LAW NEEDED TO
COMPENSATE VICTIMS OF WRONGFUL ARRESTS.
Earlier this month the Delhi University Professor, G.N Saibaba, who suffers from a 90% disability, was acquitted by the High Court of charges under the UAPA. He had been in detention for more than nine years, during which time his already fragile health has deteriorated and he has been terminated from his job. The Supreme Court has rightly refused to stay his exoneration and release. Some years ago Dr. Kafeel Khan, of the Gorakhpur hospital tragedy fame who tried to save infant lives by buying oxygen cylinders out of his
own pocket and was jailed by the UP govt. for it, had been freed by the
Allahabad High Court which found no evidence against him. He was kept in
various prisons for eight months without legal justification. Dr. Khan,
however, was one of the lucky ones.
This govt. has been in an overdrive these last ten years to lock up
anyone who can think independently of its propaganda machinery, or express
himself in opposition to its anchors and spokespersons- academists, activists,
the rare journalist, students, NGOs. One of its main instruments in this pogrom
is the deadly legacy bequeathed it by the Congress, the UAPA ( Unlawful
Activities Prevention Act) now suitably amended by the BJP to fit its image.
NCRB data shows that 5023 cases had been registered under UAPA between 2018 and 2022, and 701 under sedition sections. During the period 2014-2020, 10522 persons were arrested. Tellingly, however, according to information furnished by the Ministry of Home Affairs in the Rajya Sabha in 2021, the conviction rate of arrested persons under this Act is less than 3%! In other words, 97 out of 100 arrested persons are ultimately acquitted. And
this is only at the trial court stage; after the appeals process the convicted
figure would come down even further. And this exposes the government’s game:
the idea is not to convict since the charges are usually trumped up and without
any evidence, the intention is to harass, teach “them” a lesson, intimidate and
take them out of circulation for as long as possible. The govt. has nothing to fear if its cases fail in court, for there is no accountability and no penalties. But in the process tens of thousands
of innocent persons have been locked up for months and years without
reason. Anjum Zamarud Habib was in prison for 5 years, Mohammad Amir Khan for 14 years, the
Akshardham temple blast accused for much longer before being exonerated of
terrorism charges. That is why Kafeel Khan was lucky, and why this is as good
an inflection point as any to consider the endemic problem of malicious
prosecution and wrongful arrests in this country, and whether or not the state
should provide reparation to these victims of deliberate state excesses. The
guarantee that no citizen shall be deprived of his personal liberty without
reasonable evidence against him is the bedrock of human rights, and the corner
stone of an equitable system of justice. As the criminal justice system heads towards
total collapse and the govt. compensates by legislating more and more draconian
laws stipulating arrests without any inquiry and/ or no provision of bail, such
detentions shall surely increase. It is time to address the issue rationally.
Citizens in India
are being confined illegally on a colossal scale, either in police lock-ups or
in judicial custody. Our prison population is in excess of five lakhs, of which 70% are undertrials who have
not yet been convicted of any offence. The majority of them are not likely to
be convicted either. According to NCRB data again the national conviction rate for IPC offences is just 45%; in other
words, of the 3.50 lakh undertrials in jail 55% or 2..45 lakhs will be found
innocent for want of evidence ! A further 25% of them will get off on appeal.
But they would have spent years behind bars, deprived of their liberty and
natural rights, their future blighted by the stigma of imprisonment, unemployment and broken families. Why were
they arrested in the first place ? Why did the courts send them to judicial
custody if there was no prima facie evidence against them ?
The answer is
nothing short of an indictment of our criminal justice system: callous apathy,
venality and incompetence of the police, failure and lack of due diligence on
the part of our lower courts , and complete indifference of the policy makers.
To begin with, many of our laws themselves are defective to the point of being
blood thirsty- laws relating to dowry deaths,
suicide, rape, domestic violence, atrocities on scheduled castes,
sedition, terrorism are so crafted that the " accused" can be arrested
straightaway without the need for any corroborating evidence. This is grist to
the police mill which in any case is more interested in " closing" a
case by arresting someone than in ensuring that actual justice is done by
catching the real culprits . Quite often public/ political/ media pressure is
so intense that an arrest-any arrest- is the only way to get them off their
backs. Thereafter shoddy investigation, external influences, lengthy trial delays,
witness intimidation, frequent transfers and lack of any accountability ensure
that at least 55 of 100 cases will inevitably end in acquittal, either at the trial
stage itself or in appeal(s). Meanwhile, of course, those arrested will
languish in jail.
The same bizarre
process applies to convictions after trial. In the Akshardham Temple blast case
of 2002, six accused were convicted by the trial court and High Court: three
were sentenced to death and three others to imprisonment ranging from 10 years
to life. All six were acquitted by the Supreme Court on 16th May 2014 . But by
then their lives had been destroyed as they had spent the intervening ten years
in jail. There are hundreds, if not thousands, of such cases playing out every
year. It boggles the mind how two judges, on the same set of facts and evidence, can come to such polar opposite decisions- life sentence by one, and acquittal by the other. The other question is: should the nation not compensate them for the miscarriage of justice, at least financially, even
though no reparation could possibly bring back the years lost, the reputations
tarnished, the families torn apart?
There are many types
of wrongful confinement: False Arrest (detaining a person without lawful
authority), Wrongful Arrest (taking someone into custody without prima facie
evidence), Wrongful Imprisonment (confining someone without just cause or
without using legal channels), and Wrongful Conviction (imprisoning someone on
grounds/ evidence subsequently found to be inadequate). The first three are
blatant violations and transgressions of the law; only the last type is a
consequence of a (defective) legal process, but it is nonetheless no solace to the victim.
All four are rampant in India.
The really genuine and accountable democracies have accepted that
victims of a necessarily imperfect criminal justice system are entitled to
reparation from the state, and have devised mechanisms for it. In the USA 29
states have legislated Wrongful Conviction Compensation statutes which provide
compensation ranging from US$ 50,000 to US$100,000 for every year of wrongful
imprisonment. A typical case is that of one Marty Tankleff who was wrongly convicted
for the murder of his parents and had to spend 17 years in incarceration before
he was acquitted in 2007. He was awarded compensation of US$ 3.4 million
dollars . In the UK , Canada, New Zealand, Germany too systems exist for the
state to be sued in such cases. It is next to impossible to do so in India
because both, specific legislation or a general law, are missing. We have failed to enact a law on
reparations even though India is a signatory to the International Covenant On
Civil and Political Rights.
The framework for having such a law exists, however. Articles
32 and 26 of the Constitution allow the Supreme Court and the High Courts,
respectively, to pass orders and provide relief in such matters, and it is the
constitutional right of a citizen to approach the courts. There is also a
wealth of jurisprudence and case law to mandate that the state pay compensation
for wrongful confinement. The relevant landmark judgments by the Supreme Court
are in Bhim Singh vs State of Jammu and Kashmir, and in Rudul Sah vs State of
Bihar ( 1983); in the latter case the SC laid down the legal responsibility of
the State in no uncertain terms:
“ The State must repair the damage done by its officers to
the petitioner’s rights. It may have recourse against its officers.”
Over the years both the Supreme Court and various High
Courts( MP, Jharkhand, Kerala, Bihar, Assam, Madras) have also awarded
compensation to petitioners in their writ jurisdiction, the most notable and
recent one being the Rs. 13 million reparation paid to the ISRO scientist Nambi
Narayan by the Kerala govt. for arresting and hounding him for 26 years on
false spying charges.
But this sporadic, discretionary, pick and choose approach is
certainly not adequate. Let us not forget that most of the undertrials and
victims of police high handedness and judicial apathy come from the weakest sections of society (economically and socially) and do not have the resources to file writ petitions
and engage expensive lawyers. Nor do they have the social eminence of a Nambi
Narayan to motivate the media to take up their case. There should be a simple,
specific legislation that can be accessed at the level of a district court or
even a statutory authority like the District Magistrate. The law should, among
other aspects, lay down the compensation to be paid for both pecuniary and non
pecuniary damage caused to the petitioner by his illegal confinement, and the scale
of reparation should be based on that. There should also be a provision for recovery of the amount from
the salaries of the officials involved. This is necessary to curb the growing
enthusiasm of the police to carry out any illegal order of their political
bosses, or even to indulge their own brutish instincts.
The standard argument of governments has been that the state cannot afford the financial burden. Yes, there would be a cost ; a back of the envelope calculation shows that if even 50% of undertrials are ultimately released and compensated by Rs. 50000 for every year of wrongful incarceration, and assuming that (a) each of them has to be given compensation for five years and (b) that one fifth of the undertrials would be released/need to be compensated each year, the annual payout would be Rs 1250 crores. To put that in perspective, that is just 15% of what the Prime Minister's special planes cost, or 30% of what the Statue of Unity cost the exchequer, or less than 25% of what the PM spent on his publicity last year. Surely a vaunted five trillion dollar economy can bear this cost of destroying hundreds of lives?
And this figure shall come down drastically over time once the positive spin-offs of this reparatory policy kick in. These will include:
* Better investigation of cases and collection of evidence, leading to fewer unwarranted arrests and reduction in the number of undertrials over time.
* Fewer adjournments in courts, with more accused being released on bail.
* With financial accountability now being fixed, the police shall be more circumspect in detaining people and in framing them to manufacture "results".
* The govts, both states and central, will be more careful and discerning in filing appeals against acquittals (an invariable practice currently) since now there may be a further cost attached if the appeals are not successful.
* The case load in the courts at all levels shall come down, making the whole justice system more efficient, even generating financial savings in the administration of justice ecology.
Wrongful confinement
of any type by any agency of the state is a violation of human rights, and when
it occurs on the scale that it does in our country it amounts to a negation of
an equitable justice system. The prevailing concept of "arrest first,
gather evidence later" is abhorrent to the spirit of jurisprudence. One
can understand the indifference of the government and the parliamentarians, but
what is inexplicable is the silence of the judiciary and the bar. Is it because
the former is equally guilty through its casual approach, and the latter
because this infringement of fundamental rights is good for business? Whatever
the reason may be, it is high time laws are put in place to compensate the
victims of wrongful arrests/ convictions and to punish the perpetrators. At the
least, this would have a salutary effect on the way our police conduct
investigations and the judges examine evidence. The people have voluntarily
given the state enormous power over their lives in order to live in a just and
lawful society; when the state errs in the exercise of this power it must offer
reparation to its victims. Not doing so would be breaking a covenant that is
the bedrock of a democracy.