd to prote t a state rominterna dist r an e to ens re that thegovernment o every state is arried o t ina ordan e with the constit tion. A nat ra

oro ary o this is that the union has thea thority to se the For es at its ommandto ens re this. here ore the union andep oy as we as ommand the For es, i the sit ation so demands. Simi ar provisions

exist in the uS constit tion, and the uS President has sed Federa roops, even againstthe wishes o the State.

8.2.10 Te other view is that Arti e 355 do es not empower the union to dep oy its For esagainst the wishes o the State Government. Te ontention is that sin e the constit tiona

ramework ays down the prin ip e o ivi ian ontro over se o or es, this ontro has toe provided y the State Government. Tis is a the more ne essary as investigation and

prose tion has to e done y agen ies whi h are in the p rview o State Governments.T s the For es o the union, when dep oyed annot s pp ant the State Government.

8.2.11 Te commission has examined this iss e serio s y. Whi e there is no do t thatmaintenan e o p i order omes within the domain o State Governments, at the sametime, the union a so has a onstit tiona responsi i ity i.e. to ens re that the governmento every state is arried on in a ordan e with the provisions o the constit tion. Indeed,i the union is o the onsidered view that the government o a state annot e arried onin a ordan e with the provisions o the constit tion, it may impose ‘President’s R e’in the state. A major reakdown o p i order wo d de nite y signa a onstit tiona

reakdown in the state, and th e union wo d e we within its rights to invoke its powersnder Arti e 356 and go to the extent o dismissing an e e ted State Government. On e

89 Te committee was headed y J sti e b.P. Jeevan Reddy.

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President’s R e is imposed, the union an dep oy and dire t the po i e and the unionFor es. T s, the o nding athers o the constit tion have ens red that the union iss ient y empowered to prote t the constit tion. Extending the same ogi , the union

annot e a si ent spe tator to a major p i order risis. under s h ir mstan es it hasto assist the State Government y providing a ne essary s pport. I , however, it nds thatthe State Government is not wi ing to a ept any s h assistan e, or is ai ing in its d ty to

maintain p i order and the r e o aw, then it has no option t to take harge o thesit ation and dep oy and dire t its For es to ring the sit ation nder ontro and preventa onstit tiona reakdown in the state.

8.2.12 Te union in the per orman e o its d ty to prote t the state rom externa aggressionand interna dist r an es, an invoke - a ter passing thro gh vario s steps - Arti e 356.However, this wo d e an extreme step. Not a ting in p rs an e o the d ty on gro ndso ‘ onstit tiona he p essness’ wo d e the other extreme. Tere ore the commission is o the view that the union sho d have nam ig o s powers to dep oy and dire t its For esin ase o a major p i order risis in a state i the State Government is ear y ai ing tomeet its onstit tiona o igation to maintain p i order and the r e o aw. Tis is the

nder ying prin ip e ehind the onstit tiona provisions and it wo d e desira e i theam ig ity re ating to this iss e is removed.

8.2.13 Te commission has are y onsidered this iss e and is o the view that a aw o d e ena ted to empower the union Government to dep oy its or es and to dire ts h or es in ase o major p i order pro ems, regarding whi h steps nder Arti e256 read with Arti e 355 have een taken.

8.2.14 At the same time s ient sa eg ards need to e provided to prevent partisanmis se o this provision. Te sa eg ards wo d a so in de a step- y-step approa h nder Arti es 256 and 355, exp aining the a ts and giving dire tions and req iring the state toadopt ertain meas res. Any s h dep oyment o union For es sho d e on a temporary

asis not ex eeding three months whi h o d e extended y another three months a tera thorisation y Par iament. Te aw sho d a so ay down the ivi ian hierar hy whi h wo d ontro the se o the For es in s h an event. I s h a aw does not withstand j di ias r tiny, it is ne essary that Entry 2-A o list I is amended to make the position ear. A simi ar arrangement exists d ring the time o e e tions, when the E e tion commissions perintends and ontro s the state e e tion ma hinery, or proper ond t o e e tions.


a. A law should be enacted to empower the Union Government to deplo itsForces and to even direct such Forces in case o major public order problems which ma lead to the breakdown o the constitutional machiner in a state.However, such deplo ment should take place onl a ter the state concerned ailsto act on a ‘direction’ issued b the Union under Article 256 o the Constitution. All such deplo ments should be onl or a temporar period not e ceeding three months, which could be e tended b another three months a terauthorisation b Parliament.

b. Te law should spell out the hierarch o the civil administration which wouldsupervise the Forces under such circumstances.

8.3 Federal Crimes

8.3.1. As mentioned ear ier, rapid e onomi deve opment and improvement o transportand omm ni ation in rastr t re has added another dimension to rimes. In reasing y,major rimes ike organised rimes, terrorism, tra king in arms and serio s e onomio en es have inter-state and even internationa rami ations and they o ten threaten

nationa se rity. To gh ‘crimina aw’ is in the con rrent list, ‘Po i e’ is in the Statelist. As a res t the state po i e investigates a major rimes in the o ntry. To gh thecentra b rea o Investigation has een onstit ted, it an investigate rimina ases on y with the onsent o the respe tive State Governments. It has een arg ed that the statepo i e, with its j risdi tion on ned to the respe tive state nds it di t to arry o tinvestigations a ross state orders. Tis is not to e itt e the a t in some ases the statepo i e have s ess y arried o t investigations with the he p o the other state po i e(s).It is a so arg ed that with an over rdened state po i e, there is need to entr st s h major

rimes to a spe ia ised edera agen y. Another reason ited is that at times rimes haveinternationa rami ations, and gathering in ormation and investigation wo d req ire theexpertise and reso r es whi h ordinari y are not avai a e with the state po i e.

8.3.2 Te term ‘Federa O en e’ immediate y draws a ttention to the uS crimina J sti eSystem where a edera rime or edera o en e is a rime that is either made i ega y uS

edera egis ation or a rime that o rs on uS edera property. Te uS constit tion isased on prin ip es o edera ism with the Federa Government having j risdi tion overnationa de en e, oreign a airs and rren y. A other powers are vested with the StateGovernments. At the eginning o the twentieth ent r y, with the spread o transportationand omm ni ation networks, the Federa Government started ass ming investigative

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powers in ertain inter-state rimes. oday the Federa b rea o Investigation (FbI) is theinvestigative arm o the uS Department o J sti e and an important agen y or ghtingmajor rimes. Te FbI’s investigative a thority an e o nd in it e 28, Se tion 533 o theuS code. Additiona y, there are other stat tes, s h as the congressiona Assassination,Kidnapping, and Assa t A t ( it e 18, uS code, Se tion 351), whi h give the FbIresponsi i ity to investigate spe i rimes.90

8.3.3 Te Federa b rea o Investigation has the o owing priorities:91

1. Prote t the united States rom terrorist atta k;2. Prote t the united States against oreign inte igen e operations and

espionage;3. Prote t the united States against y er- ased atta ks and high-te hno ogy

rimes;4. com at p i orr ption at a eve s;5. Prote t ivi rights;6. com at transnationa and nationa rimina organizations and enterprises;7. com at major white- o ar rime;8. com at signi ant vio ent rime;9. S pport edera , state, o nty, m ni ipa , and internationa partners;

10. upgrade te hno ogy to s ess y per orm the FbI’s mission.8.3.4 Te A stra ian constit tion does not give the A stra ian Par iament a genera powerto make rimina aws. However, the A stra ian Par iament may make rimina aws inre ation to the s je t matter o other powers granted to it y the constit tion.92 In A stra ia, the states have j risdi tion over rimina aws. Tese aws are genera y on erned with o en es against persons or property, p i order o en es and so ia o en es. Federao en es orrespond with th e commonwea th’s areas o egis ative responsi i ity, and havea nationa or internationa o s. A tho gh the A stra ian Federa Po i e (AFP) is theprin ipa aw en or ement arm o the A stra ian Government, other edera agen ies a soexer ise investigatory powers in regard to parti ar areas o edera responsi i ity. Teseare the A stra ian axation O e (A O), the A stra ian c stoms Servi e, the Departmento Immigration and M ti t ra A airs, the A stra ian competition and cons mercommission (Accc) and the A stra ian Se rities and Investments commission (ASIc).Simi ar y, severa other o ntries have a so p t into p a e appropriate ega and instit tiona

ramework or dea ing with nationa and internationa rimes.

8.3.5 In the ontext o ‘ edera rimes’, the Padmana haiah committee, inter a ia, examinedthe o owing iss es:

• Whether there is a need to de are ertain o en es as Federa O en es?• Sho d a Federa Investigative Agen y have ex sive j risdi tion over s h

ases?• What type o Federa Agen y (cbI or independent) sho d investigate s h

ases?

8.3.6 As regards the rst point, the committee o served that there is a ase or de aring aew se e ted ategories o ases as edera o en es and re ommended the o owing riteriaor ategorising s h o en es:

• “Tey have international implications.• Tey relate to security o nation.• Tey relate to the activities o the Union Government.• Tey relate to corruption in All India Services.• Protecting Government currency.• Controlling National borders.”

8.3.7 As regards the agen y to investigate s h ases, the committee o served:

“ We have mentioned above that a central investigating agency as big as the CBI canonly investigate about 600 cases (these are under the PC Act and related Sections o IPC) in a year. In addition, CBI investigated 918 cases under PC and related provisions o IPC. Tere are 1335 IPC cases and 1295 PC Act cases pending investigation in CBI at the end o 1999. I any central agency is to take up investigation o cases under more heads than the ones listed above, or take up cases under the above heads without proper justi cation, we need to have a huge set-up with sta spread throughout the country. Such an organization would compete with State police orces or scarce nancial and human resources. I important cases are, as a matter o routine, to be taken up by the ederal agency, the state police would be relegated with investigation o only less important cases, which, in course o time, can create a question o credibility o state police orces in public perception. Researchers at Syracuse University’s ransactional Access Clearing House ( RAC) in one o their studies o FBI rom 1993 to 1997 have ound that FBIs conviction rate is the worst among major ederal law agencies.”

8.3.8 Te committee ited the Report o the ask For e o the Ameri an bar Asso iation

on Federa isation o crimina laws (1997), whi h identi ed many adverse e e ts o inappropriate edera isation as o ows:

• It generally undermines the state- ederal abric and disrupts the important constitutional balance o ederal and state systems.

90 http://www. i.gov/priorities/priorities.htm91 So r e: we site o FbI.92 AlRc; http://www.a st ii.ed .a /a /other/a r /p i ations/reports/103/7.htm # nb37

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• It has the potential to relegate the less glamorous prosecutions to the state system,undermine citizen perception, and diminish citizen’s con dence in state law en orcement mechanisms.

• It creates an unhealthy concentration o policing power at ederal level.• It gives discretion to the ederal agency, to pick and chose, in choosing what

crimes and which people to prosecute.

8.3.9 Te Padmana haiah committee re ommended that there is no need to reate aseparate organisation at the nationa eve or the time eing, and investigation o edera

rimes sho d e handed over to the spe ia rimes/e onomi o en es division o cbI.

8.3.10 Te committee on Re orms o crimina J sti e System however re ommended:

“ ime has come when the country has to give deep thought or a system o Federal Law and Federal Investigating Agency with an all-India Charter. It would have withinits ambit crimes that a ect national security and activities aimed at destabilising the country politically and economically. Te creation o the Federal Agency would not preclude the State En orcement Agencies rom taking cognizance o such crimes. Te State En orcement Agencies and the Federal Agency can have concurrent jurisdiction. However,i the Federal Agency takes up the case or investigation, the State agencies’ role in the investigation would automatically abate. Te State agencies may also re er complicated cases to the proposed Federal Agency.”

• Tat in view o legal complexity o such cases, underworld criminals/crimes should be tried by ederal courts (to be established), as distinguished rom the courts set up by the State Governments.

• Tat Government must ensure that End User Certi cate or international sales o arms is not misused (as happened in the Purulia Arms Drop).

• Te banking laws should be so liberalized as to make transparency the corner-stone o transactions which would help in preventing money laundering since India has become a signatory to the U.N. Convention against ransnational Organised Crime.

• Tat a Federal Law to deal with crimes o inter-state and / or international / trans-national rami cation be included in List I (Union List) o the SeventhSchedule to the Constitution o India.

8.3.11 Te commission notes that a the o en es proposed to e in ded in the ategory o so a ed ‘Federa crimes’ are a ready in ded as o en es nder the Indian pena aws.

However, as the gravity and omp exity o s h o en es have in reased, it wo d e ne essary to p t in p a e appropriate pro ed res or dea ing with s h o en es. Tis wo d ne essitatethe ena tment o a new aw to dea with a ategory o o en es whi h have inter-state andnationa rami ations. Tis wo d a so a i itate their investigation y a spe ia ised State orcentra agen y. Te o owing o en es may e in ded in the proposed new aw:

• Organised crime• errorism• A ts threatening nationa

se rity • ra king in arms and h man

eings• Sedition• Major rimes with inter-state

rami ations• Assassination (in ding

attempts) o major p ig res

• Serio s e onomi o en es.

8.3.12 he commission agrees with theapproa h s ggested y the Padmana haiahcommittee that s h rimes sho d einvestigated y a spe ia ised wing in thecentra b rea o Investigation. Entry 8 o list I dea s with ‘centra b rea o Inte igen e and Investigation’. Te centrab rea o Investigation present y n tionsas a Spe ia Po i e Esta ishment nder theDe hi Spe ia Po i e Esta ishment A t, 1946as amended rom time to time.

8.3.13 Most o the o en es mentioned in para 8.3.11 are o a re ative y re ent origin and thestate po i e with its restri ted territoria j risdi tion and imited reso r es is ike y to nd itdi t to investigate s h rimes e e tive y. Even tho gh “Po i e’ and ‘P i Order’ g rein the State list in the constit tion, it is e t that this ategory o rimes with inter-state andnationa rami ations wo d a nder the ‘resid ary’ powers o the union. Te commission

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earns that the need or a separate aw or cbI was onsidered on ear ier o asions d ring1986-89 and a dra t bi was prepared. Te commission is o the view that ena tment o a aw sing the ‘resid ary powers’ and Entry 8, list I, to de ne the onstit tion o cbI,its str t re and j risdi tion is overd e and has to e ena ted expeditio s y. Te hangesmade in the De hi Spe ia Po i e Esta ishment A t in 2003 sho d a so e in orporatedin the new aw. under the new aw, the State Po i e as we as the cbI o d e given

on rrent j risdi tion over investigation o a s h rimes. Te empowered ommitteere ommended or monitoring serio s e onomi o en es in this commission’s Report on‘Ethi s in Governan e’ (para 3.7.19) may de ide on the trans er o s h ases to the cbI.On e the cbI takes over a ase, investigation y the State po i e wo d ease t the atter wi e req ired to provide assistan e to the cbI as may e needed. Tese o en es sho d

e tried y spe ia y designated o rts.


a. Tere is need to re-e amine certain o ences which have inter-state or nationalrami cation and include them in a new law. Te law should also prescribethe procedure or investigation and trials o such o ences. Te ollowing o encesma be included in this categor :i. Organised Crime (e amined in paragraph 8.4)

ii. errorismiii. Acts threatening National securit iv. ra cking in arms and human beings v. Sedition vi. Major crimes with inter-state rami cations vii. Assassination o (including attempts on) major public gures viii. Serious economic o ences.

b. A new law should be enacted to govern the working o the CBI. Tis law should also stipulate its jurisdiction including the power to investigatethe new categor o crimes.

c. Te empowered committee recommended in the Commission’s Report on ‘Ethics in Governance’ (para 3.7.19) would decide on cases to betaken over b the CBI.

8.4 Organised Crime

8.4.1 In idents o organised rime in India are on the in rease. Tese in de extortions,

kidnappings or ransom, g n r nning, i i it tra king in women and hi dren, nar oti strade, money a ndering sing the hawa a network et . Organised rime in des othvio ations o persona i e and i erty and e onomi o en es. Tere are no exa t estimatesavai a e a o t the amo nt o money invo ved

t evident y the g res are mind- ogg ing. What gets reported and investigated y the

aw en or ement agen ies is on y a min s eper entage o the overa q ant m o organised rimina a tivity. I not he ked,these rimes have the potentia o threateningnationa pea e and se rity.

8.4.2 Interpo has de ned organised rime as“Any group having a corporate structure whose primary objective is to obtain money throughillegal activities, o ten surviving on ear and corruption”. (Paul Nesbitt, Head o Organised Crime Group, Bresler 1993, 319).

8.4.3 Te united Nations views organised rime to e a arge-s a e and omp ex rimina

a tivity arried on y gro ps o persons, however oose y or tight y organised, or theenri hment o those parti ipating and at the expense o the omm nity and its mem ers.S h rime is req ent y a omp ished thro gh r th ess disregard o any aw, in dingo en es against the person, and req ent y in onne tion with po iti a orr ption.

8.4.4 In essen e, organised rime an e regarded the n aw a tivities ind ged in y agro p o individ a s with a degree o p anning and reso r es not o nt in ase o ordinary gangs o rimina s. un ike gro ps o terrorists,the o je tive o s h gro ps is pe niary gainrather than s version o esta ished order.

8.4.5 In India, organised rime in its rrentorm had its genesis in M m ai. A ter the

introd tion o prohi ition, oot eggersstarted organizing themse ves into gro psand orming syndi ates. Te sit ation gotaggravated o owing the introd tion o theGo d contro Order a ew years ater. Te

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q i k money these rimina s earned attra ted more peop e and these oose y organisedgro ps started taking the shape o gangs with strong eadership and we organised str t re. With in reasing money and m s e power they diversi ed their a tivities into extortions,dr g tra king, providing ‘prote tion’, esh trade et . Te ast de ade has seen a majortrans ormation in the operation o these organised ga ngs into more dangero s o t ts o ten with transnationa terrorist inks.

8.4.6 Te g o a isation o the e onomy has de nite y he ped the rime syndi ates arry o ttheir i ega a tivities a ross the orders with great ease. Tis has een rther a i itated y the phenomenon o ‘digita money’. S h organisations, very onvenient y nd sa e havenso tside the o ntry.

8.4.7 In the uS a so, organised rime started with oot egging. Te wenty- rst Amendmentto the uS constit tion repea ed the Eighteenth Amendment, whi h had mandatedProhi ition in the o ntry. Terea ter rime gro ps and ami ies that had een oot eggingmoved on to other moneymaking rimes y ontro ing egitimate sinesses and sing someo them as ronts or rimina a tivity. Organised rime rea hed its peak in the 1960s.

8.4.8 Over the years, the uS congress had ena ted severa stat tes a thorising in reasedp nishment or typi a organised rimes s h as gam ing, oan sharking, transportationo sto en goods, and extortion. Organised crime contro A t was ena ted in 1970. it eIX o the A t is the Ra keteer In en ed and corr pt Organisations Stat te (18 u.S.c.§ § 1961-1968), ommon y re erred to as the “RIcO” stat te.

8.4.9 Se tion 1961 (RIcO) de nes “ra keteering a tivity’’ as any a t or threat invo vingm rder, kidnapping, gam ing, arson, ro ery, ri ery, extortion, dea ing in o s enematter, or dea ing in a ontro ed s stan e or isted hemi a (as de ned in se tion 102o the contro ed S stan es A t), whi h is hargea e nder state aw and p nisha e y imprisonment or more than one year. It a so in des severa other o en es nder the

edera and state aws. Se tion 1962 prohi its a ist o a tivities ike re eiving any in omedire t y or indire t y, rom a pattern o ra keteering a tivity. It a so pres ri es that it sha

e n aw or any person emp oyed y or asso iated with any enterprise to ond t orparti ipate, dire t y or indire t y, in the ond t o s h enterprise’s a airs thro gh a patterno ra keteering a tivity or o e tion o n aw de t.

8.4.10 Se tion 1963 stip ates that whoever vio ates any provision o se tion 1962 shae ned or imprisoned or not more than 20 years (or or i e i the vio ation is ased on

a ra keteering a tivity or whi h the maxim m pena ty in des i e imprisonment), oroth, and sha or eit to the united States a ene ts the person has derived y vio ation

o Se tion 1962. In addition to these rimina aw provisions, RIcO a so a thorises ivis its, oth y the government and y private individ a s who are e onomi a y inj red y a RIcO vio ation. Se tion 1964 provides“ Any person injured in his business or property by reason o a violation o section 1962 o this chapter may sue there or in any appropriate United

States district court and shall recover three old the damages he sustains and the cost o the suit,including a reasonable attorney’s ee…” .

8.4.11 In the ear y nineties, the Governmento India onstit ted the Vohra committee“to take sto k o a avai a e in ormationa o t the a tivities o rime syndi ates/ Ma aorganisations whi h had deve oped inks withand were eing prote ted y Government

n tionaries and po iti a parties.” heVohra committee s mitted its report in1993. It o served:

“An organised crime Syndicate/Ma a

generally commences its activities by indulging in petty crime at the local level, mostly relating to illicit distillation/ gambling/organised satta prostitutionin the larger towns. In port towns,their activities involve smuggling and sale o imported goods and progressively graduate to narcotics and drug tra cking. In the bigger cities, the main source o income relates to real estate – orcibly occupying lands/buildings, procuring such properties at cheaprates by orcing out the existing occupants/tenants etc. Over time, the money power thus acquired is used or building up contacts with bureaucrats and politicians and expansiono activities with impunity. Te money power is used to develop a network o muscle-power which is also used by the politicians during elections.”

8.4.12 Te committee on Re orms o crimina J sti e System had a so examined iss esre ated to ‘organised rime’ and re ommended that:

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i. Government re ease a paper de ineating the genesis o organised rime in India,its internationa rami ations and its ho d over so iety, po iti s and the e onomy o the o ntry.

ii. Ena ing egis ative proposa s e ndertaken speedi y to amend domesti awsto on orm to the provisions o the uN convention on ransnationa Organisedcrime.

iii. An inter-Ministeria Standing committee e onstit ted to oversee theimp ementation o the convention.

iv. Te Noda Gro p re ommended y the Vohra committee may e given thestat s o a Nationa A thority with a ega rame-work with appropriate

omposition.a. Tis A thority may e mandated to hange the orientation and per eption

o aw en or ement agen ies, sensitise the o ntry to the dimensions o thepro em and ens re that investigations o ases a ing within the am it o the A thority are omp eted within a spe i ed time- rame;

. Te A thority sho d e empowered to o tain in ormation on any aserom any agen y o the centra or the State Governments;

. It sho d a so have the power to reeze ank a o nts and any other nan iaa o nts o s spe ts/a sed invo ved in ases nder its s r tiny.

d. Te power to atta h the property o any a sed.

v. S ita e amendments to provisions o the code o crimina Pro ed re, theIndian Pena code, the Indian Eviden e A t and s h other re evant aws asreq ired e made to dea with the dangero s nex s etween po iti ians,

rea rats and rimina s.vi. A spe ia me hanism e p t in p a e to dea with ases invo ving a centra

Minister or a State Minister, Mem ers o Par iament and State Assem ies topro eed against them or their invo vement.

vii. Tat the code o crimina Pro ed re provide or atta hment, seiz re andon s ation o immova e properties on the same ines as avai a e in spe iaaws.

viii. A centra , spe ia egis ation e ena ted to gh t Organised crime with ani orm and ni ed ega stat te or the entire o ntry.

8.4.13 Te State o Maharashtra, whi h or ong has orne the r nt o organisd rime

ena ted a spe ia aw a ed the Maharashtra contro o Organised crime A t, 1999(McOcA). Te statement o o je ts and reasons o McOcA mentions the o owing:

“Organised crime has been or quite some years now come up as a very serious threat toour society. It knows no national boundaries and is uelled by illegal wealth generated by contract, killing, extortion, smuggling in contrabands, illegal trade in narcotics,kidnappings or ransom, collection o protection money and money laundering, etc. Te illegal wealth and black money generated by the organised crime being very huge, it has had serious adverse e ect on our economy. It was seen that the organised criminal syndicates

made a common cause with terrorist gangs and oster narco terrorism which extend beyond the national boundaries. Tere was reason to believe that organised criminal gangs have been operating in the State and thus, there was immediate need to curb their activities.

It was also noticed that the organised criminals have been making extensive use o wire and oral communications in their criminal activities. Te interception o such communications to obtain evidence o the commission o crimes or to prevent their commission would be an indispensable aid to law en orcement and the administration o justice.

2. Te existing legal ramework i.e. the penal and procedural laws and the adjudicatory system were ound to be rather inadequate to curb or control the menace o organised crime. Government, there ore, decided to enact a special law with stringent and deterrent provisions including in certain circumstances power to intercept wire, electronic or oral communication to control the menace o the organised crime.

It is the purpose o this Act to achieve these objects.”

8.4.14 McOcA de nes ‘organised rime’ in Se tion 2(e) (box: 8.6 ) a nd provides or :

a) Enhan ed p nishment or organised rime and or possessing na o nta e wea th on eha o a mem er o organised rime syndi ate (Se tions 3 & 4).

) constit tion o Spe ia co rts or tria o o en es p nisha e nder McOcA (Se tion 5).

) A thorisation o inter eption o wire, e e troni or ora omm ni ation,appointment o a competent A thority or it and onstit tion o a Review committee or review o a thorisation orders (Se tions 13,14 & 15).

d) Spe ia r es o eviden e or the p rpose o tria and p nishment o o en esnder the A t (Se tion 17).

e) certain on essions made to po i e o i er not e ow the rank o the

S perintendent o Po i e to e taken into onsideration (Se tion 18).) Prote tion o witness (Se tion 19).

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g) For eit re and atta hment o property (Se tion 20).h) Pres mption y the Spe ia co rt that any a sed has ommitted o en e

nder the A t in ertain ases (Se tion 22).i) In ormation a o t ommission o an o en e nder the A t to e re orded

with the prior approva o po i e o er not e ow the rank o Dep ty Inspe torGenera o Po i e; investigation to e arried o t y an o er not e ow the

rank o a Dep ty S perintendent o Po i e and Spe ia co rt to take ognizan eo any o en e on y when there is a previo s san tion o an o er not e ow the rank o Additiona Dire tor Genera o Po i e (Se tion 23).

8.4.15 T s, it is evident that McOcA has provided or a very e a orate me hanism tota k e organised rime. It is a so seen that adeq ate sa eg ards are provided in this A tagainst mis se. For examp e, orders or a thorising inter eption o omm ni ation have

een p t nder the p rview o a Review committee; or on essions to e onsideredd ring tria s, they have to e made e ore an o er not e ow the rank o a S perintendento Po i e et . Tis aw however has eno gh teeth in the orm o spe ia r es o eviden e,prote tion o witnesses, or eit re o property, pres mption against the a sed in some

ases, enhan ed p nishments et .

8.4.16 Re ent y, Karnataka, Andhra Pradesh and De hi have ena ted simi ar aws. G jarathad a so passed a simi ar aw whi h is awaiting the assent o the President. Te commissionhas examined this iss e and is o the view that s h provisions as ontained in McOcA an

e a major too in the ght against organised rime. F rther, as organised rime is in reasing y having inter-state rami ations as we as inks with transnationa terrorist gro ps, thecommission ee s that it is now essentia to have a centra aw. S h egis ation sho d

asi a y o ow the pattern o McOcA y providing or enhan ed p nishment, spe iao rts, p i prose tors, a thorisation or inter eption o omm ni ation, reg ation

and review o s h a thorisations, spe ia r es o eviden e, ir mstan es nder whi hon essions to po i e o ers an e admissi e in tria s, prote tion o witnesses, or eit re

and atta hment o property, pres mption o o en e, ognizan e o and investigationinto an o en e, et . Te commission has a ready re ommended major sa eg ards in itsre ommendations on po i e re orms in ear ier paragraphs. With the re ormed organisationastr t re o the po i e as pres ri ed in this Report and the additiona sa eg ards whi h wo d e i t in the union aw dea ing with organised rime, potentia or mis se o its

provisions wo d e minima .


a. Speci ic provisions to de ine organised crimes should be included inthe new law governing ‘Federal Crimes’. Te de nition o organised crime inthis law should be on the lines o the Maharashtra Control o OrganisedCrime Act, 1999.

8.5 Armed Forces (Special Powers) Act, 1958

8.5.1 In the wake o serio s dist r an es o owing Partition, dep oyment o the ArmedFor es in arge areas and over ong periods e ame inevita e. It was a so rea ised that thenorma provisions o crPc (Se tion 130 and 131), whi h envisaged that the o er in-

harge o the deta hment o the Armed For es present on the spot wo d se or e andarrest mem ers o an n aw assem y, were not s ient to ontro the sit ation. It was

nder these ir mstan es that the Armed For es were given spe ia powers with ena tmento aws ike the benga Dist r ed Areas (Spe ia Powers o the Armed For es) Ordinan e,1947 and East P nja Dist r ed Areas (Spe ia Powers o the Armed For es) Ordinan e,1947. Essentia y these aws empowered even non- ommissioned o ers to se or e whi h

o d extend to a sing death, sear hing premises witho t a warrant or res ing persons wrong y restrained and to provide imm nity rom prose tions in respe t o s h a ts.

8.5.2 To gh these ena tments eased to operate a ew years a ter the sit ation in the a e tedstates sta i ized, the arrangements made therein were deemed very se or sit ationsreq iring dep oyment o the armed or es et or ‘interna se rity d ties’ or prolonged periods.When dep oyment o the Army and the para-mi itary or es in arge n m ers and

or an indeterminate period to dea with the sit ation arising e a se o ins rgen y y the‘Naga and Nationa co n i ’ e ame ne essary, a aw on the ines o the 1947 ena tments was a so onsidered to e indispensa y req ired. Te res t was the Armed For es (Assamand Manip r) Spe ia Powers A t, 1958. Te Naga inha ited areas a e ted y ins rgen y

e in the then Naga Hi s Distri t in Assam and three s -divisions (ukhr , ameng ongand Mao) in the then union erritory o Manip r. Te aw was s seq ent y sed to dea with ins rgen y in the then Mizo Hi Distri t, and a so in Assam and rip ra. Fo owingthe reorganization o the North-Eastern region in 1972 entai ing, inter a ia, a onstri tiono the territory o the State o Assam, the A t was amended a nd renamed the Armed For es

(Spe ia Powers) A t (AFSPA).

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8.5.3 AFSPA now extends to a the states o the North East ex ept Sikkim. It omes intooperation a ter a de aration is made nder Se tion 2 that a parti ar area is “dist r ed”.Ear ier, on y the Governor/Administrator was ompetent to iss e s h de aration(in rea ity, the State or the union erritory on erned); the 1972 amendment now vestsa simi ar power with the union Government. Te A t app ies to the Army, the Air For eand centra parami itary or es et . On e the de aration is iss ed, ‘spe ia powers’, e ome

avai a e to ommissioned or non- ommissioned o ers o the A rmed For es. Te ‘spe iapowers’ nder Se tion 4 are:

(a) Power to se or e, in ding opening re, even to the extent o a sing death i prohi itory orders anning assem y o ve or more persons or arrying armsand weapons et are in or e in the dist r ed area;

( ) Power to destroy str t res sed as hide-o ts, training amps or as a p a e rom whi h atta ks are or ike y to e a n hed et ;

( ) Power to arrest witho t warrant and to se or e or the p rpose;(d) Power to enter and sear h premises witho t warrant to make arrest or re overy

o hostages, arms and amm nition and sto en property et .

8.5.4 Se tion 5 o AFSPA req ires that persons arrested y the Armed For es e handedover to the nearest Po i e Station “with the east possi e de ay” a ong with a report o “ ir mstan es o asioning the arrest”. Se tion 6 gives mem ers o the Armed For esdis harging d ties nder the A t imm nity rom prose tion and other ega pro eedingsex ept with the previo s san tion o the union Government.

8.5.5 Te A t has een sed in Manip r and Naga and sin e 1958 and in Mizoram, Assam and rip ra rom ater dates. Attempts have een made to seek j di ia review o this aw with a view to seek its ann ment on gro nds that it is rep gnant to the rightto eq a ity and the edera str t re o the constit tion et . Te matter has re eived aq iet s o owing a nanimo s prono n ement y a ve J dge constit tion ben h o theS preme co rt in Naga Peop es’ Movement o H man Rights vs union o India (1998)2 Scc 109 ho ding the ena tment to e constit tiona y va id. As regards powers vestedin the union Government, the S preme co rt noted that Se tion 3 was amended y A t7 o 1972 y virt e o whi h the power to de are an area to e a ‘dist r ed area’ has a so

een on erred on the centra Government.

8.5.6 Te ve-j dge en h o the Apex co rt arrived at, inter a ia, the o owing on sionsa ter taking into onsideration vario s arg ments:

i. Par iament was ompetent to ena t AFSPA in exer ise o the egis ative poweron erred on it nder Entry 2 o list I (pertaining to nava , mi itary and airor es and a so any other armed or es o the union) and Arti e 248 o the

constit tion read with Entry 97 o list I (pertaining to resid ary powers o egis ation). A ter the insertion o Entry 2A in list I y the Forty-Se ond

Amendment to the constit tion, the egis ative power ows rom Entry 2A o

list I (pertaining to dep oyment o any armed or e o the union or any otheror e s je t to the ontro o the union in any state in aid o the ivi power

et ).ii. It is not a aw in respe t o maintenan e o p i order a ing nder Entry 1

o list II.iii. Whi e AFSPA is not a aw nder Entry 1 o list II, the expression “in aid o the

ivi power” in Entry 2 A o list I and Entry 1 o list II, imp ies that dep oymento the armed or es o the union sha e or the p rpose o ena ing the ivipower in the State to dea with the sit ation a e ting maintenan e o p iorder whi h has ne essitated the dep oyment o the armed or es in the State.It does not disp a e the ivi power o the state y the armed or es o theunion.

iv. AFSPA is not a o o ra e egis ation or a ra d on the constit tion. It isnot a meas re intended to a hieve the same res t as ontemp ated y a

Pro amation o Emergen y nder Arti e 352 or a pro amation nder Arti e356 o the constit tion.

v. A de aration nder Se tion 3 has to e or a imited d ration s je t to periodireview e ore the expiry o six months.

vi. Te on erment o power to make a de aration nder Se tion 3 o AFSPA on thecentra Government is not vio ative o the edera s heme as envisaged y theconstit tion. F rther, a simi ar on erment on the Governor o the State annot

e regarded as de egation o the power o the centra Government.vii. A tho gh a de aration nder Se tion 3 an e made y the centra Government

s o mot witho t ons ting the on erned State Government, it is desira ethat the State Government sho d e ons ted y the centra Government whi e making the de aration.

viii. he powers on erred nder c a ses (a) to (d) o Se tions 4 and 5 o AFSPA on the o ers o the armed or es, in ding a Non-commissioned

O er are not ar itrary and nreasona e and are not vio ative o the provisionso Arti es 14, 19 or 21 o the constit tion.

ix. A person arrested and taken into stody in exer ise o the powers nder Se tion

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4( ) o AFSPA sho d e handed over to the o er-in- harge o the nearest po i estation with east possi e de ay so that he an e prod ed e ore the nearestmagistrate within 24 ho rs o s h arrest ex ding th e time taken or jo rney

rom the p a e o arrest to the co rt o Magistrate.

8.5.7 Tere was a serio s o t ry against the A t in Manip r in J y 2004 o owing the

a eged stodia death o a woman arrested y the Armed For es. Te agitation virt a y para yzed the Manip r va ey and the union Government appointed the committee toReview the Armed For es (Spe ia Powers) A t, 1958 with J sti e b.P Jeevan Reddy, a retired J dge o the S preme co rt, as its chairman. Te terms o re eren e o the committee were to re ommend amendments in the A t to“bring it in consonance with the obligations o the Government towards human rights or to replace the Act by a “more humane Act”.Inother words, imp i it ehind the setting p o the committee was th e re ognition that theprovisions o the A t needed a resh ook.

8.5.8 Te a ove committee examined the provisions o Se tion 4(a) o AFSPA and o ndthat the powers on erred therein are not a so te and o d on y e invoked in the dist r edarea i there was a ready a prohi itory order in or e. F rthermore, the opinion ormed y the o er on erned m st e honest and air. It a so examined the provisions o Se tion 4( )and o nd that the power on erred therein is ir ms ri ed y Se tion 5. Te committee was o the view that the phrase ‘with the east possi e de ay’ as sed in Se tion 5 has to

e onstr ed in the ight o Arti e 22(2) o the constit tion whi h on ers a right ponthe person arrested and detained in stody to e prod ed e ore the nearest Magistrate within a period o 24 ho rs o s h arrest (ex ding jo rney time). Te committee took note o a ses (a) and ( ) o Arti e 33 o the constit tion whi h empowers the Par iamentto make a aw determining to what extent any o the Rights on erred y Part 3 o theconstit tion sha in their app i ation to the mem ers o the Armed For es or the mem erso the For es harged with the maintenan e o p i order e restri ted or a rogated toens re proper dis harge o their d ties. It e t that as Par iament had not hosen to makeany s h aws, the right on erred y Arti e 22(2) remains ntramme ed.

8.5.9 Te committee a so noted that Arti e 355 o the constit tion p a es an o igationon the union o India to prote t every state against ‘externa aggression and internadist r an e’. It a so noted that prior to the constit tion (44th Amendment) A t theexpressions ‘externa aggression’ and ‘interna dist r an e’ were ommon to oth Arti es352 and 355. With the s stit tion o ‘interna dist r an e’ y the expression ‘armedre e ion’ y the said Amendment, the power nder A rti e 352 may not e a vai a e withthe union in ase o an ‘interna dist r an e’.

8.5.10 Te committee e t thatevery ‘p i order’ pro em doesnot ne essari y amo nt to ‘internadist r an e’ whi e the onverse wo d e tr e. he committee was o the view that this distin tion

sho d e kept in mind whi einterpreting the expression ‘P iOrder’ as o nd in Entry 1 o list II o the Seventh S hed e tothe constit tion. It a so pointedo t that Entry 2 A in the unionlist speaks o dep oyment o the Armed For es o the union inany State in aid o ivi power tit does not speak o or re er to‘P i Order’.

8.5.11 Apart rom the a ove, th e committee a so examined the provisions o the un aw A tivities (Prevention) A t, 1967 (ulPA) as amended y the un aw A tivities (Prevention)

Amendment A t, 2004. It took note o the de nition o a ‘terrorist a t’ as provided inSe tion 15 and the terrorist organizations isted o t in the S hed e to this A t, whi hin des vario s organizations rom the North-Eastern States. Te committee o servedthat Se tion 49( ) o this A t gives prote tion to any serving or any retired mem er o thearmed or es or the para mi itary or es in respe t o a tion taken in goo d aith in the o rseo any operation dire ted towards om ating terrorism. Te committee was o the view that Se tion 49( ) indi ates that Par iament did take note o the a t th at in many ases itmay e ne essary to dep oy the armed or es or para mi itary or es to om at terrorismand terrorist a tivities.

8.5.12 Te committee a ter onsidering the views o vario s stakeho ders ame to theon sion that AFSPA sho d e repea ed. It was a so o the view that it wo d e more

appropriate to re ommend insertion o appropriate provisions in the un aw A tivities(Prevention) A t, 1967 (ulPA) instead o s ggesting a new egis ation. Te reasons orthis re ommendation are s mmarised as nder:

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a. Te ulPA de nes terrorism in terms whi h over the a tivities arried o t y severa ins rgent gro ps in the North Eastern states.

. Te ulPA not on y de nes ‘terrorism’ in expansive terms t a so ists some o the organisations engaged in ins rgent a tivities in the North East as is apparent

rom the S hed e appended to the A t.. On the asis o the provisions o Se tion 49( ) o the ulPA it an e said that

this A t envisages the dep oyment o the armed or es or para mi itary or esin ontro o the union or ghting ins rgent a tivity arried on in some or aNorth Eastern states.

d. Repea o AFPSA wo d remove the ee ing o dis rimination and a ienationamong the peop e o the North Eastern states.

e. Te ulPA is a omprehensive aw n ike the AFPSA whi h dea s on y with theoperations o the armed or es o the union in a dist r ed area.

8.5.13 Te committee, there ore proposed the insertion o chapter VI A in the ulPA. A rie s mmary o the proposed insertion is reprod ed e ow:

a. I the State Government is o the opinion that on a o nt o terrorist a ts orotherwise, a sit ation has arisen where p i order annot e maintained inthe state or in any part o the state ex ept with the aid o armed or es in

ontro o the union, it may req est the union Government to dep oy themor a period (not ex eeding six months) as it may spe i y.

. It sha e open to the State Government to review the sit ation at the end o thep e r i o d a s s p e i i e d a n d r e q e s t t h e u n i o n G o v e r n m e n tto extend the period o dep oyment or s h period (not ex eedingthree months) as it may deem ne essary. S h review an take p a e romtime to time t ea h req est sha e p a ed on the ta e o the legis ative Assem y (i there are two Ho ses, then on the ta e o oth Ho ses) o thestate.

. On re eipt o s h req est rom the State Government, the unionGovernment may dep oy s h or es nder its ontro whi h are ne essary orrestoration o p i order. Tis may e done y way o a noti ation p ishedin the Gazette. On the asis o the req est o the State Government the periodo dep oyment and area o dep oyment an e extended or varied.

d. I the union Government is o the opinion that on a o nt o terrorist a ts orotherwise a sit ation has arisen in a state (or a part o the state)/u , wheredep oyment o or es nder its ontro is req ired to q e internadist r an e, it may do so notwithstanding that no req est or the same

is re eived rom the State Government on erned. he unionGovernment sha do so y way o a noti i ation p ished in theGazette spe i ying the state or part o the state and the period o dep oyment(not ex eeding six months). At the end o the spe i ed period, it sha review the sit ation in ons tation with the State Government and may extend theperiod o dep oyment. S h extension sha not e or more than six months

at a time. Every noti ation extending the period o dep oyment or the area o dep oyment sha e aid on the ta e o oth Ho ses o Par iament withinone month o p i ation o the noti ation.

e. Te or es so dep oyed sha a t in aid o ivi power. In the o rse o ndertakingoperations, as are deemed ne essary or the p rpose o restoring p i order orto q e interna dist r an e, any o er not e ow the rank o non- ommissionedo er may se or e or re pon person(s); enter and sear h witho t warrantany premises to arrest any person; enter, sear h a nd seize witho t warrant any premises and destroy rearms et . (ex ept where s h premises happens to e inan ninha itated area, the entry and sear h seiz re operations sha e e e ted inthe presen e o the e ders o the o a ity or the head o the ho seho d, and in ase o his/hera sen e, any two independent witnesses) within the ontext o a tivitiesmentioned in Se tion 15 o the ulPA.

. Te person arrested as mentioned a ove sha e handed over to the o er

in harge o the nearest po i e station.g. Te union Government sha onstit te a Grievan es ce in ea h distri t

o a state where s h or es are dep oyed. Tis sha e an independent ody and sha e ompetent to enq ire into omp aints o vio ations o rights o

itizens.

8.5.14 Te proposed chapter VI A a so in des an Appendix whi h in orporates the‘Do’s and Don’ts’ iss ed y the Army and mentioned in paras 58 and 59 o the re erred j dgment o the S preme co rt and a so the on sions mentioned in paras 79(17) and79(21) o that J dgment.

8.5.15 Tere is no do t that the de nition o a ‘terrorist a t’ as provided in the ulPA isq ite exha stive as it a so takes it into its p rview, inter a ia, a ts ommitted with intentto ‘threaten the nity, integrity, se rity or sovereignty o India’. In a t, the instan es

nder whi h any area an e de ared a ‘dist r ed area’ nder the AFSPA ne essitating thedep oyment o the armed or es o the union therein wo d ne essari y e the o t ome o a tivities whi h are overed nder the de nition o a ‘terrorist a t’ nder th e ulPA. T sthere is itt e need or a separa te A t. Te proposed insertion o chapter VI A in the ulPA

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8.6.2 Te bi provides or enhan ed p nishment or omm na vio en e. In terms o c a se 19 o the bi , whoever ommits any a t o omission or ommission whi h onstit tesa s hed ed o en e on s h s a e or in s h manner whi h tends to reate internadist r an e within any part o the state and threaten the se ar a ri , nity, integrity orinterna se rity o the nation is said to ommit omm na vio en e. P nishment or s ho en es other than in the ase o an o en e p nisha e with death or imprisonment or

i e is twi e the ongest term o imprisonment and twi e the highest ne provided or thato en e in the IPc or in any other A t spe i ed in the S hed e to the bi . In ase o ap i servant the p nishment wi not e ess tha n ve years and whosoever is o nd g i ty sha e disq a i ed rom ho ding any post or o e nder the government or a period o six years rom the date o onvi tion.

8.6.3 chapters V and VI o th e bi dea with Investigation and Spe ia co rts respe tive y.Te nota e eat re is that there are provisions or onstit tion o a review ommittee, andspe ia investigation teams. In terms o c a se 22, i a harge sheet is not ed within 3months rom the date o the registration o FIR, the ase sha e reviewed y a ommitteeheaded y an o er o the eve o an Inspe tor Genera o Po i e. Tis committee hasthe a thority to order a resh investigation y another o er not e ow the rank o Dy. S perintendent o Po i e. Te State Government an a so onstit te one or moreSpe ia Investigation eams, i it omes to the on sion th at the investigation o o en es

ommitted in any omm na y dist r ed area was not arried o t proper y.8.6.4 Te bi provides or instit tiona arrangements or re ie and reha i itation in the

orm o State comm na Dist r an e Re ie and Reha i itation co n i to e onstit tedy every State Government. In addition to the re ie and reha i itation work the co n i

sha a so prepare a p an or every state to e a ed the state omm na harmony p an orpromotion o omm na harmony and prevention o omm na vio en e. Tere is a so aprovision or onstit tion o a Distri t comm na Dist r an e Re ie and Reha i itationco n i . In terms o c a se 45, there wi e a Nationa comm na Dist r an e Re ie andReha i itation co n i to e onstit ted y the centra Government. Te Nationa co n isha give its re ommendations to the Government regarding re ie and reha i itation o the vi tims o the omm na vio en e. Te co n i sha a so s mit reports to the unionGovernment re ommending the steps req ired to e taken to dea with the sit ation givingrise to omm na vio en e.

8.6.5 Te bi a so has provisions or setting p o a nd y every State Government to ea ed the State comm na Dist r an e Re ie and Reha i itation F nd and there sha eredited thereto – (a) a moneys re eived rom the centra Government, ( ) a moneys

re eived rom the State Government and any other amo nt re eived as gi ts or donations

asi a y provides a me hanism thro gh whi h the Armed For es o the union o d edep oyed in sit ations and areas where its need is e t. As indi ated a ove, the proposedamendment in orporates the dire tions o the S preme co rt o India on the matter with regard to dep oyment o armed or es o the union and the ond t o s h armed

or es d ring s h dep oyment. It a so provides or a g rievan e redressa me hanism. Mostimportant y it does not in any way di te or ompromise the paramo nt importan e o

ens ring nationa se rity in these dist r ed ins rgen y a e ted areas.

8.5.16 Te commission agrees that or reasons indi ated in the oregoing paras, the AFSPA sho d e repea ed. As re ommended y the committee to Review the Armed For es (Spe iaPowers) A t, 1958, a new hapter VI A o d e inserted in the ulPA in orporating theprovisions governing the dep oyment o armed or es o the union in aid o ivi power.However, the proposed insertion o chapter VI A sho d app y on y to the North-East.


a. Te Armed Forces (Special Powers) Act, 1958 should be repealed. o provide oran enabling legislation or deplo ment o Armed Forces o the Union in theNorth-Eastern states o the countr , the Unlaw ul Activities (Prevention) Act, 1967 should be amended b inser ting a new Chapter VI A as recommendedb the Committee to Review the Armed Forces (Special Powers) Act,1958. Tenew Chapter VI A would appl onl to the North-Eastern states.

8.6 Te Communal Violence (Prevention, Control and Rehabilitation o Victims)Bill, 2005

8.6.1 Te proposed bi is intended to ta k e the pro em o omm na dist r an es andvio en e. c a se 3 o this bi on ers the power on the State Government to de are anarea to e a omm na y dist r ed area whenever one or more s hed ed o en es are eing

ommitted in that area in s h a manner and on s h a s a e whi h invo ves the se o rimina or e o vio en e against any gro p, aste and omm nity, res ting in death and

destr tion o property. Te State Government is req ired to take a possi e meas resto ontro omm na vio en e. In order to en or e the provisions o this bi the StateGovernment sha appoint competent A thorities who wo d e entr sted with vario spowers ike power to take preventive meas res, power to order deposit o arms, amm nition

et ., power to sear h, detain and seize arms et . in dist r ed areas, power to prohi it ertaina ts and the power to make orders regarding ond t o persons in omm na y dist r edareas. Stri t p nishments or vio ating these orders have a so een provided.

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P i Order



or nan ia aid et . In addition to that every State Government sha esta ish a nd toe a ed the Vi tims Assistan e F nd in ea h distri t a nd p a e the same at the disposa o

the Distri t co n i . Te co n i s at the Distri t and the State eve s are empowered toti ize these nds or re ie and reha i itation.

8.6.6 One o the important provisions o the proposed bi is the spe ia powers o the

union Government to dea with omm na vio en e in ertain ases. In terms o c a se 55,the centra Government has een given power to give dire tions to th e State Governmentin ase o omm na dist r an es and to iss e noti ations de aring any area withina state as a omm na y dist r ed area and to dep oy armed or es wherever ne essary. Where it is de ided to dep oy armed or es, an a thority known as uni ed commandmay e onstit ted y the centra Government or the State Government or the p rposeo oordinating and monitoring s h dep oyment. Every noti ation de aring any area within a state as a omm na y dist r ed area y the union Government has to e aid

e ore ea h Ho se o Par iament. c a se 56 o the bi provides that s h noti ation shaa so spe i y the period or whi h the area wi remain so noti ed whi h sha not ex eed inthe rst instan e, 30 days. Te centra Government may extend this period y noti ation

t the tota period d ring whi h an area may e noti ed as a omm na y dist r ed areasha not ex eed a tota ontin o s period o 60 days.

8.6.7 Te bi dea s with a aspe ts o ta k ing omm na vio en e ranging rom preventivemeas res to reha i itation meas res. Te commission wo d e examining these meas resa ong with the bi in its Report on con i t Management.

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9ROLE OF CIVIL SOCIE y, MEDIA AND POLI ICAL PAR IES IN PUBLIC ORDER

civi so iety is dire t y invo ved in the maintenan e o p i order and the po iti aeadership and the media p ay an important ro e in this. In reased awareness o the itizen o

his so ia and po iti a rights and a te hno ogy savvy, responsive and independent media havemade it imperative that a stakeho ders p ay a onstr tive ro e in p i order management.

o a i itate this, the State has the responsi i ity o reating an ena ing environment.

9.1 Te Role o Civil Societ

9.1.1 civi so iety is a term sed to des ri e so iety at arge and, in an a tive environment,is made p o orma and in orma gro pings o itizens who parti ipate in p i a airs andtry to in en e p i de ision-making. It in des ega asso iations, siness, trade so iaand t ra gro ps, so ia we are organizations, st dent asso iations and the ike. Tesenon-governmenta organisations (NGOs) and roader ivi so iety organisations (cSOs)provide a va a e me hanism or wider so ieta parti ipation in the making o p i po i y. A tive ivi so iety gro ps are a sign o a mat re and we n tioning demo ra y eventho gh a segment o them might, on o asion, tend to p rs e a private agenda. Teir ro e

e omes even more important when the orma me ha nisms o representative governmentease to n tion proper y. Given the a t that many o t reaks o p i disorder have a very o a genesis, onstr tive engagement with NGOs and cSOs is ike y to have a ene ia

impa t on the maintenan e o p i order.

9.1.2 In re ent years there has een a per epti e in rease in the invo vement o ivi so iety gro ps in p i a airs. Many o them have een a tive in exposing h man rights vio ations

y the po i e and se rity or es. Others h ave he ped to high ight ases o j di ia de ays andmis arriage o j sti e, a se o a thority y p i o ia s and the need or transparen y in administrative de ision-making. Tey draw the attention o the administration tothe persisting grievan es o itizens, whi h i redressed an avert so ia on i t and thepotentia degeneration o s h on i ts into p i order pro ems. Vigi ant ivi so iety gro ps high ight administrative axity and orr ption and he p in in reasing the e ien y o governan e whi h wo d then e re e ted in etter de ivery o servi es and red tion in

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P i Order Ro e o civi So iety, Media and Po iti a Parties in P i Order



p i grievan es. Tese gro ps an a so p ay a ro e in reso ving on i ts etween di erentse tions o so iety. Tey a so p ay an important ro e in re ie and reha i itation meas resa ter the major rises. last t not the east, omm nity po i ing has emerged as a major

ivi so iety response to in reased rimes.

9.1.3 In its Report on Ethi s in Governan e, the commission has re ommended that

itizens e invo ved in the assessment and maintenan e o ethi s in important governmentinstit tions and o es. Tis wo d very m h app y to po i e stations and other po i eo es. based on the per eption o itizens who have approa hed the po i e station or any servi e, a periodi rating o a po i e stations sho d e done.

9.1.4 he e orts o ivi so iety need to e s pported and a know edged y theadministration. o a i itate their ontri tion, instit tiona me hanisms may have to e

reated. Sometimes they may req ire stat tory a king.


a. Citizens should be involved in evaluating the qualit o service at police stationsand other police o ces.

b. Government should incentivise citizens’ initiatives.

c. Formal mechanisms should be set up at the cutting edge level to involve citizens/citizen’s groups in various aspects o public order management.

9.2 Te Role o the Media in Public Order

9.2.1 Te Fo rth Estate has a ways p ayed an in entia ro e in the p i sphere.Histori a y, the press has een a orm ator o p i opinion, een instr menta in

ringing a o t hange and has a so provided a power p at orm or addressing nationaand p i sentiments.

9.2.2 Whi e maintaining p i order is an important aspe t o the State’s e ort to earnthe approva o its peop e, eq a y important, or the p rpose o egitima y, is the peop e’sper eption regarding its a i ity to do so. Tis per eption ements the peop e’s aith in theState – a ne essary inp t in egitimising the existen e o the State. It is here that the positivero e o the media emerges q ite signi ant y. Te in reasing expos re o the genera p ito a dio-vis a and print media in en es peop e’s per eption towards the apa i ities o the State.

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9.2.3 e hno ogy has endowed the e e troni media with three major attri tes –instantaneity, spontaneity and o a ity. Instantaneity has provided it with a ringside view inrea time, spontaneity has a owed it over events as they n o d and o a ity has providedit with the power to ring the arthest orner o the g o e into a ho seho d. Tis has a soenhan ed the rea h and, there ore, the ho d o the e e troni media over the viewers’ minds.It has, however, a so given rise to a m tip i ity o p ayers in this e d, with onseq entia

on erns o a o nta i ity, responsi i ity and p i good. It is, there ore ne essary to ens rethat the media is prompt, responsi e, sensitive, a rate and o je tive in its presentation o news. In the ontext o maintenan e o p i order, the ro e o the media o d go a ong way in preventing r mo r mongering and in orre t or mis hievo s overage y a smase tion o the media whi h o d e s pportive o partisan e ements.

9.2.4 Te entra iss e, th s, is how to have an e e tive inter a e with the media. Giventhe te hno ogi a environment in whi h th e media n tions today, the a t that there is nomonopo y over so r es o in ormation and the need to have an in ormed p i , ontromeas res are neither easi e nor desira e. T s, it is in m ent on the administration to

ontin o s y provide the media with immediate, a rate and re ia e in ormation so thatthe p i is not e t with gaps in their in ormation whi h might e ed y sensationa and

iased news reporting. Tis req ires apa i ity i ding at vario s eve s o the administrativema hinery so as to provide a transparent and responsive administration.

9.2.5 o ens re that government o ia s intera t with the media in a pro essiona manner,media management mod es sho d e integrated in vario s training programmes. Mediapersons may a so e asso iated with s h training mod es. Emphasis on o a ang agemedia wo d o vio s y e se .

9.2.6 In hierar hi a str t res within the government, intera tion with the media isgenera y reg ated to avoid on sion and ontradi tions. o over ome s h hindran es,o ia s sho d e designated at appropriate eve s to intera t with the media and theira essi i ity sho d e ens red.


a. Te Administration must make acts available to the media at the earliest about

an major development, particularl activities a ecting public order.b. In order to have better appreciation o each other’s view points there should be

increased interaction between the Administration and the media. Tis could

P i Order Ro e o civi So iety, Media and Po iti a Parties in P i Order



9.3.4 As the commission has stated in its Report on ‘Ethi s in Governan e’, “Demo ratimat rity needs time, patien e, and gen ine e orts to nd rationa e answers to omp expro ems and wi ingness to re on i e on i ting views”.Te commission hopes that thepo iti a eadership o the o ntry wo d ome together to evo ve a onsens s on po iti a

ond t whi h wo d ena e pea e reso tion o o on i ts or overa maintenan eo p i order.

be inter alia in the orm o joint workshops and trainings.c. Te Administration should designate points o contact at appropriate levels

(a spokesperson) or the media which could be accessed during wheneverrequired.

d. O cers should be imparted training or interaction with the media.e. A cell ma be constituted at the district level which ma anal se media reports

about matters o public importance.

9.3 Role o Political Parties

9.3.1 O r demo rati po ity en o rages the reso tion o on i ts and disp tes thro ghdis ssion, de ate and onsens s. Tis is ens red y parti ipation in the po iti a pro essinstit tiona ised y the constit tion. Tere have een many instan es where po iti ao t ts whi h on e promoted the attainment o po iti a and so ia o je tives thro ghvio ent means have a epted the demo rati set- p o the o ntry and have parti ipatedin the e e tora pro ess, there y red ing on i ts.

9.3.2 Te most e e tive method o expressing o e tive on ern is thro gh organisationo pea e assem ies and ra ies. We have the good ort ne o eing heir to MahatmaGandhi’s do trine o non-vio en e. And yet, the n m er o instan es where the exer ise

o the ndamenta right o pea e assem y has ed to a reak down o p i order haseen in reasing over the years. Hoo iganism and a nti-so ia ehavio r sometimes e omesa ne essary a ompaniment o many po iti a ra ies or demonstrations. Te responsi i ity o po iti a parties in s h sit ations and their attit de towards the po i e invo ved inmaintaining aw and order needs to e rede ned. Tis ne essari y rings to entre-stage there ationship etween po iti ians and the po i e. Whi e the po i e have to e responsi e anda o nta e to the peop e at arge in a demo rati set p, their e ien y and impartia ity

annot e a owed to e impinged pon y extraneo s po iti a interventions.

9.3.3 A ter more than ve de ades o Independen e, a p ethora o so ia , e onomi andpo iti a iss es sti exist and many grievan es o the peop e remain nreso ved. Po iti aparties sho d a t as a vehi e or mainstreaming s h grievan es thro gh parti ipationin the demo rati pro ess so that they o d e reso ved thro gh dis ssion and de ate.However, when po iti a parties ai to a t as the medi m o expression o s h on erns, a

po iti a va m is reated whi h en o rages the reso tion o iss es thro gh on i t andeads to the reakdown o p i order. Te rise and growth o Naxa ism in vario s partso the o ntry is a assi examp e o this.

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250 251

CONCLUSION

P i order goes eyond eing j st another iss e in the rea m o good governan e. It is

indeed at the ore o it, the most vita aspe t o o r demo ra y, o o r very existen e as

a nation. Te r e o aw, in its widest sense, reates, and is a so the e e t o , an order y,

t red, wise and eq ita e so iety.

Te importan e o this Report ies in the attempt o the commission to nd new ways y

whi h the r e o aw wo d e phe d and o r demo ra y strengthened. Te commission

has tried to move eyond the straitja ket o the existing str t res and systems o those

wings o government whi h are dire t y invo ved in the maintenan e o p i order. O r

re ommendations, in their imp ementation, wo d req ire restr t ring o the po i e in

India and the invo vement o not mere y the union and the States, t a so o the third

tier o governan e, the o a odies. At the enter o o r proposa s is the itizen, espe ia y

the v nera e se tions o o r so iety.

In o r task, we have had the ene t o the thinking and the advi e o ered y previo s

commissions and committees. Te prono n ements o the S preme co rt and the vario s

High co rts have een e ore s and have g ided the commission in its de i erations.

Te iss es that have een onsidered y s h eminent odies have great y a i itated the

commission in arriving at its re ommendations or ho isti and overar hing re orm.

P i order is a riti a ne essity or progress. An nr y so iety wo d e a re ipe

or e onomi disaster. u timate y the q a ity o i e o o r itizens is in great meas re

dependent pon the maintenan e o p i order. here is a gowing on ern

that in the eyes o the aw en or ing agen ies some are more eq a than others.

It has een the endeavo r o this commission to propose hanges whi h wo d

s stantia y remove s h a per eption, red e the s ope or extraneo s in en esto ear pon the n tioning o the po i e and make them pro essiona , air and

itizen- riend y.

Te commission notes that some o the hanges proposed may take time to imp ement. b t

every ong jo rney egins with a sma step. Tere is need or an en ightened po iti a wi

to a ept and ring a o t these hanges, whi h we e ieve are ndamenta and essentia

or the maintenan e o p i order and a harmonio s so iety.



SUMMARy OF RECOMMENDA IONS

1. (Para 5.2.1.8) State Government and the Police

a. Te ollowing provision should be incorporated in the respective Police Acts:

It shall be the responsibility o the State Government to ensure e cient,e ective, responsive and accountable unctioning o police or the entire

state. For this purpose, the power o superintendence o the police serviceshall vest in and be exercised by the State Government in accordance withthe provisions o law.

Te State Government shall exercise its superintendence over the police insuch manner and to such an extent as to promote the pro essional e ciency othe police and ensure that its per ormance is at all times in accordance withthe law. Tis shall be achieved through laying down policies and guidelines,setting standards or quality policing, acilitating their implementation andensuring that the police per orms its task in a pro essional manner with unctional autonomy.

No government unctionary shall issue any instructions to any police unctionary which are illegal or malafde.

b. ‘Obstruction o justice’ should also be de ined as an o ence underthe law.

2. (Para 5.2.2.30) Separation o Investigation rom other Functions

a. Crime Investigation should be separated rom other policing unctions. A Crime Investigation Agenc should be constituted in each state.

b. Tis agenc should be headed b a Chie o Investigation under theadministrative control o a Board o Investigation, to be headed b a retired/sitting judge o the High Court. T e Board should have an eminent law er,

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P i Order S mmary o Re ommendations



254 255

an eminent citizen, a retired police o cer, a retired civil servant, the HomeSecretar (e -o cio), the Director General o Police (e -O cio), Chie o the Crime Investigation Agenc (e -o cio) and the Chie o Prosecution(e -o cio) as Members.

c. Te Chairman and Members o the Board o Investigation should beappointed b a high-powered collegium, headed b the Chie Ministerand comprising the Speaker o the Assembl , Chie Justice o the HighCourt, the Home Minister and the Leader o Opposition in the Legislative Assembl . Te Chie o Investigation should be appointed b the StateGovernment on the recommendation o the Board o Investigation.

d. Te Chie o the Crime Investigation Agenc should have ull autonom in matters o investigation. He shall have a minimum tenure o three ears. He can be removed within his tenure or reasons o incompetenceor misconduct, but onl a ter the approval o the Board o Investigation.Te State Government should have power to issue polic directions andguidelines to the Board o Investigation.

e. All crimes having a prescribed punishment o more than a de ned limit (sa three or more ears o imprisonment) shall be entrusted to the CrimeInvestigation Agenc . Registration o FIRs and rst response should be with the ‘Law and Order’ Police at the police station level.

. Te e isting sta could be given an option o absorption in an o the Agencies Crime Investigation, Law and Order and local police. But once absorbed, the should continue with the same Agenc and develope pertise accordingl . Tis would also appl to senior o cers.

g. Once the Crime Investigation Agenc is sta ed, all ranks should develope pertise in that eld and there should be no trans er to other Agencies.

h. Appropriate mechanisms should be developed to ensure coordinationbetween the Investigation, Forensic and the Law and Order Agencies, at the Local, District and the State levels.

3. (Para 5.2.3.7) Accountabilit o Law and Order Machiner

a. A State Police Per ormance and Accountabilit Commission should beconstituted, with the ollowing as Members:

• Home Minister (Chairman)• Leader o Opposition in the State Assembl • Chie Secretar • Secretar in charge o the Home Department;• Director General o Police as its Member Secretar • (For matters pertaining to Director General o Police, including his

appointment, the Home Secretar shall be the Member Secretar )• Five non-partisan eminent citizens

b. Te State Police Per ormance and Accountabilit Commission shouldper orm the ollowing unctions:

• rame broad polic guidelines or promoting e cient, e ective, responsiveand accountable policing, in accordance with law;

• prepare panels or the o ce o Director General o Police against prescribedcriteria;

• identi per ormance indicators to evaluate the unctioning o the policeservice; and

• review and evaluate organizational per ormance o the police service.

c. Te method o appointment o the Chairman and Members o the StatePolice Per ormance and Accountabilit Commission should be as stipulatedin the Dra t Model Police Act.

d. he State Government should appoint the Chie o Law and OrderPolice rom the panel recommended b the State Police Per ormance and Accountabilit Commission. Te panel will be or the ‘o ce’ o DirectorGeneral o Police and not to other posts o the ‘rank’ o DGP.

e. Te tenure o the Chie o the Law and Order Police as well as the Chie o the Crime Investigation Agenc should be at least three ears. But thistenure should not become a hindrance or removal in case the Chie is

ound to be incompetent or corrupt or indulges in obstruction o justiceor is guilt o a criminal o ence. Te State Government should havepowers to remove the Police Chie but such order o removal should bepassed onl a ter it has been cleared b the State Police Per ormance and

Accountabilit Commission (or the State Investigation Board, in the caseo Chie o Investigation).




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4. (Para 5.2.4.9) Police Establishment Committees

a. A State Police Establishment Committee should be constituted. It shouldbe headed b the Chie Secretar . Te Director General o Police shouldbe the Member Secretar and the State Home Secretar and a nominee o the State Police and Accountabilit Commission should be the Members.Tis Committee should deal with cases relating to o cers o the rank o Inspector General o Police and above.

b. A separate State Police Establishment Committee should be set up with the Chie o Law and Order Police as its Chairperson and twosenior police o cers and a member o the State Police Per ormance and Accountabilit Commission as Members (All Members o this Committeeshould be nominated b the State Police Per ormance and Accountabilit Commission) to deal with cases relating to all gazetted o cers up to therank o Deput Inspector General o Police.

c. Tese Committees should deal with all matters o postings and trans ers,promotions and also grievances relating to establishment matters. Terecommendations o these Committees shall normall be binding on theCompetent Authorit . However, the Competent Authorit ma return therecommendations or reconsideration a ter recording the reasons.

d. Similarl , a District Police Establishment Committee (Cit PoliceCommittee) should be constituted under the Superintendent/Commissionero Police. Tis Committee should have ull powers in all establishment matters o non-gazetted police o cers.

e. For inter-district trans ers o non-gazetted o icers, the State levelEstablishment Committee ma deal with it or delegate it to a Zonal or a Range level Committee.

. All o cers and sta should have a minimum tenure o three ears. Shouldthe Competent Authorit wish to make pre-mature trans er, it shouldconsult the concerned establishment committee or their views. I the viewso the establishment are not acceptable to the Competent Authorit , thereasons should be recorded be ore the trans er is a ected, and put in thepublic domain.

g. Te Board o Investigation should have ull and nal control on all personnelmatters o Crime Investigation Agenc . Tere ore, the Board should act asthe establishment committee or all senior unctionaries in investigationand prosecution. An appropriate committee ma be constituted at thedistrict level b the Board, or dealing with non-gazetted o cials.

5. (Para 5.3.13) Competent Prosecution and Guidance to Investigation

a. A s stem o District Attorne should be instituted. An o cer o the rank o District Judge should be appointed as the District Attorne . Te District Attorne shall be the head o Prosecution in a District (or group o Districts). Te District Attorne shall unction under the C hie Prosecutoro the State. Te District Attorne should also guide investigation o crimesin the district.

b. Te Chie Prosecutor or the State shall be appointed b the Board o Investigation or a period o three ears. Te Chie Prosecutor shall be aneminent criminal law er. Te Chie Prosecutor would supervise and guidethe District Attorne s.

6. (Para 5.4.7) Local Police and ra c Management

a. A task orce ma be constituted in the Ministr o Home A airs toidenti those laws whose implementation, including investigation o violations could be trans erred to the implementing departments. A similartask orce should look into the state laws in each state.

b. o start with, departments like the State E cise, Forest, ransport and Food with en orcement divisions ma take some o cers rom thepolice department o appropriate seniorit on deputation and ormsmall investigation out its b drawing departmental o icers romcorresponding ranks or the purpose o investigating cases o violationso appropriate laws; a ter a transition period, the concerned department should endeavour to acquire e pertise and build capacit to cope with theinvestigation work with its own departmental o cials.

c. A Municipal Police Service should be constituted in Metropolitancities having population o more than one million. he MunicipalPolice should be empowered to deal with the o ences prescribed underthe municipal laws.




258 259

d. Te unction o ra c control (along with tra c police) ma be trans erredto the local governments in all cities having a population o more than onemillion.

7. (Para 5.5.4) Te Metropolitan Police Authorities

a. All cities with population above one million should have MetropolitanPolice Authorities. Tis Authorit should have powers to plan and overseecommunit policing, improving police-citizen inter ace, suggesting wa sto improve qualit o policing, approve annual police plans and review the working o such plans.

b. Te Authorities should have nominees o the State Government, electedmunicipal councilors, and non partisan eminent persons to be appointedb the government as Members. An elected Member should be theChairperson. Tis Authorit should not inter ere in the ‘operational

unctioning’ o the police or in matters o trans ers and postings. In orderto ensure this, it should be stipulated that individual members will haveno e ecutive unctions nor can the inspect or call or records. Once thes stem stabilizes, this Authorit could be vested with more powers in a phased manner.

8. (Para 5.6.2) Reducing Burden o Police - Outsourcing Non Core Functions

a. Each State Government should immediatel set up a multi-disciplinar task orce to draw up a list o non-core police unctions that could beoutsourced to other agencies. Such unctions should be outsourced in a phased manner.

b. Necessar capacit building e ercise would have to be carried out or suchagencies and unctionaries in order to develop their skills in these areas.

9. (Para 5.7.10) Empowering the ‘Cutting Edge’ Functionaries

a. he e isting s stem o the constabular should be substituted withrecruitment o graduates at the level o Assistant Sub- Inspector o Police

(ASI).

b. Tis changeover could be achieved over a period o time b stopping recruitment o constables and instead inducting an appropriate numbero ASIs.

c. Recruitment o constables would, however, continue in the ArmedPolice.

d. Te orderl s stem should be abolished with immediate e ect.

e. Te procedure or recruitment o police unctionaries should be totall transparent and objective.

. A rmative action should be taken to motivate persons rom di erent sections o societ to join the police service. Recruitment campaigns shouldbe organised to acilitate this process.

10. (Para 5.8.4) Wel are Measures or the Police

a. Rational working hours should be strictl ollowed or all policepersonnel.

b. Wel are measures or police personnel in the orm o improved working conditions, better education acilities or their children, social securit measures during service, as well as post retirement should be taken up onpriorit .

c. Major housing construction programmes or police personnel should betaken up in a time bound manner in all states.

11. (Para 5.9.15) Independent Complaints Authorities

a. A District Police Complaints Authorit should be constituted to enquireinto allegations against the police within the district. Te District PoliceComplaints Authorit should have an eminent citizen as its Chairperson, with an eminent law er and a retired government servant as its Members.Te Chairperson and Members o the District Police Complaints Authorit should be appointed b the State Government in consultation with theChairperson o the State Human Rights Commission. A government o cer should be appointed as Secretar o the District Police Complaints Authorit .

b. Te District Police Complaints Authorit should have the powers to enquireinto misconduct or abuse o power against police o cers up to the rank o Deput Superintendent o Police. It should e ercise all the powers o a civil




260 261

court. Te Authorit should be empowered to investigate an case itsel orask an other agenc to investigate and submit a report. Te Disciplinar Authorities should normall accept the recommendations o the District Authorities.

c. A State Police Complaints Authorit should be constituted to look intocases o serious misconduct b the police. Te State level Authorit shouldalso look into complaints against o cers o the rank o Superintendent o Police and above. he State Police Complaints Authorit shouldhave a retired High Court Judge as Chairperson and nominees o theState Government, the State Human Rights Commission, the State Lok A ukta, and the State Women Commission. An eminent human rightsactivist should be also be the member o the Complaints Authorit . TeChairperson and the Member o the Authorit (eminent human rightsactivist) should be appointed b the State Government based on therecommendations o the State Human Rights Commission. (In case theState Human Rights Commission has not been constituted, then the StateLok A ukta ma be consulted). A government o cer should o ciate asthe secretar o the Authorit . Te Authorit should have the power toask an agenc to conduct an enquir or enquire itsel . Te Authorit should also be empowered to enquire into or review an case o policemisconduct, which is be ore an District Police Complaints Authorit , i it nds it necessar in public interest to do so.

d. It should be provided that i upon enquir it is ound that the complaint was rivolous or ve atious, then the Authorit should have the power toimpose a reasonable ne on the complainant.

e. Te State Police Complaints Authorit should also monitor the unctioning o the District Police Complaints Authorit .

. Te Complaint Authorities should be given the powers o a civil court. It should be mandated that all complaints should be disposed o within a month.

12. (Para 5.10.4) An Independent Inspectorate o Policea. In addition to ensuring e ective departmental inspections, an Independent

Inspectorate o Police ma be established under the supervision o the PolicePer ormance and Accountabilit Commission to carr out per ormance

audit o police stations and other police o ces through inspections andreview o departmental inspections. It should render pro essional advice

or improvement o standards in policing and also present an annual report to the Police Per ormance and Accountabilit Commission.

b. For all cases o deaths during ‘encounters’ the Independent Inspectorateo Police should commence an enquir within 24 hours o the incident.Te Inspectorate should submit its report to the PPAC and the SPAC

c. Te working o the Bureau o Police Research and Development needs tobe strengthened b adequate nancial and pro essional support, so that it could unction e ectivel as an organization or inter alia anal sis o data

rom all parts o the countr and establish standards regarding di erent aspects o the qualit o police service.

13. (Para 5.11.8) Improvement o Forensic Science In rastructure - Pro essionalisationo Investigation

a. Tere is need to set up separate National and State Forensic ScienceOrganisations as state-o -the-art scienti c organizations. At the state levelthese organisations should unction under the supervision o the Board o Investigation.

b. here is need to e pand the orensic acilities and upgrade themtechnologicall . Ever district or a group o districts having 30 to 40 lakhspopulation should have a orensic laborator . Tis should be achieved overa period o ve ears. Government o India should earmark unds or thispurpose or assisting the states under the police modernisation scheme. Allthe testing laboratories should be accredited to a National AccreditationBod or maintaining qualit standards.

c. Te s llabus o MSc Forensic Science should be continuousl upgraded inline with international trends.

d. Necessar amendments should be e ected in the CrPC and other lawsto raise the level and scope o orensic science evidence and recognize itsstrength or criminal justice deliver .

14. (Para 5.12.6) Strengthening Intelligence Gathering

a. Te intelligence gathering machiner in the eld needs to bestrengthened and at the same time, made more accountable. Human


i lli h ld b bi d i h i i d i d di h h ld k d h li b d



262 263

intelligence should be combined with in ormation derived rom diversesources with the ocus on increased use o technolog . Adequate powersshould be delegated to intelligence agencies to procure/use latest technolog .

b. Intelligence agencies should develop multi-disciplinar capabilit b utilising services o e perts in various disciplines or intelligencegathering and processing. Su cient powers should be delegated to themto obtain such e pertise.

c. Intelligence should be such that the administration is able to use it toact in time b resorting to confict management or b taking preventivemeasures.

d. Instead o monitoring public places b posting a large number o policemenit would be economical as well more e ective i devices like video cameras/CC Vs are installed in such places.

e. Te beat police s stem should be revived and strengthened.

. In ormants giving in ormation should be protected to keep their identit secret so that the do not ear an threat to li e or revenge. However, the could be given a masked identit b which the could claim their reward at an appropriate time and also continue to act as in ormants as the situationdevelops.

g. In case o major breakdown o public order, the State Police Complaints Authorit should take appropriate action to responsibilit on the policeo cers or lapses in acting upon intelligence or on the intelligence o cersin case there has been a ailure on their part.

15. (Para 5.13.5) raining o the Police

a. Deputation to training institutions must be made more attractive in termso acilities and allowances so that the best talent is drawn as instructors.Te Chie o raining in the state should be appointed on the recommendation

o the Police Per ormance and Accountabilit Commission.b. Te instructors should be pro essional trainers and a balanced mi o

policemen and persons rom other walks o li e should be adopted.

c. Each state should earmark a ed percentage o the police budget ortraining purposes.

d. For each level o unctionar , a calendar o training or the entire careershould be laid down.

e. Tere should be common training programmes or police, public prosecutorsand magistrates. Tere should also be common training programmes orpolice and e ecutive magistrates.

. raining should ocus on bringing in attitudinal change in police so that the become more responsive and sensitive to citizens’ needs.

g. All training programmes must conclude with an assessment o the trainees,pre erabl b an independent agenc .

h. Modern methods o training such as case stud method should be used.

i. Impact o training on the trainees should be evaluated b independent eldstudies and based on the ndings the training should be redesigned.

j. All training programmes should include a module on gender and human

rights. raining programmes should sensitise the police towards the weakersections.

16. (Para 5.16.6) Gender Issues in Policing

a. Te representation o women in police at all levels should be increasedthrough a rmative action so that the constitute about 33% o thepolice.

b. Police at all levels as well as other unctionaries o the criminal justice s stemneed to be sensitised on gender issues through well structured training programmes.

c. Citizens groups and NGOs should be encouraged to increase awarenessabout gender issues in societ and help bring to light violence against women and also assist the police in the investigation o crimes against women.


17 (P 5 17 9) C i i V l bl S i di i b h U i d h d h



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17. (Para 5.17.9) Crimes against Vulnerable Sections

a. Te administration and police should be sensitised towards the specialproblems o the Scheduled Castes and Scheduled ribes. Appropriatetraining programmes could help in the sensitising process.

b. Te administration and police should pla a more pro-active role indetection and investigation o crimes against the weaker sections.

c. En orcement agencies should be instructed in unambiguous terms that en orcement o the rights o the weaker sections should not be downpla ed

or ear o urther disturbances or retribution and adequate preparationshould be made to ace an such eventualit .

d. Te administration should also ocus on rehabilitation o the victims andprovide all required support including counselling b e perts.

e. As ar as possible the deplo ment o police personnel in police stations with signi cant proportion o religious and linguistic minorities shouldbe in proportion to the population o such communities within the local jurisdiction o such police station. Te same principle should be ollowedin cases o localities having substantial proportion o Scheduled Castesand Scheduled ribes population.

. Government must take concrete steps to increase awareness in theadministration and among the police in particular, regarding crimes against children and take steps not onl to tackle such crimes, but also to deal withthe ensuing trauma.

18. (Para 5.18.9) National Securit Commission

a. Tere is no need or a National Securit Commission with a limited unctiono recommending panels or appointment to Chie s o the Armed Forceso the Union. Tere should be a separate mechanism or recommending the names or appointment as Chie o each one o these orces, with the

nal authorit vesting in the Union Government.

19. (Para 5.19.6) Union-State and Inter-State Cooperation and Coordination

a. Te Ministr o Home A airs should proactivel and in consultation with the states, evolve ormal institutions and protocols or e ective

coordination between the Union and the states and among the states.Tese protocols should cover issues like in ormation/intelligence sharing, joint investigation, joint operations, inter-state operations b a state policein another state, regional cooperation mechanisms and the sa eguardsrequired.

20. (Para 6.1.2.4) Measures to be aken during Peace ime

a. Te administration should be responsive, transparent, vigilant and air indealing with all sections o societ . Initiatives such as peace committeesshould be utilised e ectivel to ease tensions and promote harmon .

b. Te internal securit plan/riot control scheme should be updated periodicall in consultation with all stakeholders and in the light o previous episodes.Te role o all major unctionaries should be clearl e plained to them.

c. A micro anal sis should be carried out in each district to identi sensitivespots and this should be regularl reviewed and updated.

d. Te intelligence machiner should not slacken during normal times andcredible intelligence should be gathered rom multiple sources.

e. Regulator laws such as the Arms Act, 1959, E plosives Act, 1884 andMunicipal Laws related to construction o structures should be en orcedrigorousl .

. Public agencies should ollow a zero tolerance strateg in dealing with violations o laws.

21. (Para 6.1.3.1.3) Securit Proceedings

a. Te use o preventive measures in a planned and e ective manner needsto be emphasized. raining and operational manuals or both E ecutiveMagistrates and police need to be revised on these lines.

b. Regular supervision and review o these unctionaries b the DM and theSP respectivel should be done to ocus attention on e ective use o theseprovisions. For this purpose, a joint review on a periodic basis b the DMand SP should be done.


22 (P 6 1 3 2 7) Add i g P t Di t t P t Di ti P bli O g i ti d d g ilt i tig ti g i l h ld b



266 267

22. (Para 6.1.3.2.7) Addressing Propert Disputes to Prevent Disruption o PublicOrder

a. An E planation ma be inserted below Section 145 o the Code o CriminalProcedure clari ing that when rom the evidence available with theE ecutive Magistrate it is clear that there is an attempt to dispossess a personor where a person has been illegall dispossessed o his propert withinsi t da s o ling the complaint and that such acts cause a reasonableapprehension o a breach o the peace, such magistrate can pass an ordercontemplated in sub- section (6) o the a oresaid Section notwithstanding pendenc o a civil case between the parties involving the same propert .

b. A time rame o si months ma be stipulated or concluding theproceedings.

c. Speci c but indicative guidelines ma be issued b the Ministr o UrbanDevelopment to the State Governments to la down the minimum standards

or maintenance o land records in urban areas including municipal wardmaps so as to minimize possibilit o disputes about possession andboundar o immoveable propert .

d. Detailed guidelines alread e ist in almost all states to periodicall updateland records in rural areas. Strict compliance o such guidelines needs tobe ensured as out o date land records contribute to disputes and resultant breaches o peace.

23. (Para 6.1.4.5) Regulating Processions, Demonstrations and Gatherings

a. Based on the e perience with major riots and the recommendations o various Commissions o Inquir and pronouncements o the SupremeCourt and the High Courts, resh and comprehensive guidelines ma bedrawn up or regulation o processions, protest marches and morchas.

b. Te guidelines should include preparator steps (through intelligencesources), serious consultation and attempts to arrive at agreement with thegroups/ communities involved, regarding route, timing and other aspectso procession. Te should also cover prohibition o provocative slogansor acts as well as carr ing o lethal weapons. It should be speci call statedin the guidelines that all processions or demonstrations should be dealt with the same degree o airness and rmness.

c. Organisations and persons ound guilt o instigating violence should beliable to pa e emplar damages. Te damages should be commensurate with the loss caused b such violence. he law should provide ordistribution o the proceeds o damages to the victims o such violence.

24. (Para 6.1.5.3) Imposition o Prohibitor Orders

a. Prohibitor orders once imposed, should be en orced e ectivel . Videograph should be used in sensitive areas.

25. (Para 6.1.6.6) Measures to be aken Once a Riot has Started

a. I violence erupts, then the rst priorit should be to quickl suppress the violence. In cases o communal violence, the situation should be brought undercontrol b e ective use o orce.

b. Prohibitor orders must be en orced rigorousl .

c. I the situation so warrants, the orces o the Union and the Arm should be requisitioned and used without an reluctance or dela .

d. Te Commissioner o Police or the District Magistrate and the Superintendent

o Police should be given a ree hand to deal with the situation in accordance with law.

e. Te media should be brie ed with correct acts and gures so that there is noscope or rumour mongering.

. Te police needs to be equipped with state-o -the-art crowd dispersalequipments.

g. Te District Magistrate should ensure that essential supplies are maintainedand rel ie is provided, especiall in vulnerable areas and particularl during prolonged spells o ‘cur ew’.

26. (Para 6.1.7.9) Measures to be aken Once Normalc has been Restored

a. No sanction o the Union Government or the State Government should benecessar or prosecution under Section 153(A). Section 196 Cr PC shouldbe amended accordingl .

b. Prosecution in cases related to rioting or communal o ences should be not sought to be withdrawn.


c Commissions o Inquir into an major riots/violence should give their v situations arising out o an e ternal aggression or internal



268 269

c. Commissions o Inquir into an major riots/violence should give theirreport within one ear.

d. Te recommendations made b a Commission o Inquir should normall be accepted b the Government and i the Government does not agree with an observation or recommendation contained in the report o theCommission, it should record its reasons and make them public.

e. All riots should be documented properl and anal sed so that lessons couldbe drawn rom such e periences.

. Tere is need or adequate ollow up to ensure proper rehabilitation o victims.

27. (Para 6.2.4) Accountabilit o Public Servants Charged with Maintaining Public Order

a. Te State Police Complaints Authorit should be empowered to identi and responsibilit in cases o glaring errors o omission and commissionb police and e ecutive magistrates in the discharge o their duties relating to the maintenance o public order.

28. (Para 6.3.15) Te E ecutive Magistrates and the District Magistrate

a. Te position o the District Magistrate vis-à-vis the police, and as a coordinator and acilitator in the district needs to be strengthened. TeDistrict Magistrate should be empowered to issue directions under the

ollowing circumstances:

i. promotion o land re orms and settlement o land disputes;

ii. e tensive disturbance o public peace and tranquilit in the district (Te decision o the DM as to what constitutes e tensive disturbanceo public peace should be nal);

iii. conduct o elections to an public bod ;

iv. handling o natural calamities and rehabilitation o the personsa ected thereb ;

v. situations arising out o an e ternal aggression or internaldisturbances;

vi. an similar matter, not within the purview o an one department and a ecting the general wel are o the public o the district;

vii. removal o an persistent public grievance (as to what constitutespersistent public grievance, the decision o the DM shall be

nal); and

viii. whenever police assistance is required to en orce/implement an law or programme o the government.

b. Tese directions shall be binding on all concerned. Directions in respect o item No. ii should normall be issued in consultation with theSuperintendent o Police.

29. (Para 6.4.2) Capabilit Building o E ecutive Magistrates

a. All o cers likel to be posted as E ecutive Magistrates should be speciall trained in the relevant laws and procedures and should be eligible orposting onl a ter quali ing in an e amination.

b. On the lines o a police manual, each state should also evolve a Manual orE ecutive Magistrates.

30. (Para 6.5.7) Inter-Agenc Coordination

a. In a District, the District Magistrate should coordinate the role o allagencies at the time o crisis.

b. In major cities, with the Police Commissioner S stem, a coordinationcommittee should be set up under the Ma or, assisted b the Commissionero Police and the Municipal Commissioner. All major service providersshould be represented on this Coordination Committee.

31. (Para 6.6.4) Adoption o Zero olerance Strateg

a. All public agencies should adopt a zero tolerance strateg towards crime, inorder to create a climate o compliance with laws leading to maintenanceo public order.


b Tis strateg should be institutionalised in the various publicagencies b c Amendments to the CrPC should be made as suggested b the National



270 271

b. Tis strateg should be institutionalised in the various public agencies b creating appropriate statistical databases, backed up b modern technolog ,to monitor the level and trends o various t pes o o ences and link theseto a s stem o incentives and penalties or the o cials working in theseagencies. It should be combined with initiatives to involve the communit in crime prevention measures.

32. (Para 7.3.7) Facilitating Access to Justice - Local Courts

a. A s stem o local courts should be introduced as an integral part o the judiciar . Tere should be one such court or a population o 25,000 inrural areas (this norm could be modi ed or urban areas).

b. Te local courts should have powers to tr all criminal cases where theprescribed punishment is less than one ear. All such trials should bethrough s ummar proceedings.

c. Te judge o the local court should be appointed b the District andSessions Judge in consultation with his/her two senior-most colleagues.Retired judges or retired government o cers (with appropriate e perience)could be appointed.

d. Tese courts ma unction rom government premises and could also bein the orm o mobile courts.

e. Tese local courts ma be constituted b a law passed b the Parliament to ensure uni ormit .

33. (Para 7.5.1.11) Citizen Friendl Registration o Crimes

a. Registration o FIRs should be made totall citizen riendl . echnolog should be used to improve the accessibilit o police stations to the public.Establishing call centers and public kiosks are possible options in thisregard.

b. Police stations should be equipped with CC V cameras in order to prevent malpractice, ensure transparenc and make the police more citizen- riendl .Tis could be implemented in all police stations within a time rame o

ve ears.

c. Amendments to the CrPC should be made as suggested b the NationalPolice Commission.

d. Te per ormance o police stations should be assessed on the basis o thecases success ull detected and prosecuted and not on the number o casesregistered. Tis is necessar to eliminate the widel prevalent malpracticeo ‘burking’ o cases.

34. (Para 7.5.2.4) Inquests

a. All State Governments should issue Rules prescribing in detail the procedureor inquests under Section 174 CrPC.

35. (Para 7.5.3.13) Statements Made be ore a Police O cer

a. Sections 161 and 162 o CrPC should be amended to include theollowing:

i. Te statement o witnesses should be either in narrative or in questionand answer orm and should be signed b the witness.

ii. A cop o the statement should be handed over to the witness

immediatel under acknowledgement.

iii. Te statement could be used or both corroboration and contradictionin a Court o Law.

b. Te statements o all important witnesses should be either audio or videorecorded.

36. (Para 7.5.4.10) Con essions be ore Police

a. Con essions made be ore the police should be admissible. All suchstatements should be video-recorded and the tapes produced be ore thecourt. Necessar amendments should be made in the Indian Evidence Act.

b. Te witness/accused should be warned on video tape that an statement he makes is liable to be used against him in a court o law, and he isentitled to the presence o his law er or a amil member while making


such a statement I the person opts or this the presence o the law er/ 41 (Para 7 7 5 6) Victim Protection



272 273

such a statement. I the person opts or this, the presence o the law er/amil member should be secured be ore proceeding with recording the

statement.

c. Te accused should be produced be ore a magistrate immediatel therea ter, who shall con rm b e amining the accused whether the con ession wasobtained voluntaril or under duress.

d. Te above-mentioned recommendations should be implemented onl i the re orms mentioned in Chapter 5 are accepted.

37. (Para 7.7.1.10) Te Judge’s Obligation to Ascertain the ruth

a. It is necessar to amend Section 311 CrPC and impose a dut on ever court to suo motu cause production o evidence or the purpose o discovering the truth, which should be the ultimate test o the criminal justice s stem.Suitable amendments to the Indian Evidence Act, 1872 ma also be madeto acilitate this.

38. (Para 7.7.2.14) Right to Silence

a. Regarding grave o ences like terrorism and organised crimes, in the caseo re usal b the accused to answer an question put to him, the court ma draw an in erence rom such behaviour. Tis ma be speci call providedin the law.

39. (Para 7.7.3.6) Perjur

a. Te penalties provided under Section 344 CrPC or those ound guilt o perjur a ter a summar trial should be enhanced to a minimum o one ear o imprisonment.

b. It should be made incumbent upon the Courts to ensure that e isting perjur laws providing or summar trial procedure are un ailingl ande ectivel applied b the trial courts, without awaiting the end o the maintrial.

40. (Para 7.7.4.6) Witness Protection

a. A statutor programmme or guaranteeing anon mit o witnesses and or witness protection in speci ed t pes o cases, based on the best internationalmodels should be adopted earl .

41. (Para 7.7.5.6) Victim Protection

a. A new law or protecting the rights o the victims o the crimes ma beenacted. Te law should include the ollowing salient eatures:

i. Victims should be treated with dignit b all concerned in the criminal justice s stem.

ii. It shall be the dut o the police and the prosecution to keep the victim updated about the progress o the case.

iii. I the victim wants to oppose the bail application o an accused he/sheshall be given an opportunit to be heard. Similarl , or release o prisoners on parole, a mechanism should be developed to considerthe views o the victims.

iv. A victim compensation und should be created b State Governmentsor providing compensation to the victims o crime.

42. (Para 7.7.6.6) Committal Proceedings

a. Committal proceedings should be reintroduced where the magistrate should

have powers to record the evidence o prosecution witnesses. Suitableamendments ma be carried out in Chapter xVI o the Code o CriminalProcedure.

43. (Para 7.8.5) Classi cation o O ences

a. A comprehensive reclassi cation o o ences ma be done urgentl to reducethe burden o work or both the Courts and the Police. A mechanism orensuring regular and periodic review o o ences should also be put in placeto make such reclassi cation an ongoing and continuing e ercise.

b. Te objective o this e ercise should be to ensure that crimes o a pett nature including those which require correctional rather than penal actionshould be taken out o the jurisdiction o the police and criminal courts sothat the are able to attend to more serious crimes. Such o ences should,in uture be handled b the local courts.


44 (Para 7 9 7) Sentencing Process 47 (Para 8 3 14) Federal Crimes



274 275

44. (Para 7.9.7) Sentencing Process

a. Te Law Commission ma la down ‘Guidelines’ on sentencing or the rialCourts in India so that sentencing across the countr or similar o encesbecomes broadl uni orm.

b. Simultaneousl , the training or trial court judges should be strengthenedto bring about greater uni ormit in sentencing.

45. (Para 7.10.14) Prison Re orms

a. Te Union and State Governments should work out, und and implement at the earliest, modernisation and re orms o the Prison S stem asrecommended b the All India Committee on Jail Re orms (1980-83).

b. Te attendant legislative measures should also be e pedited.

c. Rules regarding Parole and Remission need to be reviewed. An Advisor Board with a retired judge o the High Court, the DGP and the InspectorGeneral o Prisons should be set up to make recommendations on parole.Te recommendation made b the Board should normall be accepted.In case o di erence, State Government should obtain the advice o theBoard again, stating its own views in writing. A similar or the same Boardma deal with cases o remissions.

46. (Para 8.2.15) Obligations o the Union and States

a. A law should be enacted to empower the Union Government to deplo itsForces and to even direct such Forces in case o major public order problems which ma lead to the breakdown o the constitutional machiner in a state. However, such deplo ment should take place onl a ter the stateconcerned ails to act on a ‘direction’ issued b the Union under Article 256o the Constitution. All such deplo ments should be onl or a temporar period not e ceeding three months, which could be e tended b anotherthree months a ter authorisation b Parliament.

b. Te law should spell out the hierarch o the civil administration which would supervise the Forces under such circumstances.

47. (Para 8.3.14) Federal Crimes

a. Tere is need to re-e amine certain o ences which have inter-state ornational rami cation and include them in a new law. Te law should alsoprescribe the procedure or investigation and trials o such o ences. Te

ollowing o ences ma be included in this categor :

i. Organised Crime (e amined in paragraph 8.4)ii. errorismiii. Acts threatening National securit iv. ra cking in arms and human beingsv. Seditionvi. Major crimes with inter-state rami cationsvii. Assassination o (including attempts on) major public guresviii. Serious economic o ences.

b. A new law should be enacted to govern the working o the CBI. Tis law should also stipulate its jurisdiction including the power to investigate thenew categor o crimes.

c. Te empowered committee recommended in the Commission’s Report on

‘Ethics in Governance’ (para 3.7.19) would decide on cases to be takenover b the CBI.

48. (Para 8.4.17 ) Organised Crime

a. Speci c provisions to de ne organised crimes should be included in thenew law governing ‘Federal Crimes’. Te de nition o organised crime inthis law should be on the lines o the Maharashtra Control o OrganisedCrime Act, 1999.

49. (Para 8.5.17) Armed Forces (Special Powers) Act, 1958

a. Te Armed Forces (Special Powers) Act, 1958 should be repealed. oprovide or an enabling legislation or deplo ment o Armed Forces o theUnion in the North-Eastern states o the countr , the Unlaw ul Activities

(Prevention) Act, 1967 should be amended b inserting a new Chapter VI A as recommended b the Committee to Review the Armed Forces(Special Powers) Act, 1958. Te new Chapter VI A would appl onl tothe North-Eastern states.

P i Order

Annexure-I50. (Para 9.1.5) Te Role o Civil Societ



276 277

Annexure I

Details o Consultations carried out b the AdministrativeRe orms Commission

In order to as ertain the views rom di erent stakeho ders on matters on erning with‘P i Order’, the commission organised a n m er o workshops and ons tations.Te detai s o these workshops and ons tations a ong with the ist o parti ipants ands mmary o main re ommendations emerging o t o the dis ssions are given e ow. Tecommission wo d ike to p a e on re ord its gratit de to the organisations who assistedin ho ding these workshops and ons tations and the parti ipants in ding mem ers o NGOs and h man rights gro ps, serving and retired o ers o Government o India and theState Government o ers whose views and s ggestions have een o immense he p to thecommission in arti ating its re ommendations. Te commission is high y appre iativeo the reports rnished y these organisations, viz., centre or Po i y Resear h, New De hi;S.V.P. Nationa Po i e A a demy, Hydera ad and commonwea th H man Rights Initiative,New De hi whi h ontained va a e inp ts. Te commission has ti ized these inp tsin preparation o this report.

Sl.No. Workshop/Consultation Particulars Re erence

1 Workshop on P i Order list o Parti ipants Annex re-I(1)organised joint y with centre

or Po i y Resear h, New De hi Re ommendations Annex re-I(2)on 2nd-3rd Fe r ary, 2006 made at the

Workshop

2 Nationa Workshop on P i Spee h o chairman, Annex re-I(3)Order organised joint y with ARcS.V.P. Nationa Po i e A ademy, list o Parti ipant s Annex re- I(4)Hydera ad on 11th-12th Re ommendations Annex re-I(5)Mar h, 2006 made at the

Workshop

3 Ro ndta e on Po i ing and list o Parti ipants Annex re-I(6)

P i Order organised joint y with commonwea th H man Re ommendations Annex re-I(7)Rights Initiative, New De hi on made at the10th J ne, 2006 Ro ndta e

50. (Para 9.1.5) Te Role o Civil Societ

a. Citizens should be involved in evaluating the qualit o service at policestations and other police o ces.

b. Government should incentivise citizens’ initiatives.

c. Formal mechanisms should be set up at the cutting edge level to involvecitizens/ citizen’s groups in various as pects o public order management.

51. (Para 9.2.7) Te Role o the Media in Public Order

a. Te Administration must make acts available to the media at the earliest about an major development, particularl activities a ecting publicorder.

b. In order to have better appreciation o each other’s view points there shouldbe increased interaction between the Administration and the media. Tiscould be inter alia in the orm o joint workshops and trainings.

c. Te Administration should designate points o contact at appropriate levels(a spokesperson) or the media which could be accessed during whenever

required.

d. O cers should be imparted training or interaction with the media.

e. A cell ma be constituted at the district level which ma anal se media reports about matters o public importance.

P i Order

Annexure-I Contd. Annexure-I(1)



Te commission wo d a so ike to express its gratit de to a n m er o eminent persons who genero s y spared time to dis ss matters re ated to P i Order with the commission.Tese in de Shri Madh kar G pta, union Home Se retary, Shri P.K.H. Tarakan,Se reatary (R), Shri E.S.l. Narsiman, Dire tor, Inte igen e b rea , Shri Vijay Shankar,Dire tor, cbI, Shri P.c. Ha dhar, Dire tor Inte igen e b rea , Dr. N. Seshagiri, ormerDire tor Genera , NIc; Shri R.b. Sreek mar, ormer Dire tor Genera o Po i e, G jarat;Shri M.A. basith, DG & IGP, Andhra Pradesh; Shri R. Srik mar, DGP and cMD KarnatakaState Po i e Ho sing corpotation; Shri K.K. Pa , commissioner o Po i e, De hi; Shri A.N.Roy, commissioner o Po i e, M m ai; Shri S. . Ramesh, ADGP, Karnataka; Shri Sanjoy Hazarika, eminent jo rna ist and Ms. eesta Seta vad, eminent awyer and a tivist. Tecommission wo d a so ike to p a e on re ord its gratit de to Shri K. As ng a Sangtam,

ormer Mem er o Par iament or preparing a report on the pro ems asso iated with aw andorder in North East India and Shri Shastri Rama handaran, eminent jo rna ist or preparinga Report on ro e o media in terrorism. Tese dis ssions and reports have een ti ized y the commission in this Report. Te commission a so visited severa States and had sedis ssions. Te commission has ene ted immense y rom these dis ssions.

278 279

Workshop on Public Order2-3 Februar , 2006

Centre or Polic Research, New Delhi

List o Panelists/Participants

Panelists

1. Mr. b.G. Verghese, Honorary Visiting Pro essor, cPR 2. Mr. Ved Pratap Vaidik, Jo rna ist3. Mr. uday Sahai, IPS4. Mr. N.N. Vohra, Representative o Govt.o India or J&K 5. Mr. .V. Somanathan, IAS, chennai6. Mr. A za Aman ah, Joint Se retary (Fi ms), Ministry o In ormation &

broad asting, GOI7. Mr. S resh Khopade, commissioner o Po i e, Rai ways, M m ai8. Dr. Arna K mar Hazra, cons tant, Asian Deve opment bank 9. Dr. usha Ramanathan, Advo ate

Participants1. Mr. K.c. Sivaramakrishnan, chairman, Exe tive committee, cPR 2. Dr. Pratap bhan Mehta, President & chie Exe tive, cPR 3. Dr. Ajit Mozoomdar, Honorary Resear h Pro essor, cPR 4. Mr. Ramaswamy R. Iyer, Honorary Resear h Pro essor, cPR 5. Pro . Partha M khopadhyay, Senior Resear h Fe ow, cPR 6. Dr. Shy ashri Shankar, Honorary Resear h Pro essor, cPR 7. Dr. b.N. Saxena, Honorary Resear h Pro essor, cPR 8. Mr. . Anantha hari, Former Dire tor Genera , bSF9. Mr. G.P. Joshi, Senior Programme coordinator, commonwea th H man Rights

Initiative10. Mr. K.S. Dhi on, IPS (Retd.), bhopa11. Mr. R.c. Arora, Dire tor (R&D), b rea o Po i e Resear h & Deve opment12. Mr. Vivek K mar iwary 13. Mr. Ar ind Prasad14. Mr. Satish Sahney, IPS (Retd.), chie Exe tive, Nehr centre, M m ai15. Mr. Ajay S. Mehta, Dire tor, Nationa Fo ndation or India

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P i Order

Annexure-I(1) Contd. Annexure-I(2)



16. Mr. Rakesh Jar har, Dire tor ( raining), b rea o Po i e Resear h &Deve opment

17. Mr. Amiya K. Samanta, IPS (Retd.), Ko kata18. Mr. Anjaneya Reddy, IPS (Retd.), Hydera ad19. Mr. Nasir Kama , Dep ty Dire tor ( raining), b rea o Po i e Resear h &

Deve opment20. Mr. R.K. Raghavan, Former Dire tor, cbI21. Mr. Ved Marwah, Former commissioner o Po i e, De hi22. Mr. Kama K mar, Dire tor, Sardar Va a hai Pate Nationa Po i e A ademy,

Hydera ad23. Shri Sankar Sen, IPS (Retd.)24. Mr. Y.S. Rao, cons tant, ARc25. Mr. R. Viswanathan, cons tant, ARc

Administrative Re orms Commission

1. Mr. M. Veerappa Moi y, chairman2. Mr. V. Rama handran, Mem er3. Dr. A.P. M kherjee, Mem er4. Dr. A.H. Ka ro, Mem er5. Dr. Jayaprakash Narayan, Mem er6. Ms. Vineeta Rai, Mem er Se retary

280 281

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Recommendations Made at the Workshop on Public OrderFebruar 2nd-3rd, 2006

Centre or Polic Research, New Delhi

A ommon theme was that “p i order” had to e nderstood in a ertain perspe tive. An appre iation o the di eren e etween “order” and “esta ished order” was req ired.Te en or ement me hanisms and a so p i instit tions seem more interested inperpet ating the esta ished order o things, as it were and on entrate their a tivities inmaintaining this stat s q o. It is important to re ognize that in many instan es a sit ation whi h is assi ed as a p i order pro em, is in a t a ity, an expression o pop ardis ontent or a means o drawing attention to parti ar grievan es and are, perhaps,extra- onstit tiona pro esses o so ia eman ipation and hange. In a demo rati iviso iety, there m st there ore e spa e or vario s orms o parti ipation and dissent, whi hsho d e non-vio ent and pre era y non-o str tive. Te o owing s ggestions weremade d ring the workshop:

I. Role o Media

• Te administration m st make as m h veri ed in ormation avai a e as soon

as possi e to ens re that a rate in ormation rea hes the peop e as soon andas e e tive y as possi e. In ight o this, the administration m st deve op adegree o ompeten e to dea with iss es ro ght to ore y media attention.

• It has e ome imperative to have p i o ia s who are a e to pro essiona y intera t with the media. Tis o d e in orporated in vario s training pro essesthat vario s o ia s ndergo. F rthermore, it o d e ene ia to inso r emedia pro essiona s to assist the administration.

• Tere needs to e s ient de egated a thority to o a o ia s to intera t withthe media. In addition, there needs to e se re and q i k ow o in ormationthat a ows senior o ia s, who not at the site, to intera t with the media withrea -time in ormation.

• comm ni ation with the verna ar media is a very important part o administrative intera tion with the media and the administration needs to

i d p the apa i ity to do this is a proa tive and reg ar manner.

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P i Order




• In a sit ation o ompetitive media, there is a vita need or a vi rant andnon-partisan P i broad asting System (PbS). Te PbS sho d n tiona tonomo s y, or whi h independen e to generate reven e is essentia , yetreven e generation sho d not e its raison d’etre.

• Government annot p ay a major reg atory ro e in the media and it isndamenta y ndesira e or it to extend its j risdi tion in this regard. Te

media sho d have its own me hanisms o se -reg ation. Te Press co n idoes need to e more pro-a tive in reg ating in ra tions o its ode. In addition,the Press co n i has no j risdi tion over e e troni media and a s ita eme hanism needs to e devised.

II. Role o the Civil Administration

• Meas res s h as req iring onds and s reties are rrent y nder- ti ised,tho gh they are ow-key, e e tive, and time-tested. used inte igent y, s hmeas res an impose persona nan ia osts on tro emakers and ring eadersand dis o rage them rom disr pting p i order. crimina Pro ed re codeSe tion 107 o d perhaps e amended to a ow the o taining o onds rom

organisers o pro essions.• Te exe tive magistra y’s know edge o aws re ating to p i order and its

a i ity to write en or ea e ega orders an e improved, sin e many ordersare set aside on j di ia review. An Exe tive Magistrate’s Man a ontainingmode orders or vario s sit ations that over j di ia req irements, exp ainpro ed ra steps, et . o d e deve oped and trans ated into Hindi and otherstate ang ages.

• It is ne essary to ens re adeq ate q antities o non- etha te hno ogies non-etha rowd-dispersa te hno ogies, s h as water annons and r er ets

are avai a e or a e to e made avai a e, pre era y req iring not more thanone ho r’s noti e, in a sensitive areas. centra nding or s h meas res

an e onsidered, as we the possi i ity o o tso r ing the maintenan e andpkeep o eq ipment to private ontra tors, in order to ens re the eq ipment’s

e e tiveness i and when needed.

• In gathering eviden e, video te hno ogy o ght to e ti ised in potentia tro espots. Granting ea h station their own video eq ipment, however, might not

e the est so tion e a se o maintenan e pro ems, instead, o tso r ing, with adeq ate de egation o nan ia powers, o ght to e onsidered.

• Te centre sing extant powers nder the A India Servi es A t and R es o dde are that o ers who re eive stri t res rom the Nationa H man Rightscommission or commissions o Inq iry or ai re to maintain p i order wi not e empane ed or centra posts. Te centre o d (a ter ons tation with the states) amend R e 7 o the A India Servi es (Dis ip ine & Appea )R es in order to empower itse to eve harges against o ers serving nderthe states in spe i ed rea hes o p i order.

III. Role o NGOs and Civil Societ

• It was s ggested that the new Po i e A t in orporate a mandate to seek the“wi ing ivi ooperation o the peop e” in sit ations o p i disorder.Te Moha a committee mode o bhiwandi o d e exp ored a possi einstit tiona mode or peop e’s parti ipation with appropriate re nements or

other parts o the o ntry.IV. Role o Judiciar

• o in rease the strength o the o rts and red e the administrative rdeno j dges, the initiation o the re r itment pro ess o d e separated romthe se e tion pro ess, whi h wo d remain within the j di iary as now. A me hanism or j dge rostering and work or e p anning wo d make know edgea o t t re va an ies avai a e in advan e and an ena e the pro ess o re r itment to egin a tomati a y.

• basi in rastr t re s pport needs to e provided or o rt s pport servi es ando rts need to e a ssisted to deve op separate we -eq ipped and trained sta or

h man reso r e, a o nts, in ormation te hno ogy systems and in rastr t remanagement.

• ba k ogged ases sho d e targeted spe i a y thro gh ase managementte hniq es ike the remova o ina tive ases y s mmary administrativemeans s h as dismissa r es. case ow management meas res s h as se o

282 283

( ) ( )

P i Order




spe ia ised tra ks with time standards appropriate or those ases and a tomatimonitoring and generation o appropriate noti es to ens re that ases that areo tside time standards are identi ed and a ted pon is a so an important too

or red ing ase a k ogs.

• A y deve oped I ena ed case Management System (cMS) wi e a eto red e ase de ays thro gh more a rate and time y reporting on asestat s. An a tomated cMS an improve pon system o man a es y way o o ering rea -time pdate into the stat s o ases.

• New pro esses an e introd ed to per orm key tasks in a more ost-e e tivemanner, ike ear y ase on eren es in omp ex ases.

• use o stri t adjo rnment po i y that en o rages itigants and o nse to eprepared on the date set or them to appear.

• Improving the e ien y with whi h spe i pro esses are pe ormed, ikese o video remand instead o transportation to o rt or hearing ai

app i ations.

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National Workshop on Public Order11th-12th March, 2006

S.V.P. National Police Academ , H derabad

Speech on Public Order b the Chairman, ARC

India is a o ntry whose demo rati po ity is o nded on the edro k o r e o aw.Te asi ingredient o r e o aw is maintenan e o pea e and order. Tis was were ognised y the o nding Fathers o o r constit tion. Te Indian constit tion, whi ea ording a pre-eminent position or the ndamenta rights o itizens, re ognizes theimportan e o p i order, y providing or egis ation imposing reasona e restri tions inthe interest o p i order. under the constit tion o India, the union and the ederating

nits, that is, th e States have we -de ned a reas o responsi i ity. ‘P i Order’ and ‘Po i e’are essentia y the responsi i ities o State Governments. However, the centra Governmentassists them y providing centra Parami itary For es (cPMFs) as and wh en req ired.

Te Administrative Re orms commission is ooking at ‘P i Order’ with a view to s ggest

a ramework to strengthen administrative ma hinery to maintain p i order ond ive toso ia harmony and e onomi deve opment. ARc is ooking into a aspe ts o the s je tthere ore the o s is on st dying the a ses o p i disorder, how ear y symptoms o disorder sho d e dete ted and addressed we in time, what sho d e the ro e o vario sstakeho ders in maintenan e o p i order, how the en or ement ma hinery sho d emade more e e tive to dea with p i disorder. Te commission is examining the s je t

y o sing on its omponents name y a ses o on i ts and their reso tion, se ond y thero e o ivi administration, media, so iety, J di iary and NGOs in maintaining p i order,and third y the ro e o po i e and the need or re orms. A ording y, ea h one o these is

eing dis ssed in great ength in three separate workshops. In the rst workshop whi h wasorganised joint y with the centre or Po i y Resear h (cPR), the ro e o ivi administrationand other stakeho ders was dis ssed; in the se ond workshop, whi h was organised joint y with cPR and the Kannada university, Hampi, the di erent types o on i ts in the IndianSo iety were dis ssed; and in this third workshop, whi h is eing organised joint y with

the Nationa Po i e A ademy the Ro e o Po i e wo d e dis ssed.Te rst two workshops have a ready identi ed vario s iss es or the onsideration o the commission. Te gro ps ormed at these workshops have rysta ised a n m er o s ggestions on these. Te ARc wi de i erate on them e ore na ising its re ommendations.

P i Order

Annexure-I(3) Contd. Annexure-I(3) Contd.



In this third workshop, whi h is eing organised joint y with the Nationa Po i e A ademy,the o s wi e on examining the ro e o the State and organised vio en e, terrorism andextremism; ro e o the Government, Exe tive Magistra y and J di iary in P i Ordermanagement; ro e o the Po i e in P i Order management, and na y, the crimina J sti e System in ding the ega ramework, and the need or re orms in a these areas wi e exp ored and meas res wi e identi ed.

At this j n t re, I wo d ike to ari y the meaning o the word p i order. Any vio ationo law is a pro em o law and Order, t every s h vio ation is not a ase o dist r an eo p i order. Te dividing ine etween ‘P i Order’ and ‘law and Order’ is very thin. Te Apex co rt has exp ained the on ept o p i order. It is the potentia ity o an a t to dist r the even tempo o the i e o the omm nity whi h makes it “prej di iato the maintenan e o p i order”. I the ontravention in its e e t is on ned on y toa ew individ a s dire t y invo ved, as distin t rom a wide spe tr m o p i , it wo draise the pro em o “ aw and order” on y. It is the potentia ity o the a t to dist r theeven tempo o the i e o the omm nity whi h makes it “prej di ia to the maintenan eo p i order”.

Importance o Maintaining Public Order

India today is poised to emerge as a g o a e onomi power with a its high growth rate o e onomy and a -ro nd e onomi deve opment. For rea ising o r egitimate aspirations o e onomi deve opment, it is essentia that the pro ems o pea e and order are managede ient y in the o ntry. No deve opmenta a tivity is possi e in an environment o inse rity and disorder. Fai re to manage the m ti ario s pro ems arising o t o vio ent on i ts ased on re igio s, aste, ethni , regiona or any other disp tes, an eadto nsta e and haoti onditions. S h onditions not on y mi itate against rea isationo o r e onomi dream, t a so wo d jeopardise o r s rviva as a vi rant demo ra y. We have to ook at the pro em o p i order management and the ro e o aw en or ementin that regard, in this perspe tive. We sho d not orget that it is th e weaker se tions whi hs er the most in any p i disorder. Tere is a so a need or greater transparen y in the

aw en or ement agen ies.

Demands on the State

Te irth o the nation itse was marred y arge-s a e vio en e and one o the most tra matiinstan es o mass migration o pop ation in modern history. Sin e independen e, re o rseto vio ent methods o agitation y gro ps and omm nities have in essant y p t press reon the State ma hinery in management o p i order. S stantia parts o the o ntry

ontin e to s er rom attempts y vario s gro ps to tinker with p i order in one way oranother. Some p i order iss es a so get aggravated d e to exp oitation y hosti e externae ements with a design to disintegrate the nation. Te po i e in India have, time and again,

ome nder severe strain and have had to rea y stret h themse ves in sa eg arding the nity and integrity o the o ntry and y restoring pea e and order whenever it was disr pted.In the pro ess, they have a so s ered onsidera e oss o i e and im o their personne .In addition to the state po i e or es, the entra po i e or es have a so had to e dep oyedextensive y rom time to time. Te demands and press res o p i order managementhave, th s, ontri ted to arge-s a e expansion o state and entra po i e or es. TeIndian experien e o p i order management, sin e Independen e, is marked y someo tstanding s esses ike ta k ing the terrorist vio en e in P nja , Naxa ite vio en e in West benga and Kera a, arge-s a e omm na vio en e in di erent parts o the o ntry,mi itant movements o a wide variety, et . However, the po i e a so have ome nder severe

riti ism, o ten not nj sti a y, or a series o omissions and ommissions. A egations o ex essive se o or e, vio ation o h man rights et . have een q ite req ent. Pro a y, what has marred the po i e image most is a egations o partisan attit de and o sion withpo iti a parties in power whi e dea ing with many p i order sit ations.

Te o ntry has had to ta k e the pro ems o p i order management d ring the ast sixde ades nder a ega and administrative ramework whi h, it is vast y e t, is ar hai and nots ited to the emerging so io-po iti a and e onomi environment. Many o the a egationsagainst o r administrative and aw en or ement agen ies emanate rom their ai re toa hieve a de i ate a an e etween the req irements o p i order and the imperative need

or respe ting the itizens’ ndamenta rights and their s s epti i ities, in a demo ratipo ity. undo ted y, the task o p i order maintenan e is a so rendered more d i t

y the genera a k o re ognition that some restri tions on the rights o individ a s andsome in onvenien e to them are the pri e to e paid or the overa good o so iety.

F rther, the ivi administration, today, has to per orm its d ties nder a ar more restrainingenvironment. On the one hand, e a se o an in reasing eve o p i awareness, there aregreater demands o de ivery o servi e with e ien y as we as speed on o r a dministrative

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P i Order




ma hinery, in ding the aw en or ement agen ies. On the other hand, as a res t o thepro esses o demo ra y, there is ar greater s r tiny o their a tions or ina tions, on a o nto greater ons io sness o the itizens’ rights and h man rights among the peop e, esides j di ia a tivism, emergen e o a power media, ro e o NGOs, internationa press reset .

errorism and E tremism

errorism – oth o domesti and internationa h es - has emerged as a major threat tonot on y p i order t even to nationa se rity. Te se o terror as a too to rtheringseparatist interests has een the s o rge o the o ntry or the past q arter ent ry. Temarriage o re igio s and ethni ideo ogies with separa tist movements has omp i ated theiss es invo ved in o ntering terrorism and the ght a k itse has e ome a p i orderiss e in some instan es. F rther, nex s o terrorism with organised rime as eviden ed in thein amo s M m ai seria ast ases and riots o 1992-93, and the phenomenon des ri edas nar o-terrorism, on y aggravates its threat potentia . Te pro em o terrorism is no

onger on ned to some order states t even o r po iti a instit tions, e onomi assetsand s ienti esta ishments in the hinter and have e ome v nera e terrorist targets.

Many states in the o ntry - rom uP to ami nad and Maharashtra to West benga - aretoday a e ted y e t wing extremism in varying degrees. Te reation o Naxa ite gro psand a steady expansion o their ase a ross the o ntry in a systemati and oordinatedmanner, are matters o serio s imp i ations or p i order as we as nationa se rity.by exp oiting administrative inadeq a ies and so io-e onomi iss es domesti a y whi eengaging into strategi inkages with oth er mi itant and rimina gro ps a ross th e order,these gro ps are a e to spread the reign o terror and aw essness, in p rs it o their so-

a ed ideo ogi a o je tives. In s h ases, matters have gone eyond the genera iss esinvo ved in maintenan e o p i order and o r a i ity to address vario s omp ex iss esre ating to so io-e onomi deve opment o the peop e o the a e ted areas itse is eingtested. As a arge part o the a e ted area is tri a , their rights and sensitivities have a sogot to e addressed.

A Holistic Approach: the Need o the Hour

Despite o r e orts and more than ve de ades o p anning, regiona im a an es ande onomi disparities etween r ra and r an regions have grown, eading to disa e tion anddis o ation. Te expe tations and aspirations o the peop e have a so risen with g o a isation

and i era isation. Whi e the new e onomi po i ies have ontri ted to growth on the who e, on i ts stem rom disparity in patterns o deve opment, giving rise to perpet atensions. Many se tions o the so iety, s h as the a o rers and the poorer se tions, ivingin vi ages and arge y dependent on agri t re, have e t neg e ted. Po iti a y motivatedgro ps o ten exp oit their sense o grievan e – rea or per eived. Tis is a ready eading tomajor on i ts and o ten on rontations in di erent parts o the o ntry, adverse y a e tingp i order.

Whi e vio ent mani estations o a s h pro ems wi have to e inevita y ta k ed y the aw en or ement agen ies, given their so io-e onomi and po iti a roots, these pro ems, mosto the times demand a on erted response rom di erent wings o the ivi administration– oth reg atory & deve opmenta - or reso tion in the ong r n. Indeed, the responseo the po i e as the main aw en or ement agen y, is o r ia importan e not on y as a

wark against er ption or es a ation o vio en e t a so in reso tion o on i ts at thenas ent stage itse , to prevent minor dis ords rom t rning into p i order sit ations. Athe other on erned wings o the ivi administration too m st e ena ed and empoweredto p ay their ro e in onsonan e with an e ient po i e response. la k o a oordinatedapproa h among di erent agen ies, or instan e, o ten proves to e a ane and this a s orinstit tiona ized me hanisms o orma and in orma oordination etween a on ernedagen ies.

Tere is need or nationa onsens s among a the agen ies apart rom the po iti a parties.un ess there is arity and ommitment on these iss es, there wo d not e a onvergen eo nationa p rpose. What is a so req ired is a ho isti approa h towards managing s hiss es. For examp e, omm na riots m st e a epted as a ai re o governan e. We haveto n over the hemistry o these riots and s ggest ong-term meas res.

Re orms in the Criminal Justice S stem

In re ent times, there has een a serio s erosion o the peop e’s aith in the crimina J sti eSystem. One o the essentia req irements or preservation o pea e and order in a s stainedmanner is deterren e emanating rom ertainty and speed o p nishment or those whoind ge in rimes against so iety. O r crimina J sti e System is ripp ed rrent y with

so many short omings that anti-so ia and anti-nationa e ements are a e to ommittheir ne ario s rimina a tivity a most with a sense o imp nity. An i strative examp eis the snai ’s pa e o j di ia pro ess in the in amo s M m ai riot ases o 1992-93. Teinadeq a ies o o r crimina J sti e System, there ore, need to e omprehensive y examined.

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In this regard, the re ommendations made repeated y y vario s committees/commissions,s h as the Nationa Po i e commission, the Ma imath committee, the Padmana haiahcommittee et . have to e rgent y onsidered. More spe i a y, the re ommendationsregarding amendments in the crPc in respe t o re ording o the statement o witnesses,and in the Eviden e A t in respe t o re ording on essiona statements, need to e speedi y a ted pon.

Te ine e tiveness o o r crimina J sti e System in dea ing with rimina e ements, a soontri tes to a ienation o the p i rom the aw en or ement agen ies, making their

task o p i order management even more di t. In s h a s enario, it is imperative tosear h or the vario s egis ative and administrative meas res needed or etter managemento p i order.

Te committee on Re orms o crimina J sti e System (the Ma imath committee) hasgiven an in-depth onsideration to the phenomenon o growth o organised rime, terrorismet . and their invisi e o-re ationship with the avowed o je tive o the atter to destroy these ar and demo rati a ri o the o ntry, and has spe i a y re ommended ena tmento a edera aw to dea with ertain ategories o serio s o en es with inter-state andtransnationa rami ations. Tis needs immediate attention and proper appre iation.

Public Order and Re orms in the Police

lega y, the po i e are req ired to take ognizan e o a p i order iss e on y at a stage where a ogniza e o en e has taken p a e or where there is imminent threat to pea eand order. Tere is no o igation p a ed on the po i e to exp ore possi i ities o pea ereso tion o pro ems in the in ipient stage itse , with or witho t invo vement, as the

ase may e, o other stakeho ders in the so iety. A time has perhaps ome when, thro ghappropriate provisions o aw, it needs to e made o igatory on the po i e to adopt a moreproa tive approa h, invo ving a so other stakeho ders, where ne essary and easi e. b t athis wi have to e pre eded y a hange in p i per eption o the po i e.

b i ding o a peop e- riend y po i e or e wi req ire hanges in the re r itment pro ess,training programmes and servi e onditions.Te need or improving investigation ski s,spe ia isation and improving the mora e o the or e is a so onstant y eing voi ed invario s q arters.

It is the ro e o the po i e, as the prin ipa aw en or ement agen y, to preserve p iorder. A tho gh the magistra y and the j di iary too have a vita ro e in preserving p iorder, it is the po i e, whi h have to ear the r nt o vio ations o the aws and a so theens ing vio en e. b t in a arge n m er o sit ations, addressing the root a se is m h

eyond their p rview. Te ase o re ent demo itions in De hi is an examp e. Te maina se there has een the non-en or ement o the i ding reg ations y the o ia s who

were entr sted this task. Another examp e is the ‘u hasnag ar demo itions’. A arge n m ero p i disorders have administrative reasons as their root a se. O r response to p idisorder sho d ommen e at the very initia stage, and it is here that the ro e o entire iviadministration, in ding oth reg atory and deve opmenta agen ies, e omes important.Te ha enge here is what instit tiona me hanisms are req ired to ens re that a wingso the Government rea ise their responsi i ity in maintaining p i order.

Need or Greater Coordination

For e ient and e e tive ta k ing o the p i order iss es, the importan e o ooperationand oordination among vario s agen ies annot e overemphasised. Te apa i ities o di erent inte igen e agen ies, state po i e and their spe ia ised wings, other en or ementagen ies as we as other wings o ivi administration, have to e harmonio s y integrated

or a hieving the arger o je tive o pea e and order and se rity. Simi ar y, inter-stateooperation and entre-state ooperation a so have to e promoted in an instit tiona ised

manner.

Conclusion

Deve opment and se rity are tr y m t a y inter-re ated. We need there ore, to evo vea om ined strategy to dea sim taneo s y with the twin ha enges o deve opmentand se rity within the ramework o a demo rati po ity ommitted to respe t or a

ndamenta h man reedoms and a so ommitted to pho ding the r e o aw. Internaon i t management is the key to the s ess o parti ipative demo ra y, strengthening

nationa so idarity and ohesion a nd rming p the nation’s reso ve and apa i ity to meetany externa threats to its se rity and territoria integrity. Te de ien ies in this vitaarea need to e p gged thro gh j di ia and po i e re orms, etter itizen parti ipation

in governan e, transparen y and more e e tive and integrated approa h to p i ordermaintenan e.

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Vio ations o p i order, given their so io-e onomi , po iti a and administrative a sesdemand a on erted response rom di erent wings o the ivi administration. When thisis done at the nas ent stage itse , minor dis ords an e prevented rom t rning into majorp i disorders. Te ha enge ies in instit tiona ising a me hanism so that a wings o the ivi administration as we as other stakeho ders work in a oordinated ashion. I hopethat this workshop wo d e a e to ome p with s stantia re ommendations or a

ramework and a roadmap or maintaining p i order.

292 293

National Workshop on Public Order11th-12th March, 2006

S.V.P. National Police Academ , H derabad

List o Participants

Member o Parliament

1. Shri chandan Mitra, Editor, Te Pioneer

Judiciar /Advocates

2. Dr. J sti e V.S. Ma imath, Former chie J sti e o Karnataka & Kera a

High co rts

3. Shri D.V. S a Rao, Former chairman, bar co n i o India4. Shri K. .S. si, Senior Advo ate, S preme co rt o India

5. Dr A. lakshminath, Dean & Registrar, NAlSAR university o law

Journalists

6. Shri Manoj Mitta, Senior Editor, Te imes o India

7. Shri K. Srinivas Reddy, city Editor, Te Hind

IAS O cers (Retd)

8. Shri K. Padmana haiah, Representative o Government o India or Naga

Pea e a ks

9. Shri K.R. Ven gopa , IAS (Retd)

P i Order




10. Shri c.R. Kama anathan, IAS (Retd)

11. Shri K. Madhava Rao, Former chie Se retary, Government o M P,

IAS O cers (serving)

12. Shri A.K. Srivastava, Joint Se retary (cS), Ministry o Home A airs

13. Shri R.H. Khwaja, chairman & Managing Dire tor, Singarenni

co ieries co. ltd

14. Shri l.V. S rahmanyam, V c & M D, INcAP

IPS O cers (Retired)

15. Dr A.K. Samanta, IPS (Retd)

16. Shri Satish Sahney, chie Exe tive, Nehr centre

17. Shri S.V.M. ripathi, Mem er, u P H man Rights commission

18. Shri R. Pra hakar Rao, Former DGP, Andhra Pradesh

19. Shri P.S. Rama Mohana Rao, IPS (Retd)

20. Shri c. Anjaneya Reddy, IPS (Retd)

21. Dr. S. S ramanian, IPS (Retd)

22. Shri Prakash Singh, Former Dire tor Genera , bSF

23. Shri Mahmood in M hammed, Former Am assador to Sa di Ara ia

24. Shri M.M. Khajooria, Former DG o Po i e, J&K

25. Shri V.N. Singh, IPS (Retd)

26. Dr. D.R. Karthikeyan, Former Dire tor, cbI & DG, NHRc

27. Dr. P.S.V. Prasad, IPS (Retd)28. Dr. u.N.b. Rao, Se retary, Po i e A t Dra ting committee

IPS O cers (serving)

29. Smt Kan han cho dhry, Dire tor Genera o Po i e,

bhatta harya, uttaran ha

30. Shri Rakesh Jar har, Dire tor ( raining), bPR&D

31. Shri K. Koshy, Dire tor Genera o Po i e, Haryana

32. Smt Manjari Jar har, Inspe tor Genera (HQ), cISF

33. Shri S. . Ramesh, Add . DGP (Re tt & rg), Government o Karnataka

34. Shri S resh A aji Khopade, commissioner o Po i e (Rai ways), M m ai

35. Shri M. Mahender Reddy, commissioner o Po i e, Hydera ad

36. Shri c. ba as ramanian, IGP, cRPF So thern Se tor, Hydera ad

De ence

37. lt. Gen. M.A. Zaki, PVSM, AVSM, Vrc (Retd)

Academics

38. Dr. Asha bajpai, Asso iate Pro essor, ata Instit te o So ia S ien es

39. Pro . Aswini K. Ray, Pro essor (Retd)

40. Pro . F.D. Vaki , Pro essor o Po iti a S ien e

41. Pro . G.R .S. Rao, chairman, centre or P i Po i y and So ia

Deve opment

42. Pro . Ga ta m Ping e, Dean o Resear h & cons tan y, Administrative

Sta co ege o India

43. Pro . G. Hargopa , Pro essor

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Representatives o NGOs

44. Ms. Maja Dar wa a, chairperson, cHRI

45. Shri G.P. Joshi, Senior Programme coordinator, cHRI

Nominations rom State Governments

IAS O cers

1. Shri Vivek K mar Singh, Se retary, In ormation & P i Re ations,

Government o bihar

2. Dr. Amar Jit Singh, commissioner o Hea th and Se retary, Fami y We are,

Government o G jarat

3. Shri S.M. Vijayanand, Prin ipa Se retary, clSG& AR, Government o

Kera a4. Shri Neeraj Mand oi, co e tor & Distri t Magistrate, ujjain

5. Shri Pankaj Jain, commissioner & Se retary, I Department, Government

o Megha aya

6. Dr. Ashok Da wai, Reven e Divisiona commissioner, Sam a p r

7. Shri R. Venkat Ratnam, Spe ia Se retary, S hoo Ed ation, Government

o P nja

8. Shri R.M. Srivastava, Se retary, Home Department, Government o uttar

Pradesh

9. Shri ri o han Singh, Se retary, Personne & Administrative Re orms,

Government o West benga

IPS O cers

10. Shri M. bhaskar, Additiona Dire tor Genera o Po i e, Government o

Andhra Pradesh

11. Shri Manoj K mar la , DIG / West Range, Government o Ar na ha

Pradesh

12. Shri D.N. Ga tam, Add . DGP, Government o bihar

13. Shri Amrik Singh Nim ran, Inspe tor Genera o Po i e (Rai ways), bihar

14. Shri K dip Sharma, Additiona Dire tor Genera o Po i e ( raining),

Government o G jarat.

15. Shri Rakesh Ma ik, Additiona Dire tor Genera o Po i e (Re orms),

Government o Haryana

16. Shri Ashkoor Ahmed Wani, SSP, baram a, Jamm & Kashmir

17. Shri Syed Ashaq H ssain, SSP, Anantnag, Jamm & Kashmir b khari18. Shri Ja o P nnoose, Additiona Dire tor Genera o Po i e, Government o

Kera a

19. Shri P.l. Pandey, Additiona Dire tor Genera o Po i e, Government o

Madhya Pradesh

20. Shri K.l. Prasad, Joint commissioner o Po i e (SID), Government o

Maharashtra

21. Shri Sanjeev Ka ra, DIG o Po i e (Admn), P nja Po i e Headq arters

22. Shri Kanhaiya la , Add . Dire tor Genera o Po i e, (Admn, law & Order),

Government o Rajasthan

23. Shri S.D. Negi, IG o Po i e, law & Order, Government o Sikkim

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24. Shri K.V.S. M rthy, Add . Dire tor Genera o Po i e (law & Order),

Government o ami Nad

25. Shri A. ch. Rama Rao, Add . Dire tor Genera o Po i e (law & Order),

Government o rip ra26. Shri Shai ja Kant Misra, Inspe tor Genera o Po i e, l know

27. Shri bh pinder Singh, Add . Dire tor Genera o Po i e, Government o

West benga

28. Shri Ramnivas Meena, Add . S perintendent o Po i e, Daman & Di and

Dadra & Nagar Have i

29. Shri S.K. Jain, Joint commissioner o Po i e, De hi

30. Shri bipin Gopa akrishna Se retary, PcAS, Home, Government o

Karnataka

SVP National Police Academ

1. Shri Kama K mar, Dire tor

2. Shri Santosh Ma her a, Joint Dire tor

3. Shri A. Hema handran, Dep ty Dire tor

4. Shri Ashish G pta, Dep ty Dire tor

5. Dr S. Darvesh Sahe , Dep ty Dire tor

6. Ms i otama Varma, Dep ty Dire tor

7. Dr A.K. Saxena, Pro essor ( .M.)

8. Shri G.H.P. Raj , Assistant Dire tor

9. Shri Rakesh Aggarwa , Assistant Dire tor10. Shri N. Ven gopa Assistant Dire tor

11. Shri b. ba a Naga Devi, Assistant Dire tor

298 299

12. Shri A hishek rivedi, Assistant Dire tor

13. Smt Satwant Atwa , Assistant Dire tor

14. Shri G.A. Ka eem, Assistant Dire tor

15. Dr A.K. bap y, Assistant Dire tor

Others

1. Shri R. Viswanathan, cons tant, ARc

2. Shri Y.S. Rao, cons tant, ARc

3. Shri Ashwin Mahesh, cons tant, ARc


1. Shri M. Veerappa Moi y, chairman

2. Shri V. Rama handran, Mem er

3. Dr A.P. M kherjee Mem er

4. Dr A.H. Ka ro, Mem er

5. Dr Jayaprakash Narayan, Mem er

6. Ms Vineeta Rai, Mem er Se retary

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300

Recommendations Made at ‘National Workshop on Public Order’March 11th-12th 2006

SVP National Police Academ , H derabad

I. Organised Violence, errorism & E tremism: Role o the State and Re orms

• A nationa or m sho d e set p or orm ation o po i y and strategy or dea ing with terrorism.

• A sta e, omprehensive, a India anti-terrorist egis ation, having adeq atesa eg ards against a se, m st e p t in p a e.

• Whi e terrorist vio en e has to e e e tive y dea t with y the se rity or es,peop e’s grievan es – gen ine and per eived – whi h get exp oited, have to eredressed y on erned agen ies with a sense o rgen y.

• A sta e, e e tive and responsive administration is an antidote to terrorism.

• For e e tive y dea ing with vio en e, o tdated aws (eg., Te Exp osive A t),ontaining irre evant provisions res ting in de ay in investigation and prose tion

o o enders, m st e amended.

• Deve opmenta a tivities sho d e p anned and exe ted with d e regard topro ems o disp a ement o peop e, resett ement et ., so that vio ent er ption o

on i ts on s h iss es an e avoided.

• For ta k ing the root a ses o le t Wing Extremism, re evant so io-e onomi iss ess h as and re orms, a ienation o tri a s rom orest and et . sho d e addressedand re evant aws m st e stri t y en or ed.

• An a -India egis ation sho d e ena ted or ta k ing the growing mena e o organised rime.

• errorism has to e o ght y the se rity or es with the ooperation o thepeop e. Appropriate sensitisation training sho d e given to se rity or es oravoiding a ienation o the peop e and or en isting their ooperation.

• Te administrative response to the pro em o the North-East needs a thoro ghre-examination. Te A India Servi e cadre o North East has to e stream inedto make it e e tive and responsive to the pro ems o the peop e. A ommon

adre or the entire North-East wo d e desira e.

301

• Administration sho d e sensitised to pro ems and denia o the existen e o pro ems sho d not e the approa h.

• Administrative re orms sho d aim at a hieving zero to eran e o orr ption.In reasing mani estation o ra ds/s ams invo ving the highest eve s o the

government has ass med the hara ter o organised rime. Administrative re ormssho d address this iss e.

• Administrative re orms sho d adeq ate y o s on improving the onditions o thepoor and the deprived, in t ne with o r onstit tiona va es. he iviadministration sho d e sensitized on this thro gh proper training, and thetenden y o denia o grave iss es/pro ems sho d e he ked.

II. Role o Government, E ecutive Magistrac & Judiciar in Public OrderManagement: Need or Re orms

• Reg ar meetings sho d e he d etween the DM and the SP whi h an he panti ipate and prevent p i disorder sit ations.

• Tere sho d e proper training or Exe tive Magistrates at the State eve ore e tive dis harge o their n tions.

• Te po i e m st proa tive y invoke parti ipatory engagement o the omm nitiesthey serve, and re i d p i on den e in the instit tion.

• Modern methods o riot response need to e st died and adopted. Whi e se o or e may e ome navoida e in some sit ations, the endeavo r sho d e to

avoid oss o ives in dea ing with P i Order sit ations.

• P i Order sho d e in ded in the con rrent list nder the Seventh S hed eo the constit tion.

• Te possi i ity o and-re ated on i ts e oming a te with potentia or p idisorder sho d e taken note o the initia stages itse , and meas res sho d etaken or reso ving the same thro gh po i y meas res and other means.

• commissionerate o Po i e system whi h a ows greater n tiona a tonomy orthe po i e is needed in r an areas. However, restr t ring the po i e a ong these

ines need not e inked to the m ni ipa stat s itse .• Te impa t o j di ia de isions on P i Order need to e re ognised. Te

j di iary has to e sensitised to the same.

P i Order




• under the po i e-magistra y re ationship, the o owing divergent viewpointsemerged:

• SDPOs sho d e empowered nder the crPc. to exer ise the a thority o anExe tive Magistrate.

• Po i e eing a oer ive agen y, ivi ian ontro is ne essary and navoida e andthe same sho d e with Exe tive Magistrates.

• civi ian ontro sho d e exer ised thro gh independent enq iry ommissionsike in the uK.

• Emphasis sho d e on pro essiona s pervision o po i e work thro gh a po i ehierar hy whi h sho d e made a o nta e.

• Te Nationa Po i e commission re ommendations regarding oordination atthe distri t eve etween SP and co e tor need to e imp emented.

• When major de isions ike y to have an impa t on P i Order are takeny the government, there m st e prior ons tation with aw en or ement

agen ies.

• be ore the po i e is given a thority nder new egis ations, the apa i ity and

wherewitha o po i e or en or ing the same sho d e taken into a o nt.• Tere sho d e odi ation o n tions and responsi i ities o di erent

agen ies invo ved in the crimina J sti e System, as envisaged in the crimeand Disorder A t, 1998 o uK.

III. Role o the Police in Public Order Management: Need or Re orms

• Te re ommendations made y the vario s committees / commissions, s h as theNationa Po i e commission, Re eiro committee, Padmana haiah committee, J sti e V.S. Ma imath committee et . and the o servations o NHRc with regardto the ro e o po i e in P i Order management, m st e taken into a o nt.

• Te ore d ties o po i e sho d e spe i ed within a new ega ramework (Po i e A t).

• basi a i ities or strengthening po i e stations – in rastr t re, orensi s ien ee d nits, non- etha weaponry, adeq ate sta ng et . – m st e provided.

• Separation o investigation rom aw and order at po i e station eve s sho d edone Tis may egin with r an po i e stations.

302 303

• Provisions or san tion or prose tion envisaged in Se tion153(A) IPc and powerto withdraw prose tion /s 321 crPc m st e revisited and revised.

• Greater aven es are needed or empowerment and areer progression o onsta es.Dire t re r itment at Dy SP eve to e stopped to ena e this. However, this

s ggestion on dire t re r itment o Dy SPs was not nanimo s.• Tere sho d e a thoro gh s reening or areer progression at a eve s in the

po i e ( rom onsta e to IPS).

• Te Po i e A t o 1861 sho d e rep a ed with another aw or making po i ea o nta e to aw and omm nity.

• State Se rity commissions, as re ommended y NPc, sho d e esta ished.

• Tere sho d e se rity o ten re or po i e o ers rom the eve o StationHo se O er to DGP.

• lo a omm nity sho d e invo ved in P i Order management.

• Po i e sho d e made a p an s je t and ro ght nder the con rrent list o the constit tion.

• certain rimes with inter-state rami ations and nationa se rity imp i ationssho d e ategorized as ‘Federa crimes’ and a dedi ated agen y or its investigationsho d e esta ished. Tis o d e a hieved thro gh th e en argement o the ro eand in rastr t re o the present cbI.

• Po i e per orman e indi ators sho d e standardised. S rveys on p i sa ety,ear o rime et . sho d e in ded as parameters or this p rpose.

• Re r itment pro ess in the po i e sho d emphasise on testing o aptit de,psy ho ogi a s reening in ding IQ/EQ.

• More and more s ienti and te hno ogi a aids and e-governan e meas res sho de adopted in po i ing.

• Tere is greater need or ivi po i e than mi itarising it. raining sho d aim atpreparing the po i e or adopting h mane approa h in their work.

• Te teeth-to-tai (o er: onsta ary) ratio in the po i e sho d e s ita y a teredto avoid dis onne t etween o ers and onsta ary.

• Periphera po i e d ties sho d e o tso r ed.

• Ind tion o more women sho d e e e ted in the po i e.

P i Order




• Tere is an rgent need to address the iss e o ow se -esteem o the onsta ary.Tis req ires a series o organisationa /governmenta meas res s h as etter stat sand sa ary, improved working onditions, other meas res o empowerment ikeentr sting the onsta es with more pro essiona work than on y me hani a

hores.

• A ho isti t re o aw en or ement sho d e reated a ross di erentorganisations.

• Standard g ide ines or exer ise o power m st e evo ved ased on est pra ti es.Te same sho d e in ated thro gh appropriate training.

• Good initiatives promoting omm nity parti ipation in po i ing sho d es stained thro gh ega and instit tiona ramework.

• ben hmarks or po i e per orman e sho d e evo ved and ti ized or properassessment.

• credi i ity o the po i e as a pro essiona , n tiona y-a tonomo s agen y sho de esta ished y ins ating them rom extraneo s inter eren es.

• Ar itrary exer ise o a thority y po i e sho d e r ed thro gh stri t dis ip inary

ontro .• Over- rdening the po i e with powers nder n mero s spe ia and o a aws

needs a review and wherever easi e other appropriate ag en ies an dis harge then tion.

• Any vio ation o the aw y the po i e themse ves needs to e serio s y dea t with.

• Te po i e sho d e given greater servi e orientation.

• Te Right to In ormation A t sho d e y imp emented e e tive y in the po i eorganisation.

304 305

IV. Public Order: Need or Re orms in the Criminal Justice S stem

• Prose tion wing to e headed y an o er o rank o DGP nder the overaadministrative ontro o the Advo ate Genera o the State. Tere was a so a view that this meas re in itse may not ead to strengthening the prose tion.

• Te j dges sho d try to nd o t the tr th instead o a ting mere y as anmpire.

• Witness sho d e treated with dignity. Tis sho d in de providing a seat orthe witness, whi e giving eviden e.

• Witness sho d e ompensated or the oss d e to attendan e in o rt.

• E e tive programmes o witness prote tion in ding that o their ami ies sho de introd ed.

• Sit ations in whi h witnesses are nne essari y a ed again and again in the o rtsm st e avoided.

• Expert eviden e sho d e taken on a davit.

• Te aw o perj ry sho d e made more stringent and e e tive.

• A the amendments in rimina aws, as s ggested y the Ma imath committee,sho d e imp emented.

• Every po i e station sho d have a proper interrogation room with a dio-videoa i ities.

• Mo i e orensi nits sho d e dep oyed adeq ate y in po i e set- ps.

• An Integrated co rt comp ex at every po i e station simi ar to the pattern inuK, sho d e adopted.

• A the reg atory a thority nder the aw sho d e vested with the po i e; q asi- j di ia a thority and n tions sho d e e t to the Magistrates.

• lega aid system sho d e strengthened.

• For red ing the h ge penden y in the o rts, a pragmati approa h is needed. A system o dis arding rther a tion in respe t o ases o a minor nat re a ter ares r tiny y a d y onstit ted independent ommittee was re ommended.

• Te system o p ea argaining sho d e introd ed or speedy disposa o riminaases.

P i Order




• A Nationa Ar itration commission may e onstit ted or reso ving ontentio siss es with potentia or serio s p i order pro ems.

• Te n m er o days on whi h the o rts are osed are ar too many d e to argen m er o ho idays or the j di iary. F rther, a ter the hearing is omp eted,

sometimes there is inordinate de ay or prono n ing the j dgements. Tese iss esneed to e gone into o je tive y and remedia meas res introd ed.

• A tenden y on the part o j di iary to mi romanage exe tive n tions eadingto pra ti a pro ems, needs appropriate moderation.

306 307

Roundtable on Policing and Public Order10th June, 2006

Commonwealth Human Rights Initiative (CHRI), New Delhi

List o ParticipantsSl. No. Name Designation

1. Mr. J sti e Rajinder Sa har Former chie J sti e, De hi High co rt

2. Ms eesta Seeta vad Advo ate, M m ai

3. Mr Imtiyaz Ahmed So ia A tivist, De hi

4. Mr Ram Narayan K mar So ia A tivist, De hi

5. Mr S he irmizi Advo ate, Ahmeda ad

6. Mr S has chakma So ia A tivist, De hi

7. Mr Vineet Narain Jo rna ist, De hi

8. Mr Sanjoy Hazarika So ia A tivist, De hi

9. Dr V. S resh Advo ate, chennai10. Mr J sti e H. S resh Former J dge, bom ay High co rt

11. Mr Pradip Pra h So ia A tivist

12. Mr Asghar A i So ia A tivist, M m ai

13. Ms usha Ramanathan Advo ate, De hi

14. Mr K.S. Dhi on Former Dire tor Genera o Po i e

15. Mr Mihir Desai Advo ate, M m ai

16. Mr S.R. Sankaran Former Se retary to the Government o India

17. Mr umakant So ia A tivist, De hi

18. Mr b.N. Jagdish Advo ate, banga ore

19. Mr bikramjeet batra Advo ate, De hi

20. Mr K.G. Kanna iran Advo ate, Hydera ad

P i Order





Sl. No. Name Designation

1. Shri M. Veerappa Moi y chairman

2. Shri V. Rama handran Mem er3. Dr A.P. M kherjee Mem er

4. Dr A.H. Ka ro Mem er

5. Ms Vineeta Rai Mem er Se retary

308 309

Recommendations made at the Roundtable on Policing and Public Order

10th June, 2006Commonwealth Human Rights Initiative (CHRI), New Delhi

I. Minimising the Possibilit o Disorder

• Good and eq ita e governan e is req ired to s stain p i order. laws thatempower peop e rather than the government sho d e ena ted. Emphasissho d e p a ed on reating “ onsens a eq i i ri m rather than ohesiveeq i i ri m”.

• Te reasons ehind o rren es o arge-s a e disorder sho d e ear y ana ysedand p i y de ated to prevent re rren e. Te o s sho d e on managingstate power and not on managing peop e.

• Instead o giving more powers to aw en or ement agen ies, o s sho d e p a edon onditioning the exer ise o existing powers. Te po i e wi have to e mademore a o nta e, and stri ter p nishment has to e imposed. laws that provideimp nity or aw en or ement agen ies sho d e repea ed.

• Administrative Re orms e orts m st he p margina ised se tions o so iety – thepoor, Da its, Adivasis, and minorities – rea ise their rights. Existing provisions tosa eg ard the rights o v nera e gro ps sho d e proper y en or ed.

• Every aspe t o po i e n tioning, administrative n tioning and j di ian tioning sho d e made p i and transparent immediate y, and on a reg ar

asis. Te instit tiona t re has to e hanged.

II. Democratise Governance

• Te who e t re, ega system and the manner in whi h government has eenarried o t needs to e nderstood, revamped, and ro ght in t ne with modern

times.

• Po i ing sho d e ashioned towards addressing the growing needs and hanginga e o so iety.

• Te po i e sho d e trained on se ar va es.

• Instead o ooking towards the re ommendations o the Ma imath committee

P i Order




that seek to weaken air tria g arantees, emphasis sho d e p a ed on makingthe state ma hinery more a o nta e.

• Spa e or p i protest, egitimate dissent has to e zea o s y prote ted y thegovernment.

• constit tiona dis ip ine needs to e rein or ed in the po i e, rea ra y andthe j di iary.

• When rimes are esta ished y the pro ess o aw, whether y o rts orommissions, then irrespe tive o pa i ity, reparation prin ip es m st e g idedy rationa ity, j sti e and omp eteness. Reparation to vi tims to tort re sho de i t into the aw thro gh the ena tment o a spe ia A t on ompensation.

• A aste st dy sho d e ond ted to see whi h astes are dominating and who areexp oiting to orm ate a po i y on representation in the po i e, j di iary, medi aand ed ationa e ds.

• I re orm exer ises are to e made meaning , ea h pro eeding sho d e wide y p i ized in regiona ang age newspapers a nd s ggestions invited rom ordinary peop e.

III. Enhance Responsiveness o the Police Administration • landmark rights, a rming o rt dire tives, sho d e in orporated into the code

o crimina Pro ed re, po i e man a s, and r es.

• Te government m st exer ise its ontro over the po i e stri t y in a ordan e with the aw. Day-to-day inter eren e in po i e work – parti ar y in trans ers,postings and rimina investigations – needs to e done away with.

• Te ro e and responsi i ity o the po iti a exe tive and the head o the po i esho d e ear y de ineated and pres ri ed in aw, to minimise the possi i ity o externa in en e in po i ing.

• Tere sho d e proper pro ed res to ens re merit ased appointments andtrans ers in the po i e. rans ers o senior o ers sho d not e done y the chie Minister or Home Minister, t y a ommittee onsisting o the chie Minister,the leader o the Opposition, a High co rt J dge and prominent itizens.

• Te ro e o the po i e, in terms o p i order maintenan e, m st e ear y de ned. Tings ike preventing gam ing sho d e taken o t o the am it o po i e d ties.

310 311

• Te po i e m st re e t the omposite mix o so iety. E orts sho d e made toens re that women, minorities and Da its are represented in the po i e.

• More women sho d e in ded in the po i e and given key posts to ringimprovements in attit de and approa h towards gender iss es.

• Te po i e sho d e made a o nta e nder the Right to In ormation A t, 2005.Everyone registering an FIR sho d have the right to know what a tion has eentaken on their FIR, and what is the rrent stage in investigations.

• Tere sho d e ann a eva ation o po i e per orman e y an independentoard. Parameters sho d in de po i e response to rime, parti ar y p i

satis a tion, vi tim satis a tion and operationa e ien y. A so ia a dit o thepo i e sho d e ndertaken at the state, distri t, ity, and moha a eve s.

IV. Make the Police Accountable or Wrongdoing

• Te req irement o having to o tain prior san tion e ore prose ting po i eo ers or wrongdoing sho d e done away with.

• Dis ip inary pro eedings sho d e omp eted expeditio s y and swi t a tionsho d e taken against errant o ers.

• A Distri t comp aints A thority to inq ire into important ases, re erred y theNationa H man Rights commission and State H man Rights commissions,sho d e onsidered.

• Tere sho d e an independent h man rights omp aints monitoring me hanismat the po i e station eve that is a o nta e to the h man rights ommissions,

t in their rej venated orm.

• A redi e externa me hanism to address omp aints against the po i e sho d ep t in p a e. Either the existing h man righ ts ommissions sho d e adeq ate y strengthened, or an ex sive ody to dea with po i e re ated omp aints sho d

e esta ished as in other j risdi tions.

• H man Rights co rts as mandated y the Prote tion o H man Rights A t,1993 sho d e proper y onstit ted and operationa ised thro gh the ena tmento r es.

• Te po i e sho d e rigoro s y made to o ey S preme co rt g ide ines aiddown in the D.K. bas ase.

P i Order

Annexure-I(7) Contd. Annexure-II (1)



• Anoma ies in the Indian Eviden e A t, 1872 that reje t the admissi i ity o on essions made to po i e o ers [Se tion 25], t make admissi e, re overies

made y the po i e thro gh the very same on essions [Se tion 27], sho d eremoved y repea ing Se tion 27.

V. Apart rom the a ove, there was strong opposition to the re ommendations s ggestedin the Report o the committee on Re orm o the crimina J sti e System (Ma imathcommittee Report).

312 313

Questionnaire or Gathering Views & Opinionson ‘PUBLIC ORDER’

Background

P i order is synonymo s with pea e, sa ety and tranq i ity o the omm nity.Maintenan e o p i order is a ore n tion o governan e. Any ontravention o aw a e ts pea e order to varying degrees and an e re erred to as a pro em o aw and order.It e omes a p i order iss e, when it a e ts the even tempo o i e o the omm nity.P i order is a so inked with the se rity o the State. When a p i order pro em isnot prompt y and e e tive y reso ved, it an ass me grave proportions, threatening even the

nity and integrity o the o ntry and se rity o the State. A p ethora o iss es rangingrom agitation y st dents to terrorism and ins rgen y ome nder the s ope o p i

order iss es.

2. India today is poised to emerge as a g o a e onomi power with a its high growth rateo e onomy and a -ro nd e onomi deve opment. For rea ising o r egitimate aspirationso e onomi deve opment, it is essentia that the pro ems o pea e and order e managede ient y in the o ntry. No deve opmenta a tivity is possi e in an environment o inse rity and disorder. Fai re to manage the m ti ario s pro ems arising o t o vio ent

on i ts ased on re igio s, aste, ethni , regiona or any other disp tes, an ead to nsta eand haoti onditions. S h onditions not on y mi itate against rea isation o o r e onomidream, t a so wo d jeopardise o r s rviva as a vi rant demo ra y. We have to ook atthe pro em o p i order management and the ro e o aw en or ement in that regard,in this perspe tive.

QUES IONNAIRE

1. Whi h are the pro ems and iss es in o r o ntry that an e termed as ‘P i OrderIss es’, in yo r opinion? P ease name them in des ending order o their importan e.

2. Are yo satis ed with the system and the manner in whi h P i Order iss es /sit ations are eing managed in the o ntry? I not, p ease spe i y reasons.

3. Are yo aware o the road ega ramework and administrative arrangements orP i Order Management in the o ntry?

P i Order

Annexure-II(1) Contd. Annexure-II(1) Contd.



4. I so, what do yo think are the strengths o o r ega ramework and administrativearrangements in this regard?

5. What, in yo r opinion, are the weaknesses or inadeq a ies o the ega ramework and administrative arrangements or managing P i Order iss es/sit ations?

6. Do yo think any hanges are ne essary in o r aws (s stantive, pro ed ra aws orthe aw o eviden e) dea ing with P i Order management? I so, p ease spe i y.

7. F rther, do yo think o r administrative arrangements/r es to dea with P i Ordermanagement are adeq ate and e a io s? I not, what are the inadeq a ies in yo r view and what sho d e done to re ti y the same?

8. Tere is a per eption that in dea ing with many p i order sit ations, the roota se o the pro em is not adeq ate y addressed. In this regard, the ro e o the entireivi administration – oth reg atory and deve opmenta agen ies – ass mes importan e.

What instit tiona me hanisms, in yo r view, are req ired to ens re that a wings o theGovernment e e tive y dis harge their responsi i ity in the management o p i order?

9. What sho d e the ro e o Exe tive Magistra y in the management o p i ordersit ations? Wo d yo ike to s ggest any improvements in this regard?

10. In a demo rati system o governan e, o a a thorities, s h as Pan hayats, have animportant ro e. co d the o a a thorities e ega y entr sted with responsi i ities re atingto on i t reso tion?

11. Do yo think Non-Governmenta Organisations (NGOs), so ia organisations/gro ps, so ia workers, et ., i str t ra y invo ved, an p ay a meaning ro e in P iOrder Management, in ding reso tion o on i ts in in ipient stages, mitigatings r harged atmospheres and/or hea ing the wo nds or ong-term pea e? I so, what arethose P i Order iss es/sit ations in whi h their he p sho d e en isted y the on ernedagen ies?

12. What in yo r opinion, sho d e the str t red me hanism (a so d y s ggestingtheir ro e as we as a o nta i ity) to invo ve the a ove-mentioned organisations/gro ps/individ a s in the periods pre eding, d ring and o owing a P i Order sit ation?

13. Te media – print as we as vis a – have an important ro e in P i Order sit ations.

Responsi e a tions y media an s stantia y ontri te to reso tion o on i ts anda eviating tensions. unmind reporting an ead to ndesira e onseq en es. What areyo r views and s ggestions in this regard?

314 315

14. Simi ar y, what are yo r views and s ggestions with regard to the ro e o po iti aparties – e it the r ing party or those in opposition – in P i Order management? What meas res are needed to strengthen that ro e?

15. Many o the ha enges to P i Order today have their mani estation in phenomena

ike errorism, Organised crime and other serio s rimes o inter-state dimensions. Tereis a view that to ens re ni ormity o response to s h rimes, a ross-the-States, we needto adopt the on ept o atego rising s h rimes as ‘Federa crimes’ and have a edera aw to dea with them. What is yo r view in this regard?

16. In o r onstit tiona s heme, P i Order Management is primari y the responsi i ity o the States. Do yo ee satis ed with this arrangement or wo d yo think that in view o the emerging s enario o many p i order iss es having serio s imp i ations or nationase rity and e onomi deve opment, the union Government sho d p ay a more visi ero e in the hand ing o s h iss es/sit ations?

17. ‘P i Order’ is a s je t in ded in list II (State list) nder the Seventh S hed eo the constit tion. Tis denies to the Par iament and the centra Government even a

egis ative/po i y-making ro e in matters re ating to P i Order. Tere is a view that sin enow many p i order sit ations having rami ations on nationa se rity and othernationa interests, ‘P i Order’ and ‘Po i e’ ( eing the main instr ment o maintenan eo P i Order) sho d e ro ght nder list III (con rrent list), witho t di ting, inany manner, the edera nat re o o r po ity. Do yo on r with this view or not? P easespe i y reasons a so.

18. What other meas res, i any, need to e taken, in yo r view, to ens re that the centraGovernment is a e to its d e ro e in management o P i Order iss es/sit ationshaving dimensions o nationa interest?

19. Te po i e eing the prin ipa aw en or ement agen y o the o ntry, are in theore ront o management o P i Order sit ations. Te n tioning o the po i e is

primari y governed y the Po i e A t o 1861, whi h is now eing per eived as ar hai andnot re e tive o o r onstit tiona /demo rati aspirations. Wo d yo think that this aw needs to e rep a ed?

20. I so, what new provisions, i any, wo d yo ike in orporated in a new Po i e

A t?21. Te ro e o po i e in P i Order Management, at present, is on a rea tive mode,as per the stat tory provisions nder the rrent aws. Tere is no o igation on the po i eto exp ore possi i ities o pea e reso tion in the ear y stages, with or witho t the

P i Order

Annexure-II(1) Contd. Annexure-II(2)



invo vement o other stakeho ders in the so iety. A so o d the po i e e given a a i itator’sro e in s h ases? Do yo think it is ne essary to hange the aws in this regard?

22. How to gear p the ivi administration and the po i e to ena e them to take e e tivepreventive a tion to avai major p i disorder sit ations?

23. Tere is a view that the n tiona apa i ities o the po i e and other on ernedagen ies need to e a gmented to ena e them to dea with growing dimensions o p iorder pro ems e ient y and e e tive y. What wo d yo think are s h apa ity i dingmeas res, needed to e p t in p a e?

24. It is wide y e t that the po i e ma hinery in the o ntry, to day, is over- rdened with rising magnit de and omp exities o their d ties. Do yo think some o thed ties and n tions rrent y per ormed y the po i e an e o tso r ed, to ena e thepo i e to on entrate on their ore n tions? I so, p ease spe i y n tions that an eo tso r ed.

25. What, in yo r view, are the other meas res needed to improve the working andiving onditions, as we as mora e and motivation o po i emen at the tting edge eve s

o onsta ary and other e d po i e o ers, to ena e them to ta k e omp ex P iOrder Iss es with pro essiona e ien y t with a h man a e?

26. In a demo rati set p, the po i e are a o nta e to the p i and the aw, or e ientper orman e o their d ties. What do yo think sho d e the meas res and me hanism

or ens ring the a o nta i ity o the po i e to the peop e and the aw?

27. E ient management o P i Order sit ations/iss es req ires invo vement o severaother agen ies esides the po i e. In this ontext, the importan e o inter-agen y ooperationand oordination annot e over-emphasized. What meas res, in yo r opinion, are neededto promote inter-agen y, inter-State and centre-State ooperation in an instit tiona isedmeas re, to ens re synergy in the management o p i order iss es/sit ations?

316 317

Anal sis o the Replies to the Questionnaire on Public Order

1. Which are the problems and issues in our countr that can be termed as‘Public Order Issues’, in our opinion? Please name them in descending order o their importance.

Fo owing are the p i order iss es in o r o ntry, in des ending order o importan e:

a) Re igio s ndamenta ism and omm na stri e

) caste and regiona on i ts

) errorism

d) le t Wing extremism

e) Organised rime

) Armed ins rgen ies in the North East

g) la o r/agrarian/st dent/po iti a agitations

h) Vio ent demonstrations against government po i ies

i) con i ts over sharing o reso r es

j) Disasters – nat ra and man-made

k) Strikes in essentia servi e se tor

) Fa tiona ism

m) Kidnapping

n) Po iti a m rders

P i Order

Annexure-II(2) Contd.

2 i d i h h d h i hi h bli O d i 3 h b d l l k d d i i i




318 319

2. Are ou satis ed with the s stem and the manner in which Public Order issues/ situations are being managed in the countr ? I not, speci reasons.

able 1 : Satis ed with the management o public order issues

Reasons or dissatis action:

(a) Administration is not proa tive

( ) Administration does not address the root a ses o the pro ems. Tere is no attemptto nd ong term so tions

( ) Everyone’s opinions and viewpoints are not onsidered whi e reso ving iss es – NGOs,media and so ia workers are hard y ever invo ved

(d) la k o a o nta i ity to p i

(e) O so es en e o the system wherein the distri t magistrate is at the he m o the aw and order ma hinery

( ) Inadeq ate and ine e tive aws to hand e p i order iss es

(g) la k o eq ipment, inadeq ate training and ega know edge o aw en or ementagen ies a e ts the manner in whi h p i order iss es are hand ed

(h) M ti ario s ontro s and inter eren e o extraneo s powers

(i) No en or ea e g ide ines or media eads to their spreading misin ormation andover sensationa isation o iss es

Yes 11% No 79%To a great extent 1%To Some Extent 5%Can’t Say 4%

3. Are ou aware o the broad legal ramework and administrative arrangementsor Public Order Management in the Countr ?

a e 2

4. I so, what are the strengths o our legal ramework and administrativearrangements in this regard?

Strengths in legal ramework:

1. c ear y aid down ega ramework

a. constit tion o India. civi and crimina Pro ed re code

2. crimina J sti e System working nder a n tiona demo ra y and a we -do mentedconstit tion

a. Severa ayers o j di iary

. Proa tive j di iary

. Separation o j di iary rom exe tive

3. M ti ario s demo rati and egis ative ora are avai a e to dis ss iss es o p iimportan e

4. lega strength with the po i e and exe tive

a. Power with the SHO and his s ordinate sta to initiate preventive a tions toom at p i order pro ems

. Dis retion to de ide q ant m o or e whi e hand ing p i order iss es

Yes 84%

No 13%To a great extent 2%To Some Extent 1%

P i hi i d

P i Order

( ) Wi hd di




. Prom gation o prohi itory orders

d. Preventive detentions

e. Power to reg ate pro essions

. Provisions o imm nity to the po i e o er whi e dis harging egitimate n tionsin dea ing with p i order iss es

5. J di ia / administrative review o po i e a tion

Strengths in administrative ramework:

1. Firm y esta ished traditions

2. We spread inte igen e network

3. rained po i e ma hinery

4. Po iti a a o nta i ity o the po i e

5. A India Servi es ring ni ormity to dea ing o p i order iss es

6. A strong administrative system is a e to hand e p i order iss es against heavy odds

5. What, in our opinion, are the weaknesses or inadequacies o the legal ramework and administrative arrangements or managing Public Order Issues/situations?

Weakness in legal ramework

(a) De ays in de ivery o j sti e y the rimina j sti e system

( ) Te crimina j sti e system avo rs the a sed; the ri h and power are a eto manip ate it to their ene t

( ) Eviden e A t need to e re-examined in the ontext o p i order iss es

i. Provision o on s o proo on prose tion

ii. G i t to e proved eyond a reasona e do t

(d) Inadeq ate and ine e tive preventive aws.

(e) Inadeq ate and ine e tive aws to dea with di t pro ems ike terrorism andorganised rime

( ) Inadeq ate prote tion to vi tims and witnesses

320 321

(g) Withdrawa o ases or reasons o expedien y

(h) No pena provision, other than depar tmenta a tion, exists or dere i tion o d ty to maintain p i order

Weaknesses in administrative ramework

a) Administrative de isions are ased on po iti a expedien y

) la k o a tonomy and reedom rom inter eren e

) Over apping j risdi tion o po i e and magistra y eads to inordinate de ays,on sion and d a ity o ontro

d) Po i e have the responsi i ity o ta k ing p i order pro ems t not givenadeq ate ro e in on i t reso tion and negotiation pro ess

e) la k o an instit tiona me hanism de ning the ro es and responsi i ities o thevario s stakeho ders in on i t reso tion

) No system o identi ation o itizens ike niq e identity ards, et

g) No entra omp terised data ase on rimina s, espe ia y anti-nationa s

h) Not many States have spe ia ised wings to hand e p i order pro ems ike

e t-wing extremismi) la k o ohesive po i y etween the centre and the States and etween the

States – am ig ity in edera system in dea ing with p i order iss es

j) la k o se o te hno ogy and trained manpower

6 D thi k h g i l ( b t ti d l

P i Order

( ) P i i ithd (S ti 321 P ) h d d




6. Do ou think an changes are necessar in our laws (substantive, procedurallaws or the law o evidence) dealing with Public Order management? I so, pleasespeci .

able 3 : Is there a need to make changes in law?

Speci c changes recommended

Most o the respondents e t that re ommendations o the Ma imath committee inthis regard needs to e imp emented.

Changes in substantive laws

(a) Remove distin tion etween ogniza e and non- ogniza e o en es

( ) Strengthen preventive detention aw and other spe i a ts dea ing with p iorder iss es

( ) Enhan e p nishment or o en es re ated to p i order

(d) Stringent p nishment needed or wi dere i tion o d ty y p i servants

Changes in procedural laws

(a) Getting 161 crPc statements signed y witnesses

( ) Adjo rnments d ring tria s e made more stringent and spe i reasons e itedor the same

( ) A de nite time rame sho d e xed or omp etion o tria s in ases re atingto p i order iss es

(d) Po i e o ers e given powers or inding down persons /s 106-110 crPc

(e) Provision o witness prote tion

322 323

( ) Provision o withdrawa o ases (Se tion 321 crPc) sho d e removed

(g) Provision o anti ipatory ai e made more stringent

(h) Se tions 147, 148, 149, 152, 188 ( or vio ation o prohi itory orders nderSe tion 144 crPc) IPc sho d e made non- ai a e

(i) Enhan e time to keep a person in stody nder Se tion151 crPc to 15 days

(j) Power o award o ompensation to the vi tims o riots o t o the on s ationo property o the onvi ts in riot ases or ne on onvi tion

(k) In rease time o prod ing the arrested person e ore a Magistrate rom 24ho rs to at east 48 ho rs.

Changes in law o evidence

(a) Proa tive ro e o the j dges in “ nding the tr th” rather than mere y shi tingeviden e

( ) convi tions sho d e ased on preponderan e o possi i ities rather thaneyond a reasona e do ts

( ) con essions e ore senior po i e o ers e made a dmissi e

(d) S ita e amendments e ro ght a o t to avoid a q itta on gro nds o apsesin investigation – j di iary sho d e ome more proa tive to order rtherinvestigation

(e) Adverse in eren e sho d e drawn i ertain in ormation/do ment/o je t whi h is in the so e stody o the a sed is not prod ed

( ) S seq ent hange in statement y a witness, on e it has een re orded e ore a j di ia magistrate, sho d e treated as perj ry. Pro ed re to dea with perj ry

e simp i ed and p nishment there ore e made more stringent.

(g) cir mstantia eviden e and motive ehind the rime sho d e given eq a weightage as dire t eviden e

Yes 79% No 10%Did Not Respond 11%

7 What are theinadequacies in ouradministrativearrangements/rules to dealwith

P i Order

(a) constit te a State Se rity commission




7. What are the inadequacies in our administrative arrangements/rules to deal withPublic Order management and what should be done to recti the same?

able 4 : Are existing administrative arrangements/rules adequate and e ective?

Inadequacies

(a) F n tiona ontro o th e po i e y the exe tive

( ) Po i e has no n tiona a tonomy

( ) Extraneo s inter eren e in p i order management

(d) la k o training

(e) la k o modern eq ipments

( ) la k o empowerment o ower ranks

(g) Improper per orman e monitoring systems and a k o g ide ines or xinga o nta i ity

(h) Tr st o r es/administrative arrangements or p i order management sho dhange rom ‘ aw- entri ’ to ‘peop e- entri ’

(i) Inadeq ate parti ipation o ivi so iety in p i order management

(j) No provision or reha i itation o vi tims o p i disorder

Solutions

Apart rom meas res to remove the a ove inadeq a ies, other so tions s ggestedare as o ows:

324 325

(a) constit te a State Se rity commission

( ) Make po i e a p an s je t or dgetary a o ation

( ) Provide or adeq ate manpower in po i e stations

(d) changes req ired in po i e re r itment, promotion and trans er

(e) Reservation or women in po i e

( ) Te S perintendent o Po i e sho d e made the head o the aw and order andthe Distri t Magistrate sho d e given a oordinating ro e

8. What institutional mechanisms, in our view, are required to ensure that all wings o the Government e ectivel discharge their responsibilit in the management o public order?

constit tiona me hanisms to ens re that a wings o the government e e tive y dis hargetheir d ties:

a) con i t reso tion sho d e ear y spe i ed in the harter o d ties o vario s wings o the government

) broad g ide ines to hand e p i order pro ems, on e ramed y a think tank

o eminent peop e, sho d remain the same irrespe tive o the party in power) Esta ishment o Nationa and State Ar itration co n i s, omprising retired j dges with a senior administrator, po i e o er and some disting ished itizensas advisors, to propose po i y and strategies to hand e serio s aw and order iss esso that there is a ontin ity o approa h despite hange o governments

d) A me hanism sho d e devised to make rea rats a o nta e or aw andorder pro ems that emanate rom a k o imp ementation o deve opmentapo i ies and programmes

e) Vi age pan hayats sho d e made responsi e or aw and order

) Po i e sho d e made party to p anning and imp ementation o deve opmenta work in e t wing extremist a e ted areas

g) P i s r tiny o the per orman e y the itizens sho d e introd ed

h) NGOs sho d e en o raged; ivi so iety sho d assist and g ide the po i e indea ing with sensitive iss es

Yes 20% No 74%Did Not Respond 5%Partially 1%

P i Order

i) better oordination etween a wings o the government Role o e ecutive magistrates is appropriate




326 327

i) better oordination etween a wings o the government

j) Devise etter and empatheti ways to dea with p i grievan es

k) An independent ‘Om dsman’ wi inspire p i on den e

) ransparen y in administration sho d e ens red

9. What should be the role o E ecutive Magistrac in the management o publicorder situations?

able 5 : Is there a role o Executive Magistracy in public order management?

Tere are two view points with respe t to the ro e o the Exe tive magistra y.Role o e ecutive magistrates should be reduced

(a) Powers e vested with po i e o ers nder Se tions 106-110, 129, 133, 144crPc preventive detention

( ) De ision making in p i order iss es sho d e vested with the po i e

( ) Teir ro e sho d e imited to mitigating the a ses o p i disorder

(d) D a ity o ommand reates on sion

(e) Magistrate’s de ision whi e externing rimina s, a owing pro essions, et may eat varian e with po i e re ommendations, eading to aw and order pro ems

( ) Po i e are spe ia y trained or aw and order; administrators sho d on entrateon deve opmenta iss es

(g) Teir ro e sho d e imited to on i t reso tion and negotiations(h) Reg atory powers nder the cr.Pc sho d e vested in po i e o ers whi e

j di ia or q asi j di ia powers and n tions sho d remain with Exe tiveMagistrates.

Yes 7%Yes, with provision 40%

No 37%Did Not Respond 16%

Role o e ecutive magistrates is appropriate

(i) Proa tive ro e o magistrates is desira e

(j) Magistrates have a restraining in en e on the po i e

(k) Magistrates have a major ro e in re ie work d ring disasters

10. Could the local authorities be legall entrusted with responsibilities relating toconfict resolution?

able 6 : Can Local Bodies be entrusted with such responsibilities?

Viewpoints in avour o empowering pancha ats

(a) A ording to Arti e 243(A) o the constit tion, th e Gram Sa ha exer ise s hpowers and n tions at the vi age eve whi h may e entr sted y the Statelegis at re y aw – hen e a provision a ready exists to empower them

( ) Forma isation o the system is req ired

( ) Minor disp tes o d e re erred to the pan hayats, with the power to imposene on y

(d) Te men in the pan hayat need to e trained

(e) However, nyaya pan hayats sho d e onstit ted separate y rom the grampan hayat to keep the exe tive separate rom the j di iary

( ) Pan hayats sho d have some ontro over the po i e

(g) Pan hayats sho d e p a ed nder the s pervision o a reg atory ody.

Yes 64% No 34%Didn’t Respond 2%

11 What are the Public Order issues / situations in which the help o NGOs

P i Order

12 What should be the structured mechanism to involve the above-mentioned




11. What are the Public Order issues / situations in which the help o NGOssocial organisations/groups and social workers should be enlisted b the concernedagencies?

able 7 : Should NGOs, Social Organisations and Workers be involved?

Issues and areas where the can be involved:

a) crime against weaker se tions espe ia y women, hi d a se, reha i itation o j veni e de inq ents and street eggars

) Addi tions ike a oho ism

) Fami y – marita and property disp tes

d) Inter/intra vi age disp tes

e) Mitigating omm na tensions

) Opinion and awareness i ding

g) Identi ying iss es e ore they snow a into major on i ts

h) Grievan e Redressa

i) Inter a e etween administration and p i

j) Ro e in e t wing extremism, ins rgen y and aste on i ts

k) En or ement o so ia egis ations

However, other view point advised a tion in over se o these agen ies or some o themmay have their own hidden agendas a so.

328 329

Yes 79% No 20%Didn’t Respond 1%

12. What should be the structured mechanism to involve the above-mentionedorganisations/groups/individuals in the periods preceding, during and ollowing a Public Order situation?

Structured mechanism to involve NGOs, social workers, etc:

a) Make the SDM, SDPO and mem er o an NGO o e tive y responsi e) Reg ar oordination meetings oth at the s division and distri t eve s

) create a ega ramework

d) raining o these organisations, wherever req ired

e) b a k ist o NGOs, i o nd to ind ge in damaging a ts

) ri na an oversee their per orman e

g) One s ggestion was to imit their ro e in advisory apa ity with proper s r tiny o mem ership o this advisory oard

13. What are our views and suggestions with regard to the role o print and visualmedia in confict resolution and alleviating tensions?

Role o the media

a) Freedom o expression and Free Press are ardina prin ip es o a demo ra y

) Media p ays a positive ro e in reating awareness in the p i and eing a wat hdog o the government

Caution

a) However, a ode o ond t needs to e evo ved in order to avoid over-sensationa isation and misreporting

) Media sho d e trained and sensitized, wherever req ired

) Media sho d a so ed ate the p i a o t their d ties and responsi i ities andhigh ight the disastro s onseq en es o indi eren e o the en ightened

itizens.

14 What are our views and suggestions with regard to the role o political parties

P i Order

) Exa t me hanism however needs to e worked o t One s h me hanism




14. What are our views and suggestions with regard to the role o political parties(ruling part or opposition part ) in Public Order Management?

Measures to strengthen role o political parties in public order management:

a) Evo ve a nationa onsens s and ode o ond t y the Nationa Integration

co n i) Re ommendations o the NPc in this regard and the g ide ines iss ed y the

MHA in 1997 are pertinent

) E e ted representatives, irrespe tive o party a iations, may e o-opted intodistri t eve ommittees to monitor p i order iss es

d) use the mass ase o the po iti a parties to generate opinion and arrive atonsens s

e) Po iti a parties sho d keep themse ves away rom the exe tive n tion o thepo i e i.e. give po i e the n tiona a tonomy

) ake meas res to ens re that rimina s don’t enter po iti a stream

15. We need to adopt the concept o categorising crimes like errorism, OrganisedCrime and other serious crimes as ‘Federal Crimes’ and have a Federal Law to deal with them. What is our view in this regard?

able 8 : Should there be ederal crimes and ederal law?

a) In ase o Inter-State iss es ike e t wing extremism, terrorism, ake rren y,onspira y against the government, et , centra egis ations are req ired, however

witho t dist r ing the edera po ity

) A Federa agen y sho d e reated to dea with edera rimes, whi h anoperate a ross State o ndaries

330 331

Yes 74% No 21%Did not Respond 5%

) Exa t me hanism, however, needs to e worked o t. One s h me hanismo d e ena ting a P i Order A t. Wherever a p i order sit ation o rs,

the hand ing o the risis o d sti e dea t y the State on erned where thein ident happens, t i the tenta es spread to other States a so, some provisionssho d e made in this A t a owing or centra intervention – however, the

onsent and ooperation o the State Government sho d e o tained

16. Should the Union Government pla a more visible role in the handling o publicorder issues / situations having serious implications or national securit and economicdevelopment?

a) Te existing arrangements are s ient. P i Order Management annot eentra ized d e to the vastness o the o ntry

) Te a thority and responsi i ity o the State sho d not e di ted

) However, when pro ems trans ends State o ndaries, centra Government, witho t po iti a onsiderations, sho d a t as a a i itator and extend s pportto the States on erned

d) An instit tiona ized system sho d e in p a e or etter oordination, ex hangeo in ormation, reso r es and etter monitoring

17. Should the ‘Public Order’ and the ‘Police’ (being the main instrument o maintenance o Public Order) be brought under Concurrent List, without diluting the ederal nature o our polit ?

able 9 : Should Public Order and Police to be brought under Concurrent List?

Agree 58%Disagree 36%Didn’t Respond 6%

Reasons in avour

P i Order

( ) centra Government sho d take the ro e o a oordinator




Reasons in avour

a) Tere is a need or ni ormity o response and there ore ni ormity o ega andpo i y ramework

) Serio s omm na , naxa and terrorist pro ems sho d e ta k ed keeping a

ong term perspe tive in view ) Neg e t o aw and order and re ated iss es o governan e eads to grave interna

se rity sit ations

d) In matters a e ting p i order, interests o State and centre sho d e inongr en e

e) Tis arrangement wi go a ong way in prote ting the rights o the itizens andr ing the paro hia and ssiparo s tenden ies at the ower eve

Reasons against

a) Po i e have a spe i ro e within a State and ea h State has its own pro ems

) It is di t, i not impossi e, to have remote management o p i order ins h a vast o ntry as o rs

) It is etter to spe i y ertain areas in interna se rity to e p t in the con rrentlist rather than the who e s je t as s h

18. What other measures need to be taken, to ensure that the Central Government is able to ul ll its due role in management o Public Order issues/situations having dimensions o national interest?

Meas res to ens re that centra Government is a e to its ro e in management o p i order:

(a) centra Government sho d take the ro e o a a i itator

i. Provide ogisti a s pport in the orm o manpower, eq ipment, training,dget or modernization o po i e or e and deve opment a tivities

ii. We are meas res and more nan ia assistan e to North Eastern States

iii. De are areas as ‘distri ted’ and provide additiona Para-mi itary or es

iv. Ed ation awareness programmes

v. Ens re etter imp ementation o poverty a eviation programmes

332 333

( ) centra Government sho d take the ro e o a oordinator

vi. better oordination etween centra and State agen ies

vii. Sharing o know edge, ski s and inte igen e

( ) crimina J sti e System

viii. centra Government sho d devise a new rimina j sti e system to providespeedy j sti e

ix. creation o Nationa J di ia Servi e

(d) creation o a Federa Organisation or dea ing with aw and order sit ations

(e) Make po i e a p an s je t

( ) States e made answera e to the centre or maintenan e o aw and order y deniaor t in centra assistan e or poor per orman e

(g) centra Government to ena t stringent aws to dea with p i order pro ems

19. Te police being the principal law en orcement agenc o the countr , are in theore ront o management o Public Order situations. Te unctioning o the police is

primaril governed b the Police Act o 1861, which is now being perceived as archaicand not refective o our constitutional/democratic aspirations. Would ou think that this law needs to be replaced?

able 10 : Should the Police Act o 1861 be replaced?

Reasons or replacement

Yes 87% No 5%Can’t Say 4%

No response 4%

21. Could the police be given a acilitator’s role in such cases? Do ou think it isa) O d and ar hai

P i Order




p gnecessar to change the laws in this regard?

able 11 : Should police be given a acilitators’ role?

able 12 : Is there a need to change law or providing a ac ilitator’s role to Police?

(a) laws sho d ena e the po i e to p ay a proa tive ro e in preventing p i orderpro ems rather than having a rea tive ro e

( ) Po i e sho d a so have a deve opmenta ro e

( ) comm nity po i ing has proved to e an e e tive too or po i e to a t as aa i itator – aw sho d provide or instit tiona isation o this.

22. How to gear up the civil administration and the police to enable them to takee ective preventive action to avail major public disorder situations?

Measures to gear up administration to take e ective preventive measures in publicdisorder issues:

a) Ena t a P i Order Maintenan e A t whi h apart rom in orporating preventive

provisions o the crPc sho d a so have provisions in ding s spension o rights, et

) Make administration n tiona y independent o po iti a ontro

)

) Does not re e t the demo rati aspirations o the peop e

) Word ‘p i servi e’ does not g re in the Po i e A t

20. I so, what new provisions, i an , would ou like incorporated in a new Police Act?

Provisions suggested to be included in the proposed new Police Act

a) change in the o s o po i e rom eing the oer ive arm o the governmentto a servi e organisation atering to the aspirations o the peop e

) Te new Po i e A t sho d e pro-peop e and pro- ommon man

) Ro e o po i e in interna and externa se rity o the o ntry needs to ere e ted

d) Enhan e powers o the po i e with re eren e to the maintenan e o p i pea eand order

e) System o ontro o the po i e y exe tive magistra y sho d e done away with

) Ro e o centre in edera rimes sho d e ear y de ineated

g) Form ation o State Se rity commission to ens re a tonomy or the po i e

h) Make po i e more a o nta e, a essi e and transparent

i) c arity o po i e ro e in on i t reso tion

j) use o I sho d get re e ted in the Po i e A t

k) cy er rime, terrorism and organised rime sho d e in ded

) Te re evant re ommendations o the Nationa Po i e commission sho d ere erred to

334 335

Yes 83%

No 11%Didn’t respond 6%

Yes 59% No 31%Didn’t respond 10%

) Stop over rdening po i e with ando st d ties

P i Order Ana ysis o the rep ies to the q estionnaire on P i Order

v. Gender sensitisation




) p g p

d) better oordination etween DM and SP

e) Remove nne essary ega impediments ike stay orders, in dea ing with aw andorder sit ations, thro gh appropriate ega amendments.

) use te hni a expertise o eminent persons in p i order management y organizing seminars and workshops

g) Reviving age o d vi age po i e system

h) campaign or i ding awareness amongst peop e o ega rights

i) lega ising on i t reso tion ommittees ike pea e ommittees et

j) update se rity s hemes o the distri t, periodi a y and reg ar y

k) better inte igen e network

) Periodi review meetings with a departments

m) Strategi training

n) Strengthen pan hayats y providing exp i it provisions or maintenan e o aw and order

o) Po i e commissionerate systems to e in p a e as they have proved more e e tivein preventive a tions

p) Ho isti approa h o invo ving the po i e in deve opment work

23. o deal with growing dimensions o public order problems e cientl ande ectivel , what are such capacit building measures that need to be put in placein order to enhance the unctional capabilities o the police and other concernedagencies?

Capacit building measures:

(a) rained manpower

i. Reg ar in-servi e training or pgrading ski s

ii. raining in se o te hno ogy

iii. leadership training

iv. Physi a tness

336 337

vi. Reorientation programmes in po i e to hand e mo ry are very essentia

vii. b i d apa ity to adopt more demo rati methods to hand e aw and

orderviii. Sensitisation o the po i e to the so io-e onomi t re

ix. raining that se o or e sho d e the ast resort

x. raining o senior o i ers in pro em so ving and know edgemanagement

( ) Separate wing to hand e white o ar rimes

( ) Spe ia isation in po i e or e and separation o aw and order and investigation wings

(d) Massive omp terisation

(e) Sharing o inte igen e and in ormation y entra ized data sharing

( ) Introd tion o te hno ogy in po i e work

(g) better omm ni ation in rastr t re(h) better mo i ity

(i) better eq ipment ike weapons, prote tive gear, water anon, et

(j) better we are o po i e personne

(k) Introd tion o tai or made omm nity po i ing s hemes

( ) Enhan ed parti ipation o p i and so ia organisations

24. Do ou think some o the duties and unctions currentl per ormed b the police


• Es ort o ash o anks an e entr sted to Home G ards on payment asis




can be outsourced, to enable the police to concentrate on their core unctions? I so,please speci unctions that can be outsourced.

able 13 : Is there a need to outsource police unctions?

Areas which can be outsourced

• Serving o s mmons, ai a e warrants and tra ha ans

• Re eption co nters

• Maintenan e o premises o po i e stations and o es

• Se rity g ard d ties

• Es ort d ties (VIPs)

• Driving o Vehi es

• Wat h and ward d ties

• Se rity g ards to persons other than Ministers and ategorised prote tees ane o tso r ed to private agen ies on payment y the prote tee

• ra reg ations at ess important p a es

• Es ort o nder-tria prisoners an e trans erred to Jai Department, i ne essary,a ong with san tioned manpower.

• Stati g ard d ties o Government insta ations, o reg ar nat re, an e entr stedto a “State Se rity For e” reated or the p rpose (it o d e Home G ards)

338 339

• Pro rement and hand ing o stores

• Data eeding in omp ters

• lega training, omp ter training and atest training in ding sing o rearms, dete tion and ontro ing o mo d ring riots• Pay and a o nts work

• catering

• Disaster Management vo nteers

• cc V monitoring and ana ysis o rime data

• Prohi ition En or ement

Views against outsourcing

a) Instead o o tso r ing, in rease manpower in the po i e

) use omm nity po i ing initiatives to invo ve p i in po i ing n tions;o tso r ing is not the so tion

25. What, in our view, are the other measures needed to improve the working andliving conditions, as well as morale and motivation o policemen at the cutting edgelevels o constabular and other eld police o cers, to enable them to tackle comple Public Order Issues with pro essional e cienc but with a human ace?

Measures to increase morale and motivation o cutting edge level:

(a) Hygiene a tors

i. Fixed ho rs o d ty

ii. better eq ipped

iii. better iving and working onditions

iv. better ompensation pa kage and so ia se rity

v. Post retirement sett ement possi i ities

vi. Po i e we arevii. better manpower management systems to avoid i treatment and harassment

o men

Yes 85% No 14%Didn’t respond 1%

viii. Dry anteen a i ities ike army


) P a e in ivi po i e nder o a se government nits to enhan e p i




ix. li era san tion o eave

x. better emo ments

( ) reat s ordinate o er with respe t and o rtesy

( ) r st the s ordinates

(d) lega empowerment o onsta ary

(e) Providing promotiona prospe ts

( ) better re ognition o po i e work

(g) Stop vi timisation o po i eman

(h) raining

(i) Image make over, modernisation, pdating te hno ogy wi insti on den e andpride in men

26. What do ou think should be the measures and mechanism or ensuring theaccountabilit o the police to the people and the law?

Measures to make police accountable to law a) Genera Diary in po i e stations to e omp terised

) Re ording o ase diaries on omp ters so that they an a so not e h anged

) Registration o FIR on a omp ter with no possi i ity o hanges ; we am tore ord the pro ess o registration

d) Re ording o ations o po i e vehi es y GPS and ogging systems

e) Strengthening H man Rights Organisations

) J di ia and media a tivism are good means to ens re a o nta i ity

Measures to make police accountable to people

a) Right to In ormation A t and citizen charter sho d e wide y p i ized

) ransparen y in administration

340 341

a o nta i ity, as is done in advan ed o ntries

d) Distri t comp aint boards to e onstit ted to enq ire into omp aints againstpo i e o ers; re ommendations made t not a epted y the SP sho d ere erred to the State Po i e Headq arters and then to the State Se rity commission

e) Po i e-p i ipartite ommittees sho d review the sit ations periodi a y

) Monitoring system

i. Independent constit tiona ody at the centre and State eve s to review per orman e o po i e o ers

ii. Devise p i eed a k me hanisms

iii. P i satis a tion to e made the index o monitoring, not rimestatisti s

g) comm nity po i ing initiatives

h) D ty and a o nta i ity o ea h and ever y personne in the po i e station sho d eear y de ned.

i) ime o nd redressa systems

j) Om dsman

k) P nishing deviant po i emen

27. What measures, in our opinion, are needed to promote inter-agenc , inter-Stateand Centre-State cooperation in an institutionalized measure, to ensure s nerg in themanagement o public order issues / situations?

Measures to promote inter-agenc , inter-state and Centre-State cooperation in publicorder management:

a) Inter-State and Inter-Organisation ex hange o men at s pervisory eve s

) Joint training programmes

) System ana ysis is to e done to a hieve etter oordination

d) A hieve etter oordination and ooperation etween po iti a parties in p i

P i Order




order iss es

e) Freq ent oordination meetings or sharing o in ormation, ideas and strategies

) creation o Tink ank o po i e o ers, itizens and other governmenta

agen iesg) P anning or deve opment sho d in de po i e a so in areas a e ted y e t wing

extremism

h) better omm ni ation systems

ARC Report on Public Order

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