DELHI DOMESTIC WORKING WOMEN'S FORUMversusUNION OF INDIA AND ORS.

A           DELHI DOMESTIC WORKING WOMEN'S FORUM
                                        v.
                        UNION OF INDIA AND ORS.

                              OCTOBER 19, 1994

B                [M.N. VENKATACHALIAH, CJ!, S. MOHAN
                        AND S.B. MAJMUDAR, JJ.)

          Constitution of Indi~Article 32-National Commission for Women
    Act, 199()-Section J()-Crimes against Women-Sexual assault of domestic
C   servants-Need for provision of rehabilitatory and compensatory justice for
    women-National Commission for Women to draft such a scheme-Broad
    parameters in assisting victims of rape-Suggested.

          Indian Penal Code, 186()-Sections 376 B & 341-Rape Cases--Defects
    of existing criminal system-Broad parameters in assisting victims of rape
D   indicated.

         This public interest litigation had been filed at the instance of the
 • petitioner Delhi Domestic Working Women's Forum to espouse the
   pathetic plight of four domestic servants belonging to tribal areas who
E were subjected to indecent sexual assault by Anny personnel while travell·
   ing in a train. The first information report for offences under Section 376
   B r/ws 341 IPC was registered. Petitioner submitted that an appropriate
   scheme should be framed to provide compensation and rehabilitation to
   the victims of such crimes of violence. It was prayed that the National
   Commission for Women must be called upon to engage themselves in the
F exercise of drafting such a scheme.

          Opposing this, the respondent stated that considering the functions
    of the National Commission set out in Chapter Ill of the National Com·
    mission for Women Act, 1990, the prayer that the commission must engage
G   themselves in framing appropriate schemes and measures was beyond the
    mandate given to the National Commission.

          Disposing of the matter, this Court

          HELD : 1.1. It is rather unfortunate that in recent times, there has
H been an increase of violence against women causing serious concern. Rape
                                       528
                   WORKING WOMEN'S FORUM v. U.0.1.                          529
 does indeed pose a series of problems of the criminal justice system. There A
 are cries for harshest penalties, hut often times such cries eclipse the real
 plight of the victim. Rape is an experience which shakes the foundations
 of the lives of the victims. In addition to the trauma of the rape itself,
 victims have had to suffer further agony during proceedings. (534-E-F]

       1.2. Considering the defects of the existing criminal system, mainly        B
 that complaints are handled roughly and are not given such attention as
 is warranted; the victims, more often than not, are humiliated by the
 police; the victims have invariably found rape trials a traumatic ex-
 perience; the experience of giving evidence in Court has been negative and
 destructive; the victims often say, they considered the ordeal to be even         C
 worse than the rape itself; undoubtedly, the Court proceedings added to
 and prolonged the psychoiogical stress they had to suffer as a result of the
 rape itself; it is necessary to indicate the broad parameters in assisting the
 victims of rape. These are : [534-G-H, 535-H]

         (1) The Complaints of _sexnal assault cases should be provided with       D
  legal representation. It is important to have some one who is well-ac-
. quainted with the criminal justice system. The role of the victim's advocate
  would not only be to explain to the victim the nature of the proceedings, to
  prepare her. for the case and to assist her in the police station and in Court
  but to provide her with guidance as to how she might obtain help of a            E
  different nature from other agencies, for example, mind counselling or
  medical assistance. It is important to secure continuity of assistance by
  ensuring that the same person who looked after the complainant's interests
  in the p_olice station represent her till the end of the case. (536-A-B]

        (2) Legal assistance will have to be provided at the police station        F
 since the victim of sexual assault might very well be in a distressed state
 upon arrival at the police station, the guidance and support of a lawyer at
 this stage and whilst she was being questioned would be of great assistance
 to her. [536-C]
                                                                                   G
       (3) The police should be under duty to inform the victim of her right
 to representation before any questions were asked of her and that the
 police report should state that the victim was so informed. (536-D]

       (4) A list of advocates willing to act in these cases should be kept at
 the police station for victims who did not have a particular lawyer in mind H
    530                  SUPREME COURT REPORTS [1994] SUPP. 4S.C.R.

A or whose own lawyer was unavailable. [536-E)
          (5), The advocate shall be appointed by the court, upon application
    by the police at the earliest convenient moment, but in order to ensure that
    victims )vere questioned without undue delay, advocates would be
    authoris*d to act at the police station before leave of the Conrt was sought
B   or obtained. [536-F)

          (6) In all rape trials anonymity of the victim most be maintained, as
    far as necessary. [536-G]

          (7) It is necessary, having regard to the Directive Principles con·
C   tained under Article 38(1) of the Constitution of India to set up Criminal
    Injuries Compensation Board. Rape victims frequently incur snbstantial
    financial loss. Some for example, are too traumatised to continue in
    employment. [536-H)

D         (8) Compensation for victims shall be awarded by the Court on
    conviction of the offender and by the Criminal Injuries Compensation
    Board whether or not a conviction has taken place. The Board will take
    into account pain, suffering and shock as well as loss of earnings doe to
    pregnan~y and the expenses of child birth if this occurred as a re;nlt of
    the rape. [537-B)
E
          1.3, Having regard to the provisions of section 10 of the National
    Commis$ion for Women Act, 1990, the Commission will have to evolve snch
    scheme as to wipe ont the tears of such unfortunate victims. Snch a scheme
    shall be prepared within six months from the date of this judgment. There-
    upon, the Union of India will examine the same and shall take necessary
F
    steps for the implementation of the scheme at the earliest. [538-C]

          CRIMINAL ORIGINAL JURISDICTION : Writ Petition (Cr!.) No.
    362 of 1993.

G         (Under Article 32 of the Constitution of India.)

          R. Venkataramani and S.M. Garg for the Petitioner.

         Altaf Ahmad, Additional Solicitor Genera!, V.C. Mahajan, Krishan
    Mahajan, Ms. Anil Katiyar and S.N. Terdol, A.S. Pundir, Ms. P. Prasad
H   and N. ~dhakaran for the Respondents.
           WORKING WOMEN'S FORUM v. U.0.1. [MOHAN, J.]                  531

      The Judgment of the Court was delivered by                               A

       MOHAN, J. This public interest litigation invokes the benign
provision of Article 32 of the Constitution of India, at the instance of the
petitioner Delhi Domestic Working Women's Forum to espouse the
pathetic plight of four domestic servants who were subject to indecent         B
sexual assault by seven Army personnel.

      The incident, with a filmy background, has outclassed even the
movies. On 10th of February, 1993, six women, by name, Usha Minz,
Shanti, Josphine Kerketta, Rosy Kerketta, Nilli and Lili, domestic servants,
were travelling by Muri Express. The journey was from Ranchi to Delhi.         C
One of the victims Miss Lili described the incidence graphically as follows:

        "I was coming from my home town to Delhi by Muri Express. On
         10.2.93 at about 11.00 PM, the Muri Express was at the Khurja
        Railway Station. At that time, I along with my village girls (1) Usha D
        Minz d/o John Minz (2) Shanti d/o Siri Anuas Minz (3) Josphine
        Kerketta d/o Junus Kerketta (4) Rosy Kerketta d/o Remis Kerketta
         (5) Nilli Ross d/o Boas Minz, was travelling in SHI Coach. I slept
         at Berth No.50. Our friend, Shanti, woke up and told that some
        persons were teasing her. When I and my remaining friends got
        up, we saw that about 7/8 army 'jawan' had come near us. Then E
        we all friends got up and sat on our respective seats. Then all those
        armymen began to molest us. First they - two sikhs and 6 cleaned
        shaved men made me and my five friends sit on lower seats and
        then kissed and hughed us and lured on our body and breasts. On
        our objection they caught us from our hair and began to beat us. F
        When we tried to cry, they shut our mouths. Then they threatened
        me and my friends that in case we will make any hue and cry they
        will throw us out of the running train and will kill us. On this we
        got frightened and sat there. From these 8 army men - two sikhs
        and 6 clean shaved, one sardar and one clean shaved man forcibly G
        made me to lie down on the lower berth and on the other adjacent
        lower berth another sardar took another girl and one clean shaved
        fauji took Rossy to bath room. Two other army men made Shanti
        to lie down on the nearby seat. Another two men tried to take
        Usha and Nilli but both sat under the seat to hide themselves.
        Thereafter, first Sardar Fauji (whose name has been disclosed in H
    532                     SUPREME COURT REPORTS (1994] SUPP. 4S.C.R ..

A           the court as Dhir Singh s/o Puran Sing, PO : Dostpur, PS :
            Kalanaur, Distt: Gurdaspur (Punjab) forcibly put off my cloth and
            removed underwear, raped me. After him another clear saved fauji,
            whose face is round and height is about 5' 8" raped me. My friends,
            Shanti and Rosy were also forcibly raped by remaining army men.
            Thereaft~r, we tried to lodge a report with the police on the way,
B           but nobody listened us. When the train stopped at New Delhi
            Railway Station, then I and my friends attempted to catch these
            persons. They all got down and ran here and there. However, I
            and my friends could catch hold of aforesaid sardar Dhir Singh,
            who had raped me. We a11 caught him. In the meanwhile, some
c           persons gathered there. Some Army Officers and Policemen over-
            powered him and took him to MCO office. Then after a while they
            came in Station and handed over Shri Dhir Singh to you. Sardar
            Dhir Singh has raped me and his co11eagues have raped my
            friends.   11




D         This formed the basis of the first information report for offences
    under Section 376B read with Section 341 I.P.C. which was registered at
    the Police Station New Delhi Railway Station (Crime & Railways) as No.
    049 of 1993 at 6.35 AM. On 11th February, 1993. It appears after register-
    ing the F.I.R. the six rape victims were sent for medical check up.
E
           The members of the petitioner-Forum went in groups to all the
    addresses given by the police to meet the victims. In none of the places
    they were a11owed to meet the victims though the employers admitted
    gaining knowledge about the rape and the victims were with them. The
    petitioner-forum is very much concerned as the victims are its members,
F   to get the needed social, cultural and legal protection. Further, the victims
    are helpless tribal women belonging to the State of Bihar at the mercy of
    the employers and the police. They are vulnerable to intimidation. Not-
    withstanding the occurrence of such barbaric assault on the person and
    dignity of women neither the Central Government nor the State Govern-
G   ment has bestowed any serious attention as to the need for provision of
    rehabilitatory and compensatory justice for women. In such matters this
    Court has been affording relief. It is in this context the writ petition under
    Article 32 of the Constitution of India is moved. The grounds urged in
    support of the writ petition are as fo11ows :

H         Speedy trial is one of the essential requisites of law. In a case of this
           WORKING WOMEN'S FORUM v. U.O.l. [MOHAN, J.]                    533

character such a trial cannot be frustrated by prolongation of investigation.    A
Therefore, this Court has to spell out the parameters of expeditious con-
duct and investigation of trial; otherwise the rights guaranteed under
Articles 14 and 21 of the Constitutions will be meaningless.

      This Court ordered notice to respondent on 18.11.1993.
                                                                                 B
      A counter affidavit was filed on behalf of respondents 2 and 4 stating,
on the statement of Kumari Lili, F.I.R. No. 042/93 under Section read 376B
read with 34, Indian Penal Code, was registered. Accused Dhir Singh was
arrested and sent to judicial custody. The case report under Section 173
Cr. P.C. had been filed in the Court of Chief Judicial Magistrate, Aligarh       C
on 13.8.1993 against the accused persons, namely Dhir Singh and Mikhail
Heranj. The case is pending trial before, the District and Session Court,
Aligarh.

       It appears, apart from these two accused, others could not be iden-
tified. Two other accused, Pharsem Singh and B. Kajoor were discharged.          D
Three other police personne~ namely Head Constable Ranjeet, Constable
N aresh Singh and Constable Shiv Sarup Singh were arrested as they were
on guard duty in the Muri Express Train at the time of incident and failed
to provide necessary protection to tribal women/victims. The prosecution
is in progress and it is stated that the c..Se is likely to be committed.        E

      At one stage of the case, the Court was informed that the victims
could not be traced. This statement caused dismay in us. Therefore, a
direction was issued to the State of Uttar Pradesh to trace the victims. This
Court doubted whether the police were at all serious in this case. On our
part, we could not tolerate this nonchalant attitude. Fortunately, the victims   F
have been traced. As such we think the prosecution will go on with due
diligence and the law be allowed to take its course.

      While the matter stands thus, as to the prayer of the petitioner that
respondents 1 to 3 will have to engage themselves in framing an ap-              G
propriate scheme to provide inter alia compensation and rehabilitation to
the victims of such crimes of violence, the submissions are as under :

      The National Commission for Women is rightly engaged in the
evaluation and suggestion of changes in various legislations pertaining to
women. Yet steps are to be taken as regards framing of scheme for H
    534                   SUPREME COURT REPORTS [1994] SUPP. 4 S.C.R.

A compensation and rehabilitation to ensure justice to victims of such crimes
    of violence. Victims of such violence, by and large belong to weaker
    sections of the society. They are not in a position to secure justice through
    civil court$. No doubt, the Indian Penal Code and the Indian Evidence Act
    have beeli amended. In spite of it, victims of such violence are not able to
    get adequate remedy in securing justice. Therefore, the first respondent -
B   National Commission for Women must be called upon to engage themsel-
    ves in the exercise of drafting such a scheme and impress upon the Union
    of India to frame a scheme as early as possible.

          This stand is opposed by the third respondent. It is stated that the
C   National Commission for Women was constituted by the National Commis-
    sion for Women Act, 1990 (hereinafter referred to as 'the Act'). This Act
    came into force on 31.1.1992, as per Notification No. S.O. 99(E) dated
    31.1.1992. The functions of the Commission are set out in Chapter III of
    the Act. The prayer that the Commission must engage themselves in
D   framing appropriate schemes and measures is beyond the mandate given
    to the Nadonal Commission for Women.

          We have given our careful consideration to the above. It is rather
    unfortunate that in recent times, there has been an increase of violence
    against women causing serious concern. Rape does indeed pose a series of
E   problems for the criminal justice system. There are cries for harshest
    penalties, but often times such cries eclipse the real plight of the victim.
    Rape is an experience which shakes the foundations of the lives of the
    victims. For many, its effect is a long-term one, impairing their capacity for
    personal relationships, altering their behaviour and values and generating
F   endless fear. In addition to the trauma of the rape itself, victims have had
    to suffer further agony during legal proceedings.

            We will only point out the defects of the existing system. Firstly,
    complaints are handled roughly and are not given such attention as is
    warranted; the victims, more often than not, are humiliated by the police.
G   The victim$ have invariably found rape trials a traumatic experience. The
    experience of giving evidence in Court has been negative and destructive.
    The victim$ often say, they considered the ordeal to be even worse than
    the rape itself. Undoubtedly, the Court proceedings added to and
    prolonged lhe psychological stress they had to suffer as a result of the rape
H   itself. As stated in 'Modern Legal Studies', Rape and the Legal Process by
          WORKING WOMEN'S FORUM v. U.0.1. [MOHAN, J.]                   53)

Jennifer Temkin, 1987 Edition, page 7 :                                        A

        "It would appear that a radical change in .the attitude of defence
        counsel and judges to sexual assault is also required. Continuing
        education programmes for judges should include ·re-education
        about sexual assault. Changes in the s11bstantive law might also be
        helpful in producing new ways of thinking about this type of crime."   B

        Kelly writs :

           11
             The most common cries were for more compensation and
        personal treatment from police officers. Victims remarked that,        C
        while they recognised officer had many cases to handle, they felt
        the officers did not seem sufficiently concerned with their par-
        ticular case and trauma," Shapland concludes :

             "The changes in the criminal justice system necessary to ap-
        proximate more closely to the present expectations of victims are D
        not major or structural. They are primarily attitudinal. They involve
        training the professional participants in the criminal justice system
        that the vic.tim is to be treated courteously, kept informed and
        consulted about all the stages of the process. They involve treating
        the victim as a more equal partner ....... This might include a shift E
        in working practices of the professional participants that might
        initially appear to involve more work, more difficulty and more
        effort, but paradixically may result in easier detection, a higher
        standard of prosecution evidence and fewer cases thrown out at
        court."
                                                                               F
     O'Reilly stresses the attitudinal training thus :

        'We. are now victim-oriented and have taken an active role in
        getting the entire helping network-lawyers, doctors, nurses, social
        workers, rape crises centre workers-to talk and to interact G
        together ..... We are then in a position to concentrate fully on the
        primary goal that unites us all-helping victims of sexual assault to
        get their lives back together."

     In this background, we think it necessary to indicate the broad
parameters in assisting the victims of rape.                         H
    536                   SUPREME COURT REPORTS (1994] SUPP. 4 S.C.R.

A         (1) The complainants of sexual assault cases should be provided with
              legal representation. It is important to have some one who is
              well-acquainted with the criminal justice system. The role of the
              victim's advocate would ~ot only be to explain to the victim the
              nature of the proceedings, to prepare her for the case and to
              assist her in the police station and in Court but to provide her
B
              with guidance as to how she might obtain help of a different
              nature from other agencies, for example, mind conselling or
              medical assistance. It is important lo secure continuity of assis-
              tance by ensuring that the same person who looked after the
              complainant's interests in the police station represent her till the
c             end of the case.

          (2) Legal assistance will have to be provided at the police station
              since the victim of sexual assault might very well be in a distressed
              state upon arrival at the police station, the guidance and support
              of a lawyer at this stage and whilst she was being questioned
D             would be of great assistance to her.

          (3) The police should be under a duty to inform the victim of her
              right to representation before any questions were asked of her
              and that the police report should stage that the victim was so
E             informed.

          ( 4) A list of advocates willing to act in these cases should be kept
               at the police station for victims who did not have a particular
               lawyer in mind or whose own lawyer was unavailable.

F         (5) The advocate shall be appointed by the court, upon application
              by the police at the earliest convenient moment, but in order to
              ensure that victims were questioned without undue delay, advo-
              cates would be authorised to act at the police station before leave
              of the Court was sought or obtained.
G         (6) In all rape trials anonymity of the victim must be maintained, as
              far as necessary.

          (7) It is necessary, having regard to the Directive Principles con-
              tained under Article 38(1) of the Constitution of India to set up
H             Criminal Injuries Compensation Board. Rape victims frequently
          WORKING WOMEN'S FORUM v. U.0.1. [MOHAN, J.]                    537

         incur substantial financial loss. Some for example, are too            A
         traumatised to continue in employment.

     (8) Compensation for victims shall be awarded by the Court on
         conviction of the offender and by the Criminal Injuries Compen-
         sation Board· whether or not a conviction has taken place. The
         board will take into account pain, suffering and shock as well as      B
         loss of earnings due to pregnancy and the expenses of child birth
         if this occured as result of the rape.

      On this aspect of the matter we can usefully refer to the following
passage from 'The Oxford handbook of Criminlogy' ( 1994 Edn.) at pages          C
1237-38 as to the position in England :

            "Compensation payable by the offender was introduced in the
        Criminal Justice Act 1972 which gave the Courts powers to make
        an ancillary order for compensation in addition to the main penalty
        in cases where 'injury', loss, or damage' had resulted. The criminal    D
        Justice Act 1982 made it possible for the first time to make a
        compensation order as the sole penalty. It also required that in
        cases where fines and compensation orders were given together,
        the payment of compensation should take priority over the fine.
        These developments signified a niajor shift in penological thinking,    E
        reflecting the growing importance attached to restitution and
        reparation over the more narrowly retributive aims of conventional
        punishment. The Criminal Justice Act 1988 furthered this shift. It
        required courts to consider the making of a compensation order
        in every case of death, injury, loss or damage and, where such an
        order was not given, imposed a duty on the court to give reasons        F
        for not doing so. It also extended the range of injuries eligible for
        compensation. These new requirements mean that if the court fails
        to make a compensation order it must furnish reasons. Where
        reasons are given, the victim may apply for these to be subject to
        judicial review....                                                     G
           The 1991 Criminal Justice Act contains a number or provisions
        which directly or indirectly encourage an even greater role for
        compensation. 11

      Section 10 of the Act states that the National Commission for             H
    538                   SUPREME COURT REPORTS [1994) SUPP. 4S.C.R.

A   Women shall perform all or any of the following functions namely ;

          (a) investigate and examine all matters relating to the safeguard
              provided for women under the Constitution and other laws.

          (b) call for special studies or investigations into specific problems or
B             situations arising out of discrimination and atrocities against
              women and identify the constraints so as to recommend strategies
              for their removal.

          Having regard to the above provisions, the third respondent will have
    to evolve such scheme as to wipe out the tears of such unfortunate victims.
C   Such a scheme shall be prepared within six months from the date of this
    judgment. Thereupon, the Union of India, will examine the same and take
    necessary steps for the implementation of the scheme at the earliest.

          The writ petition is disposed of subject to above directions.

D A.G.                                                      Petition disposed of.