Supreme Court of India
MOHD. HAROON & ORS.versusUNION OF INDIA & ANR.
- Citation
- 2014 INSC 210
- Decided
- 26 March 2014
- Disposal
- Disposed off
- Bench
- P SATHASIVAM
Holding
The Court held that the State's Special Investigation Cell is sufficient and declined to order a CBI or SIT investigation, but directed the State to provide compensation, relief, and rehabilitation to victims and to take stringent measures against negligence.
Summary
The Supreme Court examined a series of writ petitions filed under Article 32 seeking protection and relief for victims of the September 2013 Muzaffarnagar communal riots, including compensation for rape victims and accountability for the State's failure to prevent the violence. The Court found the State government negligent for not anticipating the riots despite intelligence inputs and directed extensive relief, rehabilitation, and compensation measures, including a Rs.5 lakh payment to each rape victim under Section 357A of the CrPC. It held that the Special Investigation Cell (SIC) constituted by the State was sufficient and declined to order a CBI probe or constitute a Special Investigation Team (SIT), emphasizing that such extraordinary powers must be exercised sparingly. The Court also ordered the State to provide security cover to rape victims, to pursue arrests, cancel bail where appropriate, and to compensate victims for loss of life, injury, and property. Finally, the Court disposed of all the petitions, issuing detailed directions for implementation and allowing aggrieved parties to approach the Court after exhausting district remedies.
Issues considered
- Whether the investigation into the Muzaffarnagar riots should be transferred to the CBI or a SIT constituted from outside Uttar Pradesh.
- Whether the State is liable to pay compensation to rape victims and other victims under Section 357A of the CrPC.
- Whether the State government was negligent in preventing the communal violence.
- Whether the relief and rehabilitation measures ordered by the Court are adequate and enforceable.
- Whether officers responsible for maintaining law and order can be held liable irrespective of their status.
Legislation cited
- Arms Acts. 25
- Code of Criminal Procedures. 154, s. 161, s. 164, s. 166A, s. 357, s. 357A, s. 82, s. 83
- Criminal Law Amendment Act (7th)
- Indian Evidence Act, 1872s. 114A
- Indian Penal Code, 1860s. 120B, s. 147, s. 148, s. 149, s. 153A, s. 326A, s. 376, s. 3760, s. 376D, s. 420, s. 66A
- National Security Act
Subjects
Muzaffarnagar riotscommunal violenceArticle 32Section 357Arape compensationSpecial Investigation CellCBISITrelief campsrehabilitationstate negligencelaw and order
Judgment
[2014] 4 S.C.R. 907
MOHD. HAROON & ORS. A
v.
UNION OF INDIA & ANR.
(Writ Petition (Criminal) No. 155 of 2013)
MARCH 26, 2014
B
[P. SATHASIVAM CJI., RANJANA PRAKASH DESAI
AND RANJAN GOGOi , JJ.]
RIOTS:
c
Muzaffarnagar riots - Communal tension wrecking lives
of a large number of people - Writ petitions seeking for an
inclusive protection for each victim whose fundamental rights
have been infringed in the said riot - Held: When the incidents
of communal disturbance flared up, it was expected by the 0
State intelligence agencies to apprise the State Government
and the District Administration in particular, to prevent such
communal violence - Prima facie, the State government is
responsible for being negligent at the initial stage in not
anticipating the communal violence and for taking necessary E
steps for its prevention - In these matters, from time to time
various interim orders have been passed by the Supreme
Court for monitoring the situation at the place of incident - On
directions of the Supreme Court, the State Government has
made arrangements in relief camps for medical facilities,
sanitation, tents, items of daily use, cloths, financial assistance F
to the wounded and the families of deceased persons and for
their resettlement and rehabilitation - State Government is
also directed to pay compensation of Rs. 5 lakhs for
rehabilitation of victims of rape - Sincere efforts shall be made
to apprehend all the accused of murders irrespective of G
political affiliation and produce them before the appropriate
court - State is directed to identify the left out injured persons
(simple/grievous}, next kin of the deceased who died in the
communal violence and settle the compensation - It is the
907 H
908 SUPREME COURT REPORTS [2014] 4 S.C.R.
A responsibility of the State Administration in association with
the intelligence agencies of both State and Centre to prevent
such recurrence of communal violence in any part of the State
- The officers responsible for maintaining law and order, if
found negligent, should be brought under the ambit of law
B irrespective of their status - The relief, not only be provided
to all needy families irrespective of their religion but it should
a/so be provided to only genuinely affected families.
Muzaffarnagar riots - Communal riots - Incidents of rapes
C - Government directed to formulate and implement policies
in order to uplift socio-economic conditions of women and
sensitization of society and police force - Victims to be paid
compensation of Rs. 5 lakhs in addition to various benefits -
Crime against women.
D INVEST/GA T/ONllNQUIRY:
Muzaffarnagar riots - Communal violence wrecking Jives
of large number of people - Brutal murders, rapes and large
scale migration taken place - Writ petition under Article 32 -
E Prayer for transfer of investigation to CBI or SIT - Held: Such
an order cannot be passed as a matter of routine or merely
when some a/legations are leveled against the local police -
This extraordinary power must be exercised sparingly,
cautiously and in exceptional situations where it becomes
necessary to provide credibility and instill confidence in
F
investigation - Based on various interim orders in the instant
writ petitions, the State Government had constituted a Specia/-
1nvestigation Cell (SIC) - Details furnished by the State
showed that after constitution of SIC, it inquired about all those
persons who had fled from their villages and had taken refuge
G in various relief camps and noted their problems by taking
list of such persons staying in camps - In the light of steps
taken by State, there is no need to either constitute SIT or
entrust investigation to the CBI.
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 909
CRIME AGAINST WOMEN: A
Victim Compensation in Rape Cases - Held: No
compensation can l)e adequate nor can it be of any respite
for the victims but since it is on account of failure of the State
that such incidents take place, the State is duty bound to 8
provide compensation, which may help in victims'
rehabilitation - In 2009, a new s.357A was introduced in the
Code which casted a responsibility on the State Governments
to formulate Schemes for compensation to the victims of
crime in coordination with the Central Government whereas, C
previously, s.357 ruled the field which was not mandatory in
nature and only the offender could be directed to pay
compensation to the victim under this Section - Under the
new s. 357A, the onus is put on the District Legal Service
Authority or State Legal Service Authority to determine the
quantum of compensation in each case. D
CONSTITUTION OF IND/A, 1950:
Articles 32, 226 - Scope of - Held: Despite wide powers
conferred by Articles 32 and 226, while passing any order, the E
Courts must bear in mind certain self-imposed limitations on
the exercise of these constitutional powers - The very
plenitude of the power under the said articles requires great
caution in its exercise - Insofar as the question of issuing a
direction to CBI to conduct investigation in a case is
F
concerned, although no inflexible guidelines can be laid down
to decide whether or not such power should be exercised but
such an order is not to be passed as a matter of routine or
merely because a party has levelled some a/legations
against the local police - This extraordinary power must be
exercised sparingly, cautiously and in exceptional situations G
where it becomes necessary to provide credibility and instill
confidence in investigations or where the incident may have
national and international ramifications or where such an order
may be necessary for doing complete justice and enforcing
the fundamental rights - Otherwise CBI would be flooded with H
910 SUPREME COURT REPORTS [2014] 4 S.C.R.
A a large number of cases and with limited resources, may find
it difficult to properly investigate even serious cases and in
the process lose its credibility and purpose with unsatisfactory
investigations.
An incident of violence took place on 27.08.2013
8
between two communities in Muzaffarnagar in which
three youths were killed from both the sides. On
07.09.2013, a Mahapanchayat was organized by the Jat
community to oppose the said incident. Thereafter
communal riot erupted in Muzaffarnagar and its adjoining
C rural areas.
Several writ petitions were filed under Article 32
seeking for an inclusive protection for each victim whose
fundamental rights have been infringed in the said riot and
D for seeking direction to the State and Central Government
to provide adequate security forces to take all necessary
measures to stop the genocide and to prevent further
communal violence; to order a CBI inquiry into the whole
incident; to constitute Special Investigation Team (SIT)
E headed by impartial experts of criminal investigation from
the States other than Uttar Pradesh to investigate the
incidents; to ensure proper and adequate rehabilitation
of the victims whose houses have been burnt, properties
got damaged and to provide immediate temporary
F shelters/transit camps, food and clothing; to issue
direction to lodge FIR against all persons including the
government officials who were responsible for failure to
maintain the law and order within time; to direct to pay
ex-gratia relief of Rs. 25,00,000/- each to the kin of the
G deceased and Rs. 5,00,000/- each to the injured from the
Prime Minister's Relief Fund as well as from the corpus
of the State Government; to direct the State Government
to take stern action against the persons responsible for
rape and other heinous offences and also to provide
H rehabilitation of the victims and to appoint an
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 911
independent Commission apart from the one constituted A
by the State Government for impartial inquiry into the
incidents.
The grievances of the petitioners was that in the
remote villages more than 40,000 persons have migrated
under threat; that many thousand persons including B
infants, children, women and elderly were without food
and shelter in various villages and no faciliti~~ were being
made available by the administration;/ that on the
pressure of the other groups, innocent psrsons were
being picked up and named in FIR without conducting C
any inquiry and are being arrested for none of their faults
and the State has failed in its duty to ensure the security
in the area; and that the failure on part of State Police has
resulted in several rapes during the said communal riots.
Disposing of the writ petitions, contempt petitions, D
Transferred case, transfer petition, special leave petition,
the Court
HELD: 1.1. From time to time during hearing of the
petitions, various interim orders were passed for
monitoring the situation at the place of incident. Because E
of various directions of this Court, the State Government
initiated active investigation, relief measures, both in the
camps as well as in shelter homes and provided more
provisions for food, clothes and medicines etc., which is
highlighted in the eleven Compliance Reports filed before F
this Court over the period of time. The State and Central
Government made arrangements for relief camps. A total
number of 58 camps were made functional, of which, 41
such camps were established in District Muzaffarnagar
and 17 camps in District Shamli. Medical ambulances G
with all modern facilities were deployed for a!I the camps.
Medical and paramedical staff was deployed at all the
camps to regularly conduct medical checkup in the
camps. In order to ensure proper sanitation arJ,d
cleanliness, five sweepers were deployed for each camp. H
912 SUPREME COURT REPORTS [2014] 4 S.C.R.
A To avoid epidemic, spray of pesticides and other
chemicals was ensufed. To kill mosquitoes, fogging was
carried out near relief camp at Jaula. Safe and clean
drinking water was also supplied through piped water
supply schemes, permanent tubewells installed at the
B camp sites, India Marked-II hand pumps and water
tankers from the urban local bodies situated near the
camps. Chlorine tablets were distributed in all the camps.
Though most of the camps were situated in pucca
buildings like Madarsas and Schools, makeshift tents
C were also erected in 15 camps to provide shed and
shelter. The displaced families could not bring any item
of daily use with them, hence, two steel plates, two steel
glasses, one medium size dari, two bed sheets, one
bucket, one mug, one towel, milk powder, biscuit packets
o. were provided to each and every family in the camps.
Clothes to women and children were also distributed in
camps. In addition to that, two toilet soaps, two washing
soaps, one tooth paste and kerosene oil etc. were
provided to the families living in the camps. A large
number of villagers fled from their houses out of fear
E leaving behind their cattle and animals. The Animal
Husbandry Department was directed to provide fodder to
such cattle with the help of voluntary organizations.
[Paras 29, 30) [940-E-F, G-H, 941-A, 942-G-H, 943-A, 944-
G-H; 945-A-E, G)
F
1.2. Financial Assistance has been also given by
Government of Uttar Pradesh to the wounded and the
families of deceased persons. Financial Assistance has
been also given by Government of India to the wounded
and the families of deceased persons. The State
G Government decided to give employment to one member
of the family of the deceased persons according to his
or her qualification. Confidence buildings measures were
taken. Meetings with important and effective persons
from both the communities were organized in which one
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 913
community had ass1:1red the safety and security of the A
other. Peace Committees were constituted and their
meetings were organized at the Block, Tehsil and District
levels. Senior officers like District Magistrate,
Superintendent of Police, ADM, ASP, SOM, Circle Officer
and other functionaries from the Revenue and police B
departments participated along with the Village Pradhans
and important public persons from all the communities.
Teams of officers were sent from Districts of Meerut and
Baghpat to convince and take the persons living in the
camps who belonged to the villages of these districts. To c
ensure the safety and building a feeling of confidence
among those returning to the villages, para-miliatry forces
were deployed in those villages. Families displaced from
6 villages in Muzaffarnagar, i.e., Fugana, Kutaba, Kutbi,
Kakda, Mohammadpur Raisingh and Mundbhar and 3
0
villages in Sham Ii, i.e., Lisadh, Lank and Bahavadi have not
agreed to return to their native villages even after
confidence building measures and serious persuasion.
/
Their decision was found to be justified largely based on
the fear emanating from the kind of incidents of murders
and arson that had happened in these villages during the E
violence that broke out on 7th and 8th September, 2013.
The State Government, by its order dated 26.10.201. 3, has
decided to give a lumpsum grant of Rs. 5 lacs per family
for their resettlement and rehabilitation. In addition to this,
13 families in Muzaffarnagar have been given part payment F
of Rs.2 lacs each incurring Rs.26 lacs. Thus, 1644 families
have been paid till date and an amount of Rs.81.81 crores
has been spent for their resettlement and rehabilitation.
Assessment was done for damage to the uninsured
movable and immovable property during the riots. Efforts G
were made to assess the loss by a team of qualified
persons in the presence of victims. Photography and
videography was also done during the process. A total
amount of Rs. 349.44 lacs has been paid as compensation
for the loss of uninsured movable and immovable property H
914 SUPREME COURT REPORTS [2014] 4 S.C.R.
A loss in 3 districts. By G.O. dated 18.02.2014 issued by the
Home Secretary, Government of U.P., it has been decided
that the State Government would provide further
compensation of Rs. 3 lakhs in addition to the
compensation already provided to the relatives of the
B deceased and a compensation of Rs. 2 lakhs to the
parents of the deceased children below 5 years of age who
died in the relief camps. [Para 30-32] [946-A, 948-C, H, 949-
F-H, 950-A, F-G, 951-E-G, 952-C, G, 953-B-C]
2. Regarding the stand of the petitioners that many
C false accused were shown as culprits, the State has filed
a detailed note wherein it was stated that a total number
of 566 cases were being investigated by the Special
Investigation Cell (SIC) and it was found that many cases
were false and many persons have been wrongly named
o in FIRs. The State pointed out that names of all such
persons, viz., 549 persons, have been removed. Till now,
48 registered cases have been found false and the same
were either expunged or removed. Names of 69 persons
in murder cases have been found false and their names
E have been removed from the accused list. In addition to
the above information, the State has furnished a list of
accused found false which contains 516 persons from
Hindu community and 33 from Muslim, i.e., a total number
of 549 persons. The State has also furnished a list of
expunged cases and the persons who were wrongly
F
included. It was also observed that many persons were
named in more than one case and a calculation of all
these revealed that 3803 persons were named. Till date,
984 persons have been declared accused in investigated
G cases. Rest of the cases are under investigation. 337
accused have been arrested and 61 persons have
surrendered before the Court. 374 Non-Bailable Warrants,
195 warrants under Section 82 of the Code and 3 kurki
(attachment) warrants of Section 83 of the Code have
been issued. Charge-sheet has been filed against 238
H accused and Closure Reports have been given against
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 915
102 persons. [Paras 35, 36] [954-C-F; 955-B-C] A
3. Regarding arrest and follow-up actions, the State
has filed a list of arrested persons in communal violence
in Muzaffarnagar and adjoining areas. The list showed
the names of 308 arrested persons in the Districts of 8
Muzaffarnagar and Shamli. The State has furnished the
names and addresses of arrested accused, the date on
which they were arrested, offences under various
enactments, crime number, police station, nature of the
offence, district, etc. The State has also indicated the C
religion of the accused just to show that actions were
being taken irrespective of the caste, community or
religion. [Para 39] [956-G-H; 957-A]
4.1 Despite wide powers conferred by Articles 32 and
226 of the Constitution, while passing any order, the D
Courts must bear in mind certain self-imposed limitations
on the exercise of these constitutional powers. The very
plenitude of the power under the said articles requires
great caution in its exercise. Insofar as the question of
issuing a direction to CBI to conduct investigation in a E
case is concerned, although no inflexible guidelines can
be laid down to decide whether or not such power
should be exercised but time and again it has been
reiterated that such an order is not to be passed as a
matter of routine or merely because a party has levelled F
some allegations against the local police. This
extraordinary power must be exercised sparingly,
cautiously and in exceptional situations where it
becomes necessary to provide credibility and instill
confidence in investigations or where the incident may
have national and international ramifications or where G
such an order may be necessary for doing complete
justice and enforcing the fundamental rights. Otherwise
CBI would be flooded with a large number of cases and
with limited resources, may find it difficult to properly
H
916 SUPREME COURT REPORTS [2014] 4 S.C.R.
A investigate even serious cases and in the process lose
its credibility and purpose with unsatisfactory
investigations. [Para 75] [977-C-G]
Common Cause, A Registered Society vs. Union of India
B and Ors. (1999) 6 SCC 667: 1999 (3) SCR 1279; Secretary,
Minor Irrigation & Rural Engineering Services UP. and Ors.
vs. Sahngoo Ram Arya and Anr. (2002) 5 SCC 521; State of
West Bengal and Ors. vs. Committee for Protection of
Democratic Rights, West Bengal and Ors. (2010) 3 SCC 571 :
C 2010 (2) SCR 979 - reiied on.
4.2 It is not in dispute that subsequent to the incident
that took place on 07.09.2013 and afterwards, in and
around Muzaffarnagar, a large number of persons,
particularly, villagers from within and neighbouring
D districts, fled from their homes out of fear and took shelter
in relief camps in various villages of two districts of
Muzaffarnagar and Shamli. It is also seen that total 58
camps were made functional of which 41 camps were
established in the district Muzaffarnagar and 17 in the
E district Shamli. The incidents of communal disturbance
flared up sometimes on flimsy grounds blaming one
community to other. Whatever may be, after the
Mahapanchayat that took place on 07.09.2013, certain
incidents such as eve teasing of other community girls
F followed by murders had taken place. Further, inasmuch
as thousands of people gathered at a particular place in
order to take revenge or retaliate, it was expected 'by the
State intelligence agencies to apprise the State
Government and the District Administration in particular,
G to prevent such communal violence. Though the Central
Government even on day one informed this Court that all
necessary help, both financially and for maintaining law
and order, had been provided to the State, there is no
authoritative information to this Court whether there was
any advance intimation to the State about the communal
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 917
violence. Likewise, though the State has enumerated A
several aspects in the form of eleven compliance reports,
there was no information to this Court whether the
District Administration was sounded about the proposed
action between the two communities. Had the Central and
State intelligence agencies smelt these problems in B
advance and alerted the District Administration, the
unfortunate incidents could have been prevented. Thus,
prima facie, the State government is responsible for being
negligent at the initial stage in not anticipating the
communal violence and for taking necessary steps for its c
prevention. [Paras 78 and 79] [978-F-H; 979-A-D]
5. Based on various orders of this Court, even after
the incident, the State itself has constituted a Special
Investigation Cell (SIC). A total of 566 cases are being
·· investigated by the SIC and after noting that many cases D
were false and many persons were wrongly named in the
FIRs, 549 names have been removed. A total of 48
registered cases have been found false and have been
removed from the records. Names of 69 persons in
murder cases have been found false and those names E
have also been removed from the array of parties. The
details furnished by the State also showed that after
constitution of the SIC in September, it inquired about all
those persons who had fled from their villages and had
taken refuge in various relief camps and noted their F
problems by taking list of such persons staying in camps
and getting their mobile numbers. The SIC also recorded
the statements of the complainants and witnesses. SIC
also noted community-wise affiliation of their political
parties etc. [Para 81] [980-C-F, H; 981-A] G
6. In respect of cases of rape, the State has assured
this Court that they are taking effective steps to
apprehend all the accused and in providing security
cover to the rape victims. 50 teams of police personnel
H
918 SUPREME COURT REPORTS [2014) 4 S.C.R.
A have been constituted in order to arrest the accused
persons in rape and other cases. The State has also filed
details and progress of rape and molestation cases,
statement of rape victims under Section 164 of the Code
etc. action had been taken against 11 persons under the
B provisions of the National Security Act as well as
persons belonging to various political parties. The State
has also furnished the details regarding 24 missing
persons out of which 3 have been traced and is taking
effective steps for tracing the remaining missing persons.
c In respect of murder cases, the State has filed a separate
chart showing the list of accused persons, verification of
persons concerned who were involved, list of
surrendered accused in murder cases as well as various
other steps for apprehending the remaining accused. The
D State has also highlighted t.tiat through their public
prosecutors/ counsel, it is taking effective steps for
cancellation of bail in those heinous crimes in which
persons involved have secured bail. In the light of various
steps taken by the State, facts and figures, stattstics
supported by materials, there is no need to either
E constitute SIT or entrust the investigation to the CBI at
this juncture. However, more effective and stringent
measures are to be taken by the State administration.
[Para 82 to 85] [981-A-G]
F Directions:
7.1. Victim Compensation in Rape Cases: As a long
term measure to curb such crimes, a large societal
change is required via education and awareness. The
Government will have to formulate and implement policies
G in order to uplift the socio-economic conditions of
women, sensitization of police and other concerned
parties towards the need for gender equality and it must
be done with focus in areas where statistically there is
higher percentage of crimes against women. No
H compensation can be adequate nor can it be of any
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 919
respite for the victims but as the State has failed in A
protecting such serious violation of fundamental rights,
the State is duty bound to provide compensation, which
may help in victims' rehabilitation. The humiliation or the
reputation that is snuffed out cannot be recompensed
but then monetary compensation will at least provide B
some solace. In 2009, a new Section 357 A was
introduced in the Code which casted a responsibility on
the State Governments to formulate Schemes for
compensation to the victims of crime in coordination with
the Central Government whereas, previously, Section 357 c
ruled the field which was not mandatory in nature and
only the offender can be directed to pay compensation
to the victim under this Section. Under the new Section
357 A, the onus is put on the District Legal Service
Authority or State Legal Service Authority to determine
0
the quantum of compensation in each case. However, no
rigid formula can be evolved as to have a uniform
amount, it should vary in facts and circumstances of
each case. Nevertheless, the obligation of the State does
not extinguish on payment of compensation,
rehabilitation of victim is also of paramount importance. E
The mental trauma that the victim suffers due to the
commission of such heinous crime, rehabilitation
becomes a must in each and every case. Considering the
facts and circumstances of these cases, the victims in the
given case should be paid a compensation of Rs. 5 lakhs F
each for rehabilitation by the State Government. The State
Government is directed to make payment of Rs. 5 lakhs,
in addition to various other benefits, within 4 weeks from
today. Further, according to Section 3578, the
compensation payable by the State Government under G
Section 357 A shall be in addition to the payment of fine
to the victim under Section 326A or Section 3760 of the
IPC. [Paras 86, 87, 88 and 89) [981-H; 982-A-G]
7.2. Directions relating to rape cases: The SIC is
H
920 SUPREME COURT REPORTS [2014] 4 S.C.R.
A directed to arrest and produce before the Court all the
persons concerned in respect of petitioners in W.P. (Crl.)
No. 11 of 2014 as well as other affected victims within a
time-bound manner. They are also directed to record the
statement of the victims under Section 164 of the Code
B before a lady Magistrate even if they had made a
statement, if they desire to make additional statement, the
same may be recorded as requested. The security cover
provided to rape victims as shall continue till they desire
or completion of the trial whichever is later. The victims
C of rape are to be paid compensation of Rs. 5 lakhs each,
in addition to various other benefits, by the State
Government. The State is also directed to provide other
financial assistance as well as any other scheme
applicable to them for their betterment and to continue
their normal avocation. [Para 90] [983-D-H]
0
7.3. Directions regarding other offences including
murder: Sincere efforts shall be made to apprehend all
the accused irrespective of political affiliation and
produce them before the appropriate court. The
E particulars furnished by the State in respect of criminal
action taken against political persons shall be continued
by placing acceptable materials before the court
concerned. The reason given by the State Police that
whenever efforts were made to arrest the persons
F involved, women folk of their village form a human chain
and block the police in e.xecution of their work is
unacceptable and untenable. If there is reliable material
against a person irrespective of the community or
religion, the police have to take sincere efforts in arresting
G those persons and produce them before the court
concerned. There shall not be any let up and upon failure
on the part of the police, action will be taken against the
officers concerned. The victims or aggrieved persons are
free to move such application before the jurisdictional
H court. In respect of recovery of AK-47, 9 mm cartridges
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 921
in village Kirthal, the police have to identify the persons A
concerned and proceed against them under the
provisions of IPC and Arms Act. The investigating
authorities should eschew communal bias and proceed
against all the offenders irrespective of their caste,
community and religion. In the case of murders, the police B
must take sincere efforts to identify and arrest the real
culprits within a time-bound manner preferably within a
period of two months and report the same before the
jurisdictional court concerned. In heinous crimes,
including murder cases, if any of the real accused was c
granted bail, as assured before this Court, the District
Administration has to take effective steps for cancellation
of their bail in appropriate cases. As assured before this
Court, the persons concerned in the higher level to follow
the letters issued to various government counsel/police
0
officers/LO. for apprehending the real accused and re-
arresting the released persons by getting appropriate
orders from the court concerned. The authorities
concerned should continue to take effective steps to
locate the missing persons. [Para 90] [984-A-F, H; 985-A- E
D]
7 .4. Financial Assistance/Rehabilitation measures:
Children who died in the violence as well as in the camps
due to cold weather conditions shall be compensated to
their parents as that of others. The State is directed to F
identify the left ou~ injured persons (simple/grievous),
next kin of the deceased who died in the communal
violence and settle the compensation agreed to before
this Court (Rs. 10,00,000 + Rs. 3,00,000 + Rs. 2,00,000 =
Total Rs. 15,00,000). It is also directed to settle G
compensation for the damages caused to movable/
immovable properties of the person concerned due to the
violence if they have not already received the same. The
District Administration is also directed to implement Rani
Lakshmibai Pension Yojana to eligible persons and H
922 SUPREME COURT REPORTS [2014] 4 S.C.R.
A consider the case of persons who were left out or who
have not made any such application till this date. Any of
the victims, if need arise, may also approach the District
Legal Services Authority and the DLSAs are directed to
provide necessary help to the victims. For any reason,
B after receipt of Rs. 5 lakhs those who want to settle to
other places than the place of occurrence after change
of mind and in order to join their relatives and friends in
the village/place where they lived at the time of violence,
are permitted to resettle, in that event, the State is directed
c not to recover the amount already paid. However, the
State is free to ascertain the genuineness of those
persons concerned in their effort to resettle in the same
place. The District Administration has to make all
endeavours for their peaceful return to the same place in
order to continue the same avocation along with their
0
relatives and friends. The officers who have grievance
about their transfer on vindictive ground from the district
concerned to far away places are free to make a
representation to the competent authority within a period
E of one month from today. If any such representation is
made and if the same is acceptable, the competent
authority is directed to take a fresh decision. Adequate
compensation should be paid to the farmers who lost
their source of livelihood, namely, tractors, catties,
sugarcane crops etc. In this category, the farmers who
F were yet to get compensation for the same are permitted
to make a representation within one month from today
supported by materials to the local/district administration.
If any such representation is made, the same shall be
considered and disposed off within a period of one
G month thereafter. Finally, it is the responsibility of the
State Administration in association with the intelligence
agencies of both State and Centre to prevent such
recurrence of communal violence in any part of the State.
The officers responsible for maintaining law and order,
H if found negligent, should be brought under the ambit of
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 923
law irrespective of their status. It is important that the A
relief, not only be provided to all needy families
irrespective of their religion but it should also be
provided to only genuinely affected families. The affected
persons, if come across any impediment in implementing
the above directions, are permitted to highlight their s
grievance by filing application before this Court in the
above matters. It is made clear that only after exhaustion
of efforts with the District authorities concerned, they are
permitted to file such application in the above disposed
off matters. [Paras 90 arid 92] [985-E-H; 986-A-H; 987-A- c
D]
Case Law Reference:
1999 (3) SCR 1279 Relied on Para 73
(2002) 5 sec 521 Relied on Para 74 D
2010 (2) SCR 979 Relied on Para 75
CRIMINAL ORIGINAL JURISDICTION : Under Article 32
of the Constitution of India.
E
Writ Petition (Criminal) No. 155 of 2013.
WITH
Writ Petition (Crl.) Nos. 158, 165, 170, 171, 179, 181196, 206
of 2013, F
Writ Petition (Crl.) No. 11 of 2014.
Contempt Petition (Crl.) No. of 2014 (01372) IN
Writ Petition (Crl.) No. 155 of 2013. G
Transferred Case (Civil) Nos. 123, 124 and 125 of 2013,
Transfer Petition (Civil) Nos. 1750, 1825, 1826, 1827, 1828,
1829, 1830 of 2013.
H
924 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Special Leave Petition (Civil) No. 35402 of 2013.
L. Nageshwar Rao, ASG, V. Shekhar, S.P. Singh, Colin
Gonsalves, Pinky Anand, K.T.S. Tulsi, Brijender Singh Chahar,
Jitender Mohan Sharma, Fakhruddin, Uday U. Lalit, Gaurav
Bhatia, lrshad Ahmad, AAGs, Santosh Kumar Tripathi,
8
Birendra Kumar Choudhary, Sanjay Malik, Suresh K. Sharma,
Ravi Shankar Kumar, Arun Kumar, Vishal Malik, Dr. Vinod
Kumar Tewari, Tariq Adeeb, Jyoti Mendiratta, Amiy Shukla,
Sanjay Kumar Tyagi, Dr. Vijendra Mahndiyan, Deepak Goel,
Pallavi Awasthi, Sanjay Parikh, Aparna Bhat, P. Ramesh
C Kumar, Parul Kumari, Vidya, Gyan Kumar, Vishwa Pal Singh,
Nagendra Singh, Dr. Sanjay Gupta, Vishwa Pal Singh, V.K.
Biju, Sanchit Garga, Tasneem Ahmadi, Shadan Farasat,
Gaurav Govinda, Ravi Prakash Mehrotra, Kamini Jaiswal,
Vrinda Grover, Abhimanu Shrestha, Shri Krishna Tiwari, Shilpi
D Dey, Manohar Lal Sharma, Suman, Vipin Kumar Saxena, N.
Rajaraman, Aftab Ali Khan, Reshma Arif, M.Z. Chaudhary,
Zahid Hussain, Prashant Bhushan, Anoopam Prasad, Nizam
Pasha, B. Krishna Prasad, Ravi Prakash Mehrotra, Anuvrat
Sharma, Abhishek Choudhary, M.R. Shamshad, Garvesh
E Kabra, Pawan Shree Agarwal, Raman Yadav, Vibhu Tiwari,
Abhinav Kumar, Sudeep Kumar, Ahmed S. Azhar, Pulkit
Manuja, Pahlad Singh Sharma, Vivek Gupta, Siddharth Mittal,
Varun Punia, Shweta Sirohi, Alok Shukla for the appearing
parties Raj Kumar Kaushik, Advo.-in-person.
F
The Judgment of the Court was delivered by
P. SATHASIVAM, CJI. 1. These writ petitions and other
connected matters relate to the riots that broke out on the
fateful day of 07.09.2013. The riots erupted in and around
G District Muzaffarnagar, Uttar Pradesh as a result of communal
tension prevailing in the city, which wrecked lives of a large
number of people who fled from their hsomes out of anxiety and
fear.
H 2. It is asserted in these petitions that the communal riot
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 925
[P. SATHASIVAM, CJI.]
erupted in Muzaffarnagar, Shamli and its adjoining rural areas A
after a Mahapanchayat which was organized by the Jat
community at Nagla Mandaur, 20 kms away from
Muzaffarnagar city on 07.09.2013. In the said Mahapanchayat,
over 1.5 lakh persons from Uttar Pradesh, Haryana and Delhi
participated to oppose the incident which was occurred on B
27.08.2013 in Kawai village under Jansath Tehsil of
Muzaffarnagar because of which violence broke out between
two communities and three youths were killed from both sides
in the wake of a trivial incident which had occurred earlier and
the whole incident was given a communal colour to incite c
passion.
3. It is the claim of the petitioners herein that the local
administration instead of enforcing the law allowed the
congregation not only to take place, negligently and perhaps
with certain amount of complicity, but also failed to monitor its D
proceedings. It is asserted in the petitions that since
27.08.2013 more than 200 Muslims have been brutally killed
and around 500 are still missing in the spurt of the incident in
50 villages of the Jat community dominated areas where the
Muslim community is in minority. It is the stand of the petitioners E
that in the remote villages more than 40,000 persons have
migrated under threat and have been forcibly asked to move
out of the village otherwise they would be killed. It is further
alleged that many thousand persons including infants, children,
women and elderly are without food and shelter in various F
villages, and no facilities are being rnade available by the
administration. Besides this, huge illegal and unauthorized arms
and ammunitions have been recovered in and around
Muzaffarnagar. It is also pointed out tnat the displaced persons
of all communities are compelled to live in shelter camps where G
adequate arrangements are becoming the problem of survival.
4. Consequently, several writ petitions, under Article 32 of
the Constitution, were filed by various individuals/Supreme
Court Bar Association/NGOs seeking for an inclusive protection H
926 SUPREME COURT REPORTS [2014] 4 S.C.R.
A for each victim whose fundamental rights have been infringed
in the said riot by praying for numerous rehabilitative, protective
and preventive measures to be adhered to by both the State
and the Central Government.
5. There are various contra-allegations about the actual
B
occurrence and reasons attributed to the cause by different
community people. It is relevant to point out that an association
representing Jat community has also approached this Court ·
highlighting their stand. It is stated that on the pressure of the
other group, innocent persons are being picked up and are
c being incorporated in the FIR without conducting any inquiry and
they are being arrested for none of their faults. Thus, it is the
stand of the petitioners in this petition that the State has failed
in its duty to ensure the security in the area.
D 6. It is also pointed out that the State Government
transferred the Jat community officers alone from the districts
of Muzaffarnagar and Shamli to other parts of the State. It is
their claim that in order to remove the apprehension from the
minds of the Jal community people, it is desirable either to
E entrust the investigation to the CBI or to constitute SIT
comprising persons from outside the State of Uttar Pradesh.
They also predominantly prayed for registration of Fl Rs against
all culprits including powerful persons.
7. Similar petitions were also filed in the High Court of
F Allahabad. In view of the similarity of the issues involved in these
petitions, viz., reasons for such ·violence, rehabilitation
measures, compensation for the loss of lives and properties,
action against offenders/culprits, all the matters pertaining to
the said incidents filed in the High Court of Allahabad were
G directed to be transferred to this Court by order dated
19.09.2013.
Writ Petition pertaining to Rape Cases
8. Serious allegations have been made against the State
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 927
[P. SATHASIVAM, CJI.]
Police for not providing adequate security to women which A
resulted in several rapes being committed during the said
communal violence. The petition also highlights the inaction on
the part of State Police against the real culprits and the
indifferent attitude towards the victim's rehabilitation and
security. B
9. Rape victims (Seven) filed Writ Petition (Criminal) No.
11 of 2014 for protection of their right to life under Article 21.
All the petitioners belong to the minority community who were
brutally gang raped and sexually assaulted by men belonging
to the other communities during the communal violence in C
Muzzafarnagar and adjacent districts. It is the assertion of the
petitioners in this petition that their homes were destroyed and
they were rendered homeless with no roof over their heads, they
lost their earnings and it has become difficult for them to take
care of their children and themselves. D
10. It is further pleaded that due to the stigma attached to
the victims of sexual violence, the agony of gang rape and
looming fear of future assault, the petitioners were unable to
promptly report the crime of gang rape committed against them. E
It is the stand of the petitioners that they had been displaced
from their villages, namely, village Fugana and village Lakh,
hence, they could not go to the police station to lodge the
complaint of gang rape. It was further submitted that in these
circumstances, the delay on the part of the petitioners in lodging F
FIR is reasonable and does not, in any way, impact on the
veracity of their complaints'of gang rape.
11. It is further stated by the petitioners that after
registration of FIR under Section 154 of the Code of Criminal
Procedure, 1973, (in short 'the Code') and recording of G
statements under Section 161, the law prescribes that under
Section 164(5A) of the Code, for all sexual offences including
crime of rape, the police shall have the statement of the woman
against whom the offence has been committed recorded before
a Judicial Magistrate as soon as the commission of offence is H
928 SUPREME COURT REPORTS [2014) 4 S.C.R.
A brbught to the notice of the police. It is stated that even though
Petitioner Nos. 1, 3, 4, 5 and 6 had lodged the FIRs in
September, 2013 and Petitioner No. 2 had lodged the FIR in
early October, 2013, the police deliberately and with mala fide
intention dragged the investigation. Their statements under
s Section 164(5A) of the Code were recorded as late as in
December, 2013 after the delay of almost three months.
12. It is also highlighted that Section 164A of the Code
provides for medical examination of the rape victim and casts
a statutory duty upon the police to send the woman making the
C complaint of rape to a registered medical practitioner within
twenty four hours from the time of receiving information
regarding the commission of such an offence. In the case of
the petitioners, in direct contravention of this legal provision, the -
police knowingly delayed their medical examination. The
D petitioners are all married women having children, hence, their
medical examination almost 20-40 days after the incidents of
gang rape is unlikely to ·provide any perpetrated evidence. It is
further pointed out that the petitioners were gang raped on
08.09.2013 whereas the medical examination was conducted
E between 29.09.2013-18.10.2013.
13. In the case of Petitioner No. 7, in spite of specific
information, there is no reason as to why FIR was not
registered. It was only during the hearing before this Court, on
F 13.02.2014, when the counsel for Petitioner No.7 handed over
the copy of the complaint to the counsel for the State, an FIR
was registered on 18.02:2014
14. Further, it is the grievance of the petitioners that Fl Rs
of all the petitioners were registered under Section 3760 of the
G Indian Penal Code, 1860 (in short 'the IPC') a specific provision
relating to gang rape. Though Section 376(2)(g) of the IPC is
squarely applicable to the crimes of gang rape that have been
committed against the petitioners during the communal violence
in September, 2013, the police has specifically omitted to
H include Section 376(2)(g) of the IPC in order to dilute the case
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 929
[P. SATHASIVAM, CJI.]
of the petitioners and to exclude the legal presumption that the A
law raises through Section 114A of the Indian Evidence Act,
1872 in favour of the petitioners. Therefore, the petitioners
submitted that biased and motivated investigation by the police
is clear and manifest and done with the sole purpose of
shielding the accused. B
'
15. It is further submitted that though Petitioner Nos. 1-6
named total 22 men as accused in six FIRs, only in February
2014, one accused, namely, Vedpal, who was named in FIR
No. 120 of 2013 was arrested. Even after lapse of four and a
half months, 21 named as accused by the petitioners of the C
heinous crime of gang rape during communal violence roam
free. Neither those persons were arrested nor any proceedings
have been initiated under Section 83 of the Code. The
petitioners claimed in the petition that the accused are roaming
free and enjoying the support of dominant community, Khap D
Panchayat, political parties and besides because of their
closeness, they are also intimidating the victims. Thus, it is the
stand of the petitioners that unless the police give protection
to the victims and witnesses, it would be impossible for them
to depose against the persons involved in the gang rape. E
16. The petitioners have also disputed the claim of the
State in disbursing compensation. It was asserted that they
were not paid compensation much less the adequate
compensation. Further, a prayer was made for transfer of cases
of gang rape outside the State of U.P. in the larger interest of F
the society and .in order to ensure fair investigation, prosecution
and trial of the cases relating to Petitioner Nos. 1 to 7. Finally,
they asserted in the petition that if the investigation is not
transferred to SIT comprising the officers of integrity from the
States other than U.P., there cannot be justice for sexual G
violence suffered by them due to inaction on the part of the State
of U.P.
Details Regarding Petitions:
17. On the whole, the following writ petitions/intervention H
930 SUPREME COURT REPORTS [2014) 4 S.C.R.
A applications/special leave petition pertaining to the aforesaid
incidents, have been filed in this Court:
(a) Writ Petition (Crl.) Nos. 155, 158, 165, 170, 171,
179, 181 196, 206 of 2013 and Writ Petition (Crl.)
No. 11 of 2014
B
(b) Crl. M.P. Nos. 19442, 20245, 20247, 26156,
24202, 26705, of 2013 in Writ Petition (Crl.) No.
155 of2013 and Crl. M.P. Nos. 1516-1518 of2014
in Writ Petition (Crl.) No. 155 of 2013, Crl. M.P. No.
c 19878 of 2013 in Writ Petition (Crl.) No. 165 of
2013, Crl. M.P. Nos.19971, 20460 of 2013 in Writ
Petition (Crl.) No. 158 of 2013, Crl. M.P. Nos. 1523
of 2014, 2965-2966 of 2014 in Writ Petition (Crl.)
No. 170 of 2013, Crl. M.P. No. 23077 of 2013 in
D Writ Petition (Crl.) No. 171 of 2013, Crl. M.P. Nos.
24192 of 2013 in Writ Petition (Crl.) No.179 of
2013, Crl. M.P. No. 1124 of 2014 in Writ Petition
(Crl.) No. 179 of 2013, Crl. M.P. No. 1895 of 2014
in Writ Petition (Crl.) No. 11 of 2014 and Crl. M.P.
E No ......... of 2014 in Writ Petition (Crl.) No. 155 of
2013
(c) Contempt Petition (Crl.) No ........... of 2014
(01372) in Writ Petition (Crl.) No. 155 of 2013
F (d) Special Leave Petition (Civil) No. 35402 of 2013
18. Apart from the above matters, we were also called upon
to deal with the following cases from the High Court of
Allahabad:
G (a) Transferred Case (Civil) Nos. 123, 124 and 125 of
2013
(b) Transfer Petition (Civil) Nos. 1750, 1825, 1826,
1827, 1828, 1829, 1830 of 2013
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 931
[P. SATHASIVAM, CJI.]
Reliefs and Directions: A
19. The reliefs and directions sought for in these matters
are broadly classified as follows:
(a) Firstly, to direct the Union of India/Ministry of Home
Affairs and State Government to provide adequate B
security forces to take all necessary measures to
stop the genocide and to prevent further communal
violence.
(b) Secondly, to order a CBI Inquiry into the whole c
incident.
(c) Thirdly, to constitute Special Investigation Team
(SIT) headed by impartial experts of criminal
investigation from the States other than Uttar
Pradesh to investigate the incidents having taken D
place from 27.08.2013 to 08.09.2013 in
Muzaffarnagar and adjoining districts.
(d) Fourthly, to ensure proper and adequate
rehabilitation of the victims whose houses have E
been b.urnt, properties got damaged and to provide
immediate temporary shelters/transit camps, food
and clothing.
(e) Fifthly, to issue direction to lodge FIR against all
F
persons including the government officials who are
responsible for failure to maintain the law and order
within time.
(f) Sixthly, to direct to pay ex-gratia relief of Rs.
25,00,000/- each to the kin of the deceased and G
Rs. 5,00,000/- each to the injured from the Prime
Minister's Relief Fund as well as from the corpus
of the State of Uttar Pradesh.
(g) Seventhly, to direct the State Government to take H
932 SUPREME COURT REPORTS [2014] 4 S.C.R.
A stern action against the persons responsible for
rape and other heinous offences and also to
provide rehabilitation of the victims and
(h) Lastly, to appoint an independent Commission
apart from the one constituted by the State
B
Government for impartial inquiry into the incidents
and submit a report for prevention of such incidents
in future and rehabilitation measures for victims.
20. The prayers sought for by the petitioners in the
C aforesaid petitions are all in one way or other seeking for
enforcement of fundamental rights guaranteed under the
Constitution and it is the Constitutional obligation of this Court
to intervene and admonish such violation of human rights and
issue appropriate orders for rehabilitation while simultaneously
D issuing directions to ensure that no recurrence of this nature is
witnessed by this country in times to come.
Interim monitoring ord(!rs issued by this Court:
21. On 12.09.2013, this Court, on going through various
E allegations levelled in the petitions, took on board the Writ
Petition (Crl.) No. 155 of 2013 and the connected matters for
examining the issues. Even at the preliminary hearing, Mr. Ravi
P. Mehrotra, then standing counsel, accepted notice on behalf
of the State of U.P. and its officers. After hearing the arguments
F of Mr. Gopal Subramanium and Mr. M.N. Krishnamani, learned
&enior counsel for the petitioners as w,ell as Dr. Rajeev
Dhawan, then learned senior counsel for the State of U.P., this
Court issued the following directions:
G "On going through various allegations levelled in the writ
petitions, we are inclined to examine the matter. At
present, we direct the State of U.P. in association with the
Central Government to take immediate steps and take
charge of all persons, who are stranded without food and
water and set up relief camps providing all required
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 933
[P. SATHASIVAM, CJI.]
assistance. It is also directed to ensure that all stranded A
are taken to places of safety and are given minimum
amenities of food and water and to make adequate
arrangements for their stay, till rehabilitation and restoration
takes place in their respective places. It is further directed
to provide necessary medical treatment to all wounded and B
needy persons and also while lifting them to hospitals,
either at Meerut or Roorkee, if required hospitals at Delhi
or any other suitable places.
The State of U.P., as well as the Central Government, C
is directed to file the compliance reports by their senior
officers on the next date of hearing.
Learned counsel for the parties are permitted to file
additional documents.
D
List on Monday (16.09.2013) at 2.00 p.m."
22. Again, when this batch of cases was listed on
19.09.2013, after hearing counsel for the petitioners as well as
the respondent-State, this Court, in the interest of justice and
in view of the fact that this Court is monitoring the entire incident, E
directed that all cases pending on the file of the High Court at
Allahabad be transferred to this Court and further made it clear
that if there is any grievance pertaining to the aforesaid incident,
they are free to approach this Court for necessary relief/
directions. Further, this Court issued the following directions: F
" ... Though, Mr. Gopal Subramanium, learned senior
counsel appearing on behalf of the petitioners in W.P.(Crl.)
No. 155 of 2013 after taking us through the compliance
report/affidavits filed by Respondent Nos. 1 and 2 G
submitted that the steps taken by the said respondents are
inadequate, however, it cannot be claimed that they have
not taken effective steps. However, on going through the
details mentioned in the respective affidavits as well as the
reply filed by the petitioners, we direct both the
H
934 SUPREME COURT REPORTS [2014] 4 S.C.R.
A respondents viz., Union of India and State of U.P. to
provide the required assistance/facilities as directed in our
order dated 12.09.2013.
During the course of hearing, learned Attorney
General apart from reiterating the stand taken in their
B
affidavit assured this Court that the Government of India
is fully committed to provide all required financial
assistance as well as security measures for the immediate
and permanent relief to the stranded and affected persons.
c Dr. Rajeev Dhawan, learned senior counsel
appearing for the State of U.P., after taking us through the
various steps taken by them also assured this Court that
apart from the steps taken by the State, they are taking
further steps for providing food, water, shelter and
D medicines to all those affected persons. He also assured
us that the State Government is taking effective steps for
peaceful resettlement of those stranded persons. The
above statement of both the respondents are hereby
recorded.
E
In order to ascertain the further development arid the
steps taken by both the respondents, we adjourn the matter
till next Thursday, i.e., 26th September, 2013. Respondent
Nos. 1 & 2 are directed to file further report on that day.
F The petitioners as well as others who are aware of
more details about the sufferings of the people concerned
are permitted to hand over all the details to the standing
counsel for the State of U.P."
G 23. On 20.09.2013, at the request of learned senior
counsel for the State of U.P., this Court, in continuation of order
dated 19.09.2013 passed in the W.P. (Crl.) No. 155 of 2013
etc., directed to transfer W.P.No. 8289(MB) of 2013 (PIL) and
W.P.No. 8643(MB) of 2013 (PIL) pending on the file of Lucknow
H Bench to this Court. When these matters came on 26.09.2013,
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 935
[P. SATHASIVAM, CJI.]
after hearing all the parties, this Court issued notice on the A
transferred cases as well as the criminal miscellaneous
petitions for intervention and direction (Crl.M.P. Nos. 20245 of
2013, 20247 of 2013 and 20460 of 2013) and in Writ Petition
(Crl.) Nos. 165 of 2013 and 171 of 2013. This Court further
directed the respondents to file separate response on the steps B
taken for the welfare of the victims and for their safe return to
their homes and also directed to furnish the details regarding
criminal cases registered against the persons involved in the
incident.
24. On 17.10.2013, after hearing all the parties including C
the State, this Court passed the following directions:
"Pursuant to our earlier direction, the State of U.P.
has filed fourth, fifth and sixth reports in the form of an
affidavit highlighting the steps taken by it. In addition to the D
same, the State has also filed a chart containing the
existing camps and persons residing there.
On behalf of the Union of India, learned Attorney
General has submitted a report containing various
E
communications from the Central and the State
Government in the form of an affidavit in Court. The same
is taken on record.
W.P.(Crl.) No. 181 of 2013 is taken on Board.
F
Exemption from filing O.T. in W.P.(Crl.) No. 170 of
2013 is allowed:
Issue notice in the W.P.(Crl.)No. 181 of 2013 filed
by ANHAD and W.P.(Crl.)No. 170 of 2013 filed by Citizens G
for Justice and Peace & Ors.
After hearing all the counsel at the request of Mr.
Rajeev Dhawan, learned senior counsel, appearing for the
State of U.P., we intend to give sufficient time to respond
the fresh writ petitions, the writ petitions as well as various H
936 SUPREME COURT REPORTS [2014] 4 S.C.R.
A applications in which we have issued notice on the last
hearing date. We direct the State to file a detailed
response in regard to all the matters mentioning the steps
taken up to 17th November, 2013 and the future course
of action to maintain peace and communal harmony
positively by 18th November, 2013.
Counsel for the petitioners are directed to serve
notice on all the unserved respondents in the meanwhile.
List all these matters for hearing on 21st November,
C 2013 at 2.00 p.m."
25. On 21.10.2013, while granting stay of further
proceedings in C.M. Writ Petition No. 53891 of 2013 entitled
Pankaj Kumar and Ors. vs. State of U.P. and Ors. pending in
D the High Court of Judicature at Allahabad, this Court issued the
following directions:
"It is made clear that any grievance pertaining to the
incident that took place on 27th August, 2013 at
Muzaffarnagar and nearby places aggrieved persons are
E to approach only to this Court for necessary relief/
directions.
26. On 21.11.2013, again, after hearing all the parties, this
Court passed the following order:
F
"The State of U.P. has so far filed nine Reports with
reference to the incident highlighting the steps taken and
the follow up action.
During the course of the hearing, it was brought to
G our notice the proceeding No. 118/six-P.C.V.C. -13-15(20)
2013, dated 26th October, 2013 which was issued by Mr.
D.S. Sharma, Secretary, Government of Uttar Pradesh, to
the Commissioner, Saharanpur Commissionery,
Saharanpur.
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 937
[P. SATHASIVAM, CJI.]
Learned counsel appearing for the petitioners point A
out that the direction issued for rehabilitation of a particular
community (Muslim families) alone are unacceptable.
When this was pointed out to Dr. Rajeev Dh.awan,
learned senior counsel appe~ring for the State of U.P., he 8
readily agreed for recalling the said communication and
also made a statement that the concerned authority will
reissue proper proceedings taking care of all the affected
persons involved in the incident.
It is also brought to our notice that even on the date C
of filing of E~ghth Report on 18th November, 2013, 5024
persons are still residing in the camps arranged by the
State. Though, learned senior counsel for the State has
pointed out that as on date the number of persons in the
camps are likely to be lesser, taking note of the fact that D
sizeable number of persons are still in the camps and
considering the climatic conditions during winter months,
we direct the State Government to provide necessary
assistance/materials to all the affected persons residing
in these camps. E
The State of U.P. is directed to file its response in
Writ Petition (Crl.) No. 179 of 2013, in Writ Petition
(Crl.)No.171 of 2013, in Writ Petition (Crl.)No. 181 of 2013,
in Writ Petition (Crl.)No.196 of 2013, in Writ Petition
F
(Crl.)No. 206 of 2013, S.L.P.(c) No. 35402 of 2013 as well
as Grl.M.P. No ..... filed in Writ Petition (Crl.)Nos. 171 of
2013 and 179 of 2013, positively on the next date of
hearing.
With regard to the compensation for tractors, G
sugarcane crops, tube-wells and other agricultural
products, learned senior counsel for the State, has readily
agreed that if proper application/representation is made
to the District Magistrate of the concerned district, the
same shall be considered. H
938 SUPREME COURT REPORTS [2014] 4 S.C.R.
A The affidavit filed by the Union of India dated 21st
November, 2013, is taken on record.
List these matters on 12th December, 2013, at 2.00
p.m. In the meantime, the petitioners are directed to take
effective steps to serve the unserved respondents in all the
8
matters."
27. On 12.12.2013, again, after hearing all the parties
including the counsel for the State, this Court made the following
directions:
c
"On behalf of the State of U.P., a consolidated
compilation of documents and the Status Report have
been filed in Writ Petition (Crl.) No. 155 of 2013 and
connected matters. The same is taken on record.
D In the Writ Petition (Crl.)No. 155 of 2013, the
petitioners have filed Crl. Misc. Petition No. 26156 of 2013
praying for certain directions. In the said application based
on the news report, the petitioners have asked not only
direction to the respondents/State of U.P. but also for
E implementation of our earlier orders. The information which
is mentioned in para 8 is as follows:
Para 8
"That recently various electronic news agencies like
F
India TV and IBN Channel has reported between
02.12.2013 to 07.12.2013 in special coverage
giving the images of the peoples struggling for their
lives in cold in open sky in which more sufferer are
the small children who were succumbed to death
G as they could not bear the cold temperature of the
season. It has been reported that more than 50
children died on account of cold as their parents
who are riot victims is having no means to protect
their children. It is very unfortunate for the country
H like India that the whole country is unable to save
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 939
[P. SATHASIVAM, CJI.]
even the small children who were dying on account A
of their no fault. The death of various children which
had also been reported in various newspapers."
In W.P.(Crl.) No. 181 of 2013, the petitioners based
on another newspaper's report as well as investigation by 8
themselves furnished various details about deaths in
camps.
In both these petitions, it is the grievance of the
petitioners that in spite of our earlier directions, the State
Government has not fully implemented all directions in C
providing necessary help and assistance to the inmates
of the camps particularly to the children, aged persons and
all affected persons. In view of the same, we direct the
State Government to ascertain the correct position and
filed a detailed report on the next date of hearing. D
In the meanwhile, the State Government is directed
. to look into the serious averments in para 8 in Crl.M.P. No.
26156 of 2013 (which we have extracted above) and take
necessary steps and provide required remedial . E
assistance at once. Dr. Rajiv Dhawan, learned senior
counsel appearing for the State of U.P. assures this Court
that necessary steps will be provided by tomorrow, i.e.,
13th December, 2013 onwards. The above statement is
hereby recorded.
F
Taking note of the cold conditions in the forthcoming
months, we hereby further direct the State Administration
particularly the district concerned to provide necessary
materials including medical facilities for the inmates
particularly children in the camps as well as all those G
affected due to riots.
During the course of hearing, counsel. appearing on
behalf of various petitioners/organizations raised certain
complaints/grievances about the steps so far taken by the
H
940 SUPREME COURT REPORTS [2014] 4 S.C.R.
A State Administration. The respective counsel are permitted
to hand over those details to the standing counsel for the
State of U.P. by tomorrow, i.e., 13th December, 2013. The
State of directed to take remedial steps at once and file
their response on the next date of hearing.
B
Post all the matters for final disposal on 21st
January, 2014 at 10.30 a.m. as item one.
In the meantime, parties are permitted to complete
their pleadings."
c
28. Finally, on 20.02.2014, after hearing elaborate
arguments of Mr. Uday U. Lalit, learned senior counsel for the
State and Ms. Kamini Jaiswal, learned counsel for the rape
victims, this Court reserved the judgment in these matters.
D Compliance Reports:
29. The given petitions were heard over 5 months
commencing from 12.09.2013 and ending on 20.02.2014. In
this interim period, this Court issued numerous directions for
E monitoring the situation at the place of incidence. It is pointed
out by learned counsel appearing for various parties that
because of various directions of this Court, the State
Government initiated active investigation, relief measures, both
in the camps as well as in shelter homes and provided more
F provisions for food, clothes and medicines etc., which is
highlighted in the eleven Compliance Reports filed before this
Court over the period of time.
30. From the reports filed by the State Government, we
G culled out the following information, which will throw light on the
rehabilitative and preventive measures adopted by the Central
and the State Government.
1. Arrangements for Relief camps
H A total number of 58 camps were made functional, of
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 941
[P. SATHASIVAM, CJI.]
which, 41 such camps were established in District A
Muzaffarnagar and 17 camps in District Shamli.
In District Muzaffarnagar, the camps were established in
different villages of two Tehsils, viz., Tehsil Sadar and Tehsil
Budhana. After survey of these camps by the District
8
Administration, it was found that most of the displaced families
were living in Madarsas, private ghar (houses) and other
buildings. Remaining people had taken refuge at open places
by erecting tents.
After the survey, 30 relief camps were identified in Tehsil C
Budhana area and 11 relief camps in Tehsil Sadar area and a
District Level Officer was deputed as a Nodal Officer for each
camp. In addition to this, one police officer was also designated
for each camp. Detailed guidelines and instructions were issued
to the concerned officers for ensuring efficient and effective D
running of these camps.
A Purchase and Supply Committee, comprising of District
Supply Officer, Deputy Regional Marketing Officer, Sachiv
Mandi Samiti, ARTO, Joint Commissioner (Commercial Tax), E
General Manager of District Industries Centre and General
Manager of Parag Dairy was formed to purchase and supply
foodgrains and other articles of daily use to the families living
in camps. After getting daily assessment of their requirements
through Nodal Officers, foodgrains and other goods were F
supplied by trucks and other small vehicles to the camps.
The families going back from certain camps during the
month of December 2013 were provided ration material for a
period of 15 days so as to facilitate their resettlement and
rehabilitation. An amount of Rs.152.95 lacs was spent on the G
foodgrains and other essential commodities provided in the
camps and afterwards in the District Muzaffarnagar. In addition
to this, Rs. 61.44 lacs were spent on arrangements for auxiliary
items. In this manner, a total amount of Rs.214.39 lacs has
been spent on the items supplied and the arrangements made H
942 SUPREME COURT REPORTS [2014] 4 S.C.R.
A in the District Muzaffarnagar.
Similar arrangements were made in District Shamli. In
District Shamli also two Tehsils, viz., Tehsil Shamli and Tehsil
Kairana were affected. Six relief camps in Tehsil Shamli and
11 camps in Tehsil Kairana had been identified. Foodgrains
8
and other essential commodities worth Rs. 32.39 lacs and milk
worth Rs.53.10 lacs have been provided in the camps and to
the families going back from the camps for resettlement and
rehabilitation. In addition to that, Rs.27.65 lacs have been spent
on other arrangements. Thus, a total amount of Rs.113.04 lacs
C has been spent on the items supplied and the ,arrangements
made for the camps.
District Baghpat has als~ reported an expenditure of
Rs.1.85 lacs for supplying foodgrains and other essential items
D for the people who had gone to the camps and have now been
rehabilitated in their villages.
All 41 camps in District Muzaffarnagar have been closed
and 2 camps and 4 satellite camps are in operation in District
Shamli. A total number of 2618 persons are living in these
E
camps. ·The relief operations on the same scale are being
continued in these camps. The State Government has given
directions to run the remaining camps and to take all necessary
measures for providing foodgrains, milk, other essential
commodities, medical facilities and materials required for
F shelter from cold etc. as long as the people are living in such
camps.
2. Medical facilities to the injured and those living in the
camps
G
Medical ambulances with all modern facilities were
deployed for all the camps. Medical and paramedical staff was
deployed at all the camps to regularly conduct medical checkup
in the camps. According to the data provided by the Chief
Medical Officer, Muzaffarnagar, the medical teams conducted
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 943
[P. SATHASIVAM, CJI.]
cumulative medical check-up of 21,555 persons in the camps. A
It was ensured that if any person in the camp was found
seriously ill he was shifted immediately to the District Hospital
using ambulance and if required he was referred to the Medical
Centre at Delhi and Meerut.
B
A sum of Rs.6.38 lacs in Muzaffamagar and Rs:14.90 lacs
in Shamli was spent towards treatment of the persons injured
in the incidents. For better and specialized treatment, i1 injured
persons were referred to higher medical facilities at Meerut and
New Delhi. Instructions were issued by the State Government C
that the treatment of persons who got injured during incidents·
of violence is to be done free of cost. One such person who
went for his treatment to private facility has been paid Rs.2.5
lacs from the Chief Minister's Discretionary Fund.
In District Shamli too, similar arrangements were made by D
the District Administration. According to the data provided by
the C.M.O., the medical teams conducted cumulative medical
check-up of 23,243 persons in the camps.
Female doctors and ANMs were deployed to the extent E
possible for taking care of the women especially the pregnant
and lactating mothers. 303 pregnant women were identified and
44 of them were shifted to Community Health Centres (CHC),
Primary Health Centres (PHC) or the District Hospital for safe
deliveries in the district of Muzaffamagar. Additional nutrition F
was provided under the ICDS by the Anganwadi workers to all
those children who were below the age of 6 years and living in
the camps.
Chlorine tablets and ORS packets were distributed on
regular basis. More than 64000 chlorine tablets and nearly G
7750 ORS packets were distributed in the two districts. In
addition to this, routine immunization activity was also carried
out in the camps. 573 children in Muzaffarnagar and 1107
children in Shamli were vaccinated during this period.
H
944 SUPREME COURT REPORTS [2014] 4 S.C.R.
A In compliance with the directions given by this Court,
separate teams were constituted and deployed for special care
of all those living in the camps especially women and children.
For the camp at Loi Village in Muzaffarnagar, one general
physician, one pediatrician for the treatment of children, one
. s ANM/staff nurse, one para medical staff and ambulance was
put on duty. The camp was closed on 31.12.2013 by
rehabilitating all the families. Till then, 3114 cumulative patients
were treated in the camps of which 509 were children, 65
, children were vaccinated, 515 chlorine tablets and 154 ORS
c, packets were distributed. It has been ensured that all those
pregnant women, who were living in the camp before its closure
wouh:f be taken to PHC Budhana or District Female Hospital
for their deliveries.
-
Similarly, 3 doctors, 3 pharmacists, 3 ANMs, 2 ward boys,
D 2 drivers with ambulances, 1 LA, 1 OTA and 1 STLS have been
deployed for 4 camps in operation at Malakpur, Khurgan,
Sunaiti and Bibipur Hatia. 153 patients including 59 children
have been treated in these camps.
E The persons, who have been shifted to different villages
for rehabilitation, are being tracked and being provided medical
facilities at their places of stay. In Muzaffarnagar, 168 pregnant
women and 4946 children have been examined and 860
children were treated for various ailments. 114 children were
vaccinated. In Shamli, 328 children from total 1128 patients
F
have been examined during last week in the camps.
3. Arrangement of Sanitation and Drinking Water
In order to ensure proper sanitation and cleanliness, five
G sweepers were deployed for each camp. It was ensured that
the sweepers remained deployed till the camps were in place.
Keeping in view the large number of women and children in the
camps, mobile toilets were placed near the camps. In order to
avoid epidemic, spray of pesticides and other chemicals was
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 945
[P. SATHASIVAM, CJI.]
ensured. To kill mosquitoes, fogging was carried out near relief A
camp at Jaula.
Safe and clean drinking water was also supplied through
piped water supply schemes, permanent tubewells installed at
the camp sites, India Marked-I I hand pumps and water tankers B
from the urban local bodies situated near the camps. Chlorine
tablets were distributed in all the camps as has been described
in the paragraph above.
4. Arrangement of Tent, Dari and Bedsheets etc.
c
Though most of the camps were situated in pucca buildings
like Madarsas and Schools, makeshift tents were also erected
in 15 camps to provide shed and shelter. The displaced
families could not bring any item of daily use with them, hence,
two steel plates, two steel glasses, one medium size dari, two D
bed sheets, one bucket, one mug, one towel, milk powder,
biscuit packets were provided to each and every family in the
camps. Clothes to women and children were also distributed
in camps. In addition to that, two toilet soaps, two washing
soaps, one tooth paste and kerosene oil etc. were provided to E
the families living in the camps. The approximate value of
abovementioned goods has crossed Rs. 1 crore. 104 quintals
of fire wood was supplied in the camps through the Divisional
Forest Officer. Another 54 quintals of firewood was supplied
through District Supply Officer for its use as fuel. Apart from this,
F
48 gas cylinders were provided in the camps.
5. Arrangement of fodder for cattle
A large number of villagers fled from their houses out of
fear leaving behind their cattle and animals. These animals G
were taken care of by the people from the community. The
Animal Husbandry Department was directed to provide fodder
to such cattle with the help of voluntary organizations.
Identification of such villages and cattle was done and fodder
was made available. So far. 568.30 quintals of wheat-hay has
H
946 SUPREME COURT REPORTS [2014] 4 S.C.R.
A been distributed. Teams of Veterinary Doctors have treated 301
cattle so identified.
6. Financial Assistance by Government of Uttar Pradesh
to the wounded and the families of deceased persons
B According to letter No. 1027k/chh-sa.ni.pr.-13/15(14)2013
dated 10.09.2013 and Government Order No. F.A.-2-367/Ten-
92-100(30)D/92-Home Police, Section-12 dated 21.12.1992,
financial assistance to the families of deceased and injured
persons is to be given at the following rates:
c
1. In case of death Rs. 10,00,000 per death
2. In case of serious injury - Rs.50,000 per person
3. In case of simple injury - Rs. 20,000 per person
D
District Muzaffarnagar
32 persons belonging to this District have died in various
incidents of violence that took place on or after 07.09.2013. Of
E these deceased persons, two dead bodies are still unidentified.
Three persons were killed in clashes on 27.08.2013 in village
Kawai, Tehsil Jansath. One news channel reporter named
Rajesh Verma died on 07.09.2013 in communal violence in
Muzaffarnagar city. Financial assistance of Rs. 15 lacs was
announced for his family. Thus, a total sum of Rs. 3.35 crores
F has been provided to the families of 33 persons. In addition to
that, a total sum of Rs. 7.50 lacs was provided to 15 persons
injured seriously. One person succumbed to his injuries and his
family has been paid additional amount of Rs. 9.5 lacs. Thus,
34 families of deceased persons have been paid Rs.3.45
G crores and the remaining 14 seriously injured persons were
paid Rs.7 lacs. A sum of Rs.5.40 lacs has been distributed to
27 persons with simple injuries.
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 947
[P. SATHASIVAM, CJI.]
District Shamli A
15 persons belonging to this District died ii) the incident
on or after 07.09.2013. Of these, 13 persons died in incidents
that took place in Muzaffarnagar and 2 persons died in the
incidents within the District on or after 07.09.2013. One person B
was killed in another clash that had occurred on 03.09.2013 in
the District. A total sum of Rs.1.60 crore has been provided to
the families of all the 16 deceased persons. For the injured
persons, a total sum of Rs.4.5 lacs has been provided to 9
seriously injured persons and a sum of Rs.3.20 lacs to 16 C
persons with simple injuries.
District Saharanpur
Three persons belonging to this District died in the
incidents on or after 07.09.2013, of which one died in D
Muzaffarnagar and 2 died within the District. A sum of Rs. 30
lacs has been provided to all the 3 families. Moreover, a total
sum of Rs. 20 lacs has been provided to 4 persons injured
seriously.
Apart from these 3 Districts, as mentioned above, ur:ider E
the Saharanpur Division, 9 persons who were killed, belonged
to the three districts of the Meerut Division. According to the
report received from these Districts, Rs. 50 lacs were paid to
5 families in District Meerut, Rs. 30 lacs to 3 families in
Baghpat and Rs. 10 lacs to 1 family in District Hapur. One F
seriously injured person succumbed to his injuries in Meerut
and his family has been paid additional financial assistance of
Rs. 9.5 lacs. Thus, all the 10 families of the deceased persons
have been provided ex gratia relief of Rs. 1 crore. In addition
to this, 4 seriously injured persons in District Baghpat have been G
paid Rs. 2 lacs. Remaining 2 seriously injured persons in
District Meerut have been paid an amount of Rs. 1 lac. 4
persons with simple injuries in Baghpat have been paid Rs.0.8
lacs. District Hapur has reported no injured person.
H
948 SUPREME COURT REPORTS [2014] 4 S.C.R.
A In addition to the above, the State Government has
sanctioned pension to the eligible 63 injured persons at the rate
of Rs.400/- per month under the Rani Laxmi Bai Pension
Scheme under special circumstances.
B Thus, the Government of Uttar Pradesh has paid Rs.6.35
crores to the families of 63 deceased persons, Rs.16.50 lacs
to 33 seriously injured persons, Rs.9.80 lacs to 49 persons with
simple injuries and pension to 63 injured persons.
7. Financial Assistance by Government of India to the
C wounded and the families of deceased persons
Government of India has also sanctioned ex-gratia relief
from the Prime Minister's Relief Fund at the rate of Rs.2 lacs
per family for the dependents or legal heirs of the deceased
0 and at the rate of Rs. 50000 for the seriously injured persons.
Rs. 15 lacs have been sanctioned to the family of Sri Rajesh
Verma, the Journalist, who was killed in the city on 07.09.2013.
32 families in Muzaffarnagar, 16 families in Shamli, 3
families in Saharanpur, 5 families in Meerut, 3 families in
E Baghpat and .1 family in Hapur have been paid Rs.120 lacs.
Rs. 10 lacs have been paid to the family of Late Sri Rajesh
Verma. Rs. 16.50 lacs have been paid to 33 seriously injured
persons. Two cases, in which the injured persons have died,
have been forwarded for further assistance of Rs.1.50 lac per
F family.
Thus, Rs.146.50 lacs have been distributed to the injured
persons and the legal heirs of the deceased persons from the
funds made available by the Government of India.
G 8. Employment to the dependents of the deceased
persons
The State Government decided to give employment to one
member of the family of the deceased persons according to
H his or her qualification. Total 58 persons belonging to 6 Districts
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 949
[P. SATHASIVAM, CJI.]
died in the incidents on or after 07.09.2013 and 5 persons died A
in the incidents that had taken place before that. A proposal
was made for employment of dependents of 61 persons killed
in the incidents as 2 dead bodies remained unidentified. 2
persons had died from the same family and one person killed
was a Government employee and his dependent will be 8
considered as per "Dying in Harness" rules. Thus, the proposal
was sanctioned by the Government for remaining 59 persons
and all of them have been given employment.
Two new proposals, which were sent to the State
Government with regard to 2 seriously injured persons who C
succumbed to their injuries have been sanctioned and
formalities are being completed to give them employment.
9. Confidence building measures
D
A detailed survey and analysis of the families displaced
from different villages and living in camps was done. The
villages from where displacement took place were divided into
three categories:
(i) Villages where no violence took place. E
(ii) Villages where no death was reported.
(iii) Villages where death was reported.
First of all, measures were taken to rehabilitate and return F
those people who fell in the first category. In this category,.
displacement had taken place just out of fear. Meetings with
important and effective persons from both the communities
were organized in which one community had assured the safety
and security of the other. Peace Committees were constituted G
and their meetings were organized at the Block, Tehsil and
District levels. Senior officers like District Magistrate,
Superintendent of Police, ADM, ASP, SOM, Circle Officer and
other functionaries from the Revenue and police departments
participated along with the Village Pradhans and important H
950 SUPREME COURT REPORTS [2014] 4 S.C.R.
•A public persons from all the communities. Teams of officers were
sent from Districts of Meerut and Baghpat to convince and take
the persons living in the camps who belonged to the villages
of these districts.
At one stage, the total number of people staying in 58
8 camps in two districts had reached a figure of 50955 of which
27198 persons were in 41 camps at Muzaffarnagar and 23757
persons in 17 camps at Sham Ii. As a result of the efforts made
by the administration in holding these meetings and providing
one-time financial assistance for rehabilitation, all the persons
C living in the camps in Muzaffarnagar have returned either to their
native villages or resettled elsewhere.
As far as District Shamli is concerned, 15 camps have
been closed and 23757 persons living in the camps have either
D returned to their native village or to the other places of their
choice after getting one-time assistance of Rs. 5 lacs.
Remaining 2 camps at Malakpur (990 persons remaining) and
Barnawi (330 persons remaining) have split into 4 additional
satellite camps established on the forest land, Gaon Sabha
E land or the Government land of villages Akbarpur Sunhaiti (297
persons), Khurgan (595 persons), Dabhedi Khurd (203
persons) and Bibipur Hatia (203 persons). Thus, 2618 persons
are still living in 2 camps and 4 satellite camps in the District
Shamli. Efforts are being made to convince them to go back
F to their villages or settle elsewhere.
To ensure the safety and building a feeling of confidence
among those returning to the villages, para-miliatry forces were
deployed in those villages. Preventive action was also ensured
under the provisions of the Code and effective legal action is
G being taken with respect to the FIRs lodged for the incidents
of rioting. Notices were issued to 6616 persons in
Muzaffarnagar and 1756 persons in Shamli under Section 107/
111 of the Code. Out of these, 8372 persons in two districts,
57~ persons (4802 in Muzaffarnagar and 991 in Shamli) have
H been bound down under Section 107/116 of the Code. In
MOHD HAROON & ORS. v. UNION OF INDIA & ANR. 951
[P. SATHASIVAM, CJI.]
addition to this, 356 persons in Muzaffarnagar and 239 persons A
in Shamli, thereby totaling 595 persons have been arrested in
connection with various Fl Rs for incidents of violence, arson and
looting etc.
Regarding safety of their lives and security of their 8
properties, the State has brought to our notice that necessary
forces have been deployed in all the areas in which the
communal riots took place. The details furnished by the State
show that at present, the following forces deployed for law and
order duty:
c
Addi. SP Dy. SP lnsp. S.I HC Const. HG PAC
3 11 35 238 58 1447 400 8
Coy.
2 PL. D
10. One time financial assistance to the families not
returning to their villages
Families displaced from 6 villages in Muzaffarnagar, i.e.,
Fugana, Kutaba, Kutbi, Kakda, M,ohammadpur Raisingh and E
Mundbhar and 3 villages in Shamli, i.e., Lisadh, lank and
Bahavadi have not agreed to return to their native villages even
after confidence building measures and serious persuasion.
Their decision was found to be justified largely based on the
fear emanating from the kind of incidents of murders and arson F
that had happened in these villages during the violence that
0
broke o'ut on 7th and 8th September, 2013. The State
Government, vide its order dated 26.10.2013, has decided to
give a lumpsum grant of Rs. 5 lacs per family for their
resettlement and rehabilitation. According to the preliminary G
estimates of houses in these villages, an amount of Rs.90
crores has been sanctioned for 1800 families, Rs.43.15 crores
to 863 families out of 901 such families in Muzaffarnagar and
Rs.38.40 crores to 768 such families in Shamli have been paid
under the one-time financial assistance for their rehabilitation. H
952 SUPREME COURT REPORTS [2014) 4 S.C.R.
A In addition to this, 13 families in Muzaffarnagar have been given
part payment of Rs.2 lacs each incurring Rs.26 lacs. Thus, 1644
families have been paid till date and an amount of Rs.81.81
crores has been spent for their resettlement and rehabilitation.
11. Compensation for damage to movable and immovable
B
property
Assessment was done for damage to the uninsured
movable and immovable property during the riots. Efforts were
made to assess the loss by a team of qualified persons in the
C presence of victims. Photography and videography was also
done during the process.
According to the latest reports, an amount of Rs.124.06
lacs has been paid in 212 cases, out of 217 surveyed cases
D worth Rs.125 lacs. Similarly, in District Muzaffarnagar, 465
movable properties have been assessed at Rs.176.44 lacs and
the claim of Rs.174.82 lacs has been settled for 459 properties.
Hence, the claim of 671 properties out of 682 total damaged
movable properties has already been settled and an amount
of Rs.298.88 lacs has already been paid.
E
As per the order dated 26.10.2013 regarding one-time
financial assistance to the families from 9 villages, the
compensation for the damage to the immovable properties of
these families is included in the one-time assistance. Therefore,
F the compensation for damage to immovable property has to
be pai.d in the remaining villages only. Besides, .the amount is
to be paid in two equal instalments. All 24 cases identified in
Shamli, all 6 cases identified in Baghpat and 55 out of 56 cases
identified in Muzaffarnagar have been paid the first instalment
G of Rs.50.56 lacs. Thus, a total amount of Rs. 349.44 lacs has
been paid as compensation for the loss of uninsured movable
and immovable property loss in 3 districts.
Enhanced Compensation:
H 31. During the course of hearing, learned senior counsel
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 953
[P. SATHASIVAM, CJI.]
and the Additional Advocate General of U.P. appearing for the A
State assured this Court that the Government would consider
enhancing the amount of compensation to the victims of
communal violence who had died and to the parents of the
deceased children below 5 years of age.
8
32. It is brought to our notice that by G.O. dated
18.02.2014 issued by the Home Secretary, Government of
U.P., it has been decided that the State Government would
provide further compensation of Rs. 3 lakhs in addition to the
compensation already provided to the relatives of the deceased
and a compensation of Rs. 2 lakhs to the parents of the
c
deceased children below 5 years of age who died in the relief
camps.
33. In addition to the same, the State has also highlighted
other reliefs that have been given to the riot victims for damage D
of immovable properties. The chart placed before us shows the
names of the persons, father's name, type of property, type of
damage, value of the property, name of the village, district and
the actual amount paid to those persons. The said chart also
shows that in this category, 181 persons received various E
amounts depending on the value of the property lost. Likewise,
the State has also placed details regarding financial assistance
to injured persons due to communal violence. The chart
furnished shows that about 53 persons from Muzaffarnagar,
Shamli, Saharanpur and Baghpat were benefitted. It also F
contains the name of the injured persons, their family details
and their full address as well as the 'compensation received
from the State Government. The State has also placed
particulars regarding the beneficiaries of Rani Lakshmibai
Pension Yojana relating to persons who sustained injuries both
G
simple as well as grievous in communal violence. The chart also
shows the name and details of their family, age, full particulars
and the amount paid for the period September 2013 to March
2014.
H
954 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Phase of Investigation:
34. Apart from the rehabilitative and preventive measures,
certain concerns were also raised by the petitioners in regard
to the inefficient investigation by State Police and lapse of
8 procedural laws which leads to gross violation of rights of
victims.
35. Regarding the stand of the petitioners th~t many false
accused were shown as culprits, the State has filed a detailed
note wherein it is stated that a total number of 566 cases are
C · being investigated by the Special Investigation Cell (SIC). It was
submitted that during investigation, it was observed that many
cases were false and many persons have been wrongly named
in FIRs. The investigating officers found sufficient ground and
evidence for their innocence. The State has pointed out that
D names of all such persons, viz., 549 persons, have been
removed. Till now, 48 registered cases have been found false
and the same were either expunged or removed. Names of 69
persons in murder cases have been found false and their
names have been removed from the accused list. In addition
E to the above information, the State has furnished a list of
accused found false which contains 516 persons from Hindu
community and 33 from Muslim, i.e., a total number of 549
persons. The State has also furnished a list of expunged cases
and the persons who were wrongly included. Here again, the
F State has mentioned the names and addresses of those
persons, crime number, police station, offences under various
enactments and districts.
36. It is further seen from the information furnished by the
State that at present SIC is investigating a total number of 566
G cases registered during the communal violence in
Muzaffarnargar and adjoining districts of Shamli, Baghpat,
Saharanpur and Meerut. Out of 566 cases, 533 cases are of
Muzaffarnagar, 27 of Shamli and 2 each of Baghpat,
Saharanpur and Meerut. Of these 566 cases, 59 cases are of
H murder and rest are of arson, dacoity, grievous injury and of
'
MOHD. HARDON & ORS. v. UNION OF INDIA & ANR. 955
[P. SATHASIVAM, CJI.]
miscellaneous type. Six cases of rape have also been A
registered. All rape cases are of Village Fugana, Police Station
Fugana, Muzaffarnagar. In all these cases, 6403 people were
named and 253 came to light. Of these, 549 accused were
found false. It was also observed that many persons were
named in more than one case and a calculation of all these B
revealed that 3803 persons were named. Till date, 984 persons
have been declared accused in irwestigated cases. Rest of the
cases are under investigation. 337 accused have been
arrested and 61 persons have surrendered before the Court.
374 Non-Bailable Warrants, 195 warrants under Section 82 of c
the Code and 3 kurki (attachment) warrants of Section 83 of
the Code have been issued. Charge-sheet has been filed
against 238 accused and Closure Reports have been given
against 102 persons.
Constitution of the SIC: D
37. About the constitution of SIC and the method of
investigation, the State has highlighted:
"Special investigation cell was constituted in the month of E
September after the communal violence in the district
Muzaffarnagar and adjoining district to investigate the
cases registered during communal violence. As the task
was very daunting because most of the complainant had
fled from their villages and had taken refuse in various relief
camps and in their relatives. The first task was to locate F
the complainants and witnesses. This hardeous task was
accomplished after taking the list of persons staying in
camps and getting their mobile numbers. Thereafter,
inquiring from one person to another complainants and
witnesses were approached and their statements were G
recorded. This obviously delayed investigation to some
extent, but once the complainants and witnesses were
traced, investigation took pace and very soon investigation
of all the cases will be completed.
H
956 SUPREME COURT REPORTS [2014] 4 S.C.R.
A During investigation, SIC used scientific mode of
investigation. Some of the methods which were used are
as follows:
1. A large number of persons were named in various
cases registered. To confirm the authenticity of complaint
B
and accused person, location of both complainant and
accused persons were collected through their mobile
numbers. Mobile no. of various persons were analysed.
Call details were also applied to work out unknown cases.
c 2. In the village Lisad of PS Fughana death of 13 persons
were reported. The body of 11 persons out of 13 were not
recovered and no traces of their body were found. SIC took
the help of Forensic Science Laboratory, Lucknow to find
the traces of their death. FSL used scientific methods to
D collect sign of some blood. Even though 20 days have
passed after the claim of death, FSL was successful in
finding sign of some blood by Benjamin test. The blood
samples have been sent for examination. During
investigation, some suspicious small pieces of bones were
E recovered, which has been sent for DNA and other
sCientific examination. In one another case, DNA samples
have been sent to match of the claim of death."
38. In support of the above stand, the State has also placed
copies of various orders passed by the SIC.
F
Arrest and follow-up .action:
39. Regarding arrest and follow-up actions, the State has
filed a list of arrested persons in communal violence in
G Muzaffarnagar and adjoining areas. The list shows the names
of 308 arrested persons in the Districts of Muzaffarnagar and
Shamli. Here again, the State has furnished the names and
addresses of arrested accused, the date on which they were
arrested, offences under various enactments, crime number,
H police station, nature of the offence, district, etc. The State has
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 957
[P. SATHASIVAM, CJI.]
also indicated the religion of the accused just to show that A
actions were being taken irrespective of the caste, community
or religion.
40. The State has also furnished a list of 50 persons who
surrendered (31 belonging to Hindu community and 19 Muslim). 8
Here again, the State has furnished the names and addresses
of accused, date of surrender, offences involved, title of the
crime, case number, police station and district etc.
41. In addition to the above particulars, the State has also
furnished details about the action taken against accused C
persons in communal violence cases as on 08.02.2014. The
chart contains the details of the number of the accused, number
of crimes, details regarding action taken, types of offences, etc.
The State also catalogued these details district-wise, viz.,
Muzaffarnagar, Shamli, Baghpat, Saharanpur and Meerut. D
42. The State has also furnished the details regarding
action being taken against political persons. The list contains
total 22 persons in this category having their names and
addresses, particulars regarding political party, post held, such E
as, Minister/MP/MLA, Crime number, police station, various
offences and particulars regarding action taken, etc ..
43. In addition to the above particulars, the State has also
highlighted various difficulties faced by the District Police in
making arrests. According to them, righf from day one, the F
District Police has faced staunch opposition and strong prptests
in making arrests in riot cases. Many panchayats and dharnas
have been organized to resist arrests. The accused from both
the communities have found strong refuge in respective villages.
In some cases, villagers have even attacked the police parties G
to stop them from making arrest. In the note submitted to this
Court, they highlighted some of the notable episodes that took
place on 15.10.2013, 21.10.2013, 26.10.2013, 28.10.2013,
01.11.2013, 25.01.2014, 26.01.2014. According to the State,
in those days, women folk of the particular community H
958 SUPREME COURT REPORTS [2014] 4 S.C.R.
A obstructed the police from entering their houses where the
accused were hiding. Khap panchayats prevented the police
from performing their duties. In spite of those protests and
obstructions, the State has highlighted that the District Police
has been persistent and diligent in making arrests of the
B accused persons in riot cases and so far 337 accused persons
have been arrested and 61 accused persons have been forced
to surrender. The raid teams from respective police stations are
being sent regularly to make arrests. A dedicated surveillance
team has been deployed with the Crime Branch to gather
c intelligence about the whereabouts of the accused persons of
serious riot offences. Despite extreme adverse circumstances
and strong protests from both communities, the police has
made persistent attempts to effect the arrests of the accused
people. The efforts made by the district police are:
D
(i) Continuous raids - Teams from various police
stations led by senior police officers have been
conducting raids for the accused on regular basis.
(ii) Gathering of information - To locate the accused,
E relevant information is b~ing gathered, informers
have been employed and people from the same
villages have been identified who are willing to
provide information about the accused people.
(iii) Surveillance and Crime Branch support - In making
F
arrests, the district police have also sought support
of surveillance teams and Crime Branch ej<perts to
gather information about accused to facilitate
arrests.
G (iv) Several meetings are being conducted in affected
villages to generate confidence amongst the
villagers and to ensure them that innocent people
will not be harassed, to blunt their resistance about
arrests.
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 959
[P. SATHASIVAM, CJI.]
(v) Meetings are also arranged between the two A
communities to restore faith and feeling of
brotherhood. Such efforts are being made to
alienate the actual accused people who are
desperately trying to find support from their
community. B
(vi) The police has also been seeking relevant and
timely court orders and have been implementing
court processes and attachment orders to mount
pressure on the accused. c
(vii) Counseling efforts are being made so that the family
members and supporters of the accused people
can be convinced to offer arrests or surrender of
accused persons before the Court.
D
(viii) In some suitable cases, reward is also declared on
the accused to mount pressure.
(ix) A dedicated team of experienced police personnel
for each accused is deployed to gather relevant
E
information about his whereabouts, hiding places,
refuse, and support base to effect arrests.
44. Regarding arms and ammunitions, recovery of AK47
cartridges, etc., particularly, in village Kirthal, Police Station
Ramala, District Baghpat, the State has highlighted that: F
"On 11 /03/13 Ramala police was on law and order duty
and was patrolling in village Kirthal PS Ramala. lrshad s/
o Fakruddin, Shoaib s/o Munsab, Zahid s/o Iqbal,
Basiruddin s/o lqram all residents of village Kirthal PS G
Ramala mounted an unprovoked attack on the patrolling
party with brickbats and caused obstruction in the
discharge of duty. In this incidentone constable 832 CP
Vijay Kumar was grievously injured. In this connection, SHO
Ramala Shri Rajender Singh registered a Case Crime
H
960 SUPREME ·couRT REPORTS [2014] 4 S.C.R.
A Number 246/13 u/s 307, 353, 34 IPC against the above-
mentioned four persons at PS Ramala. In the context of
the above-mentioned incident, SHO Ramala-Shri Rajendra
Singh was engaged in checking and frisking of suspicious
persons in village Kirthal. During this checking one
B Rojuddin s/o Fakruddin r/o village Kirthal PS Ramala was
arrested and one cmp 315 bore, 41 cartridges of AK 47
rifle, 14 cartridges of 9 mm pistol were recovered from his
possession. In this connection, one case crime number
249/13 u/s 25 Arms Act was registered at PS Ramala.
c The case crime number 246/13 u/s 307, 353, 34 IPC was
investigated by SI Shri Vijendra Sing Panwar, all the four
named accused were arrested, one cmp 315 bore with
cartridge, one licenced gun with cartridges were recovered
and, finally, charge-sheet number 123/13 dated 19/10/13
D was submitted to the concerned court against all the four
named accused.
Similarly, the case crime number 249/13 u/s 25 Arms Act
was duly investigated by SI Shri Subhash Chand. During
E the investigation the arrested person Rojuddin told the 10
that the AK 47 and gmm cartridges belonged to his brother
Iqbal who had been discharged from BSF on poor health
ground. On coming to light his brother Iqbal s/o Fakruddin
was interrogated by the 10 but no progress was made
F because Iqbal denied that the recovered cartridges
belonged to him and no other independent incriminating
evidence could be collected during 'investigation against
him.
On completion of investigation, charge-sheet number 120/
G 13 was submitted to the concerned Court on 12/10/13. The
matter was investigated by SI Shri Subhash Chand. On
completion of investigation, charge-sheet number 120/13
dated 12/10/13 has been submitted to the concerned court.
H During the investigation all the four named accused were
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 961
[P. SATHASIVAM, CJI.]
arrested and sent to jail. One cmp with one cartridge 315 A
bore, one licensed gun with cartridge were recovered from
them. When adequated evidence was collected against the
accused, charge-sheet number 123/13 dated 19/10/13
was submitted to the concerned court."
B
45. In respect of allegations relating to Crime No. 148/13
under Sections 147, 148, 149 and 396 IPC, PS Fughana,
Muzaffarnagar, it is stated:
"The above case was registered by Dilsad s/o Sakeel r/o
Viii. Bahawadi P/s Fughana that on 8.09.13 his father was C
forcibly taken away by named persons and was killed. The
case was investigated by lnsp. Matadin Verma. When
Inquest report and post mortem report was ·sought, no
record of Inquest and Postmortem was found either in
Police Station or in CMO office. The statement of D
complainant was recorded. He said that he had identified
the chhared body of his father and buried in the graveyard.
After going through records of police station, it was found
that one post-mortem report was extra attached in the FIR
of case crime no. 143/13 of P/s Fughana which was E
related to the incident of village Lak and no claimant of that
post-mortem existed neither anyone had claimed that
somebody is missing from village. Thus, it was assumed
that since there was great commotion after the riots and
more than 13 corpes were brought to PS, some mistake F
might have occurred in writing the place of incident in
inquest report. So, the pos't mortem report was attached
to the case no. 148/13. But, there was one anomaly that
the age in Postmortem report of deceased was 25 years,
but the age of deceased in Cr. No. 148/13 was more than G
45 years. But, fortunately since the post-mortem report
attached was of an unknown body, its tooth, hair and other
parts of the body were preserved for DNA analysis. The
complainant has not turned up in spite of repeated request
both in written and personal by the investigating officer for H
962 SUPREME COURT REPORTS [2014) 4 S.C.R.
A providing blood samples necessary for the test."
46. In the case of Crime No. 403/13, Police Station
Jansath, Muzaffarnagar, the State has informed this Court that:
"On 27-08-13, Sachin s/o Bisan Singh and Gaurav S/o
B Ravindra Singh both resident of Malikpura p/s Jansath
were killed in village Kawai P/s Jansath. In this Jegard,
above case was registered against 6 persons. Out of six
named persons, 2 were arrested and 3 surrendered before
the court. Chargesheet no. 185/13 dated 24-11-13 has
c been filed against 5 accused. Investigation against one
person is going on."
47. In the case of Crime No. 404/13, Police Station
Jansath, Muzaffarnagar, the State has informed this Court that:
D "On 27-08-13, Sahnawaj s/o Salim r/o Kawai was killed
in village Kawai. In this regard, the above case was
registered in which 8 persons were named including
Sachin and Gaurav who were killed in the village Kawai.
During investigation, it was found that no person of the
E name Yogendra s/o Prahlad r/o Malikpura (who was
named accused) exists in Malikpura. One another person
Nitin s/o Ravinder whose name was later on given through
affidavit by witnesses had died six months before the
incident. Till now against rest six persons, no evidence of
F their involvement in crime has been found."
48. Regarding allegations, viz., communal bias, the State,
while denying all those allegations, furnished a list of arrested
persons in communal violence in Muzaffarnagar and adjoining
G districts. Here again, it is furnished that the number of total
arrested persons are 334, out of which, 256 belonged to Hindu
community and 78 belonged to Muslim community. In addition
to the same, they also furnished the names and addresses of
the arrested accused, date of arrest, offences involved, case
H number, police station and district etc. In addition to the same,
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 963
[P. SATHASIVAM, CJI.]
they also furnished present status of cases under investigation, A
community-wise and district-wise. It also shows the total
registered cases in the districts of Muzaffarnagar, Shamli,
Baghpat, Saharanpur, Meerut in the police stations as 316, from
the camps 250, number of cases registered by Muslims 492,
number of cases registered by Hindus 40, cases registered by B
the police 34, true cases found till date 518, number of named
persons in those cases 6144, among those persons 5597
belonged to Hindu community and 547 belonged to Muslim
community, number of persons against whom evidence found
004.~. c
Follow-up action in Rape/Molestation Cases:
49. Coming to the allegations relating to rape and inaction
on the part of the police in apprehending the accused as well
as for protection of the victims, the State has filed an Action D
Taken Report. In that report, it was mentioned that in CC No.
179 of 2013, Police Station Fugana, out of 5 accused, they
arrested only one and in respect of remaining 4, non-bailable
warrants were issued and steps were taken for declaring them
as absconders under Section 82 of the Code. Insofar as CC E
No. 300 of 2013, Police Station Fugana is concerned, 6
persons were arrayed as accused but none was arrested so
far and non-bailable warrants and proceedings under Section
82 of the Code are pending against all of them. As regards CC
No. 360 of 2013, Police Station Fugana, out of 12 accused F
persons, none was ~rrested. Similarly, in CC No. 361 of 2013,
Police Station Fugana, two persons were shown as accused.
Here again, none of them was arrested.
50. Insofar as rape case pertaining to CC No. 300 of 2013, G
the State has furnished the following details:
Date of incident - 08.09.2013
Date of reporting - 26.09.2013
H
964 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Offences - under Sections 395, 397, 376D, 153A, 436 IPC
Police Station - Fugana, Muzaffarnagar
Place of Incident - Village Fugana
B Date of medical examination - 29.09.2013
Date of the statement under Section 161 Cr.PC -
25.10.2013
Date of statement under Section 164 Cr.PC - 09.12.2013
c
51. In the said case, an FIR was lodged stating that six
named cuprits committed the above crime. As regards progress
of the case, it is stated:
''The first investigation was taken by SI Esam Singh of P/
D
s Fughana and it was transferred to lnsp. Dharmpal Singh
of SIC. As there was no Lady Police Officer in SIC, the
investigation was taken by lnsp. Mala Yadav of SIC on
18.10.13. Statement under 161 CrPC was recorded on
25.10.13 as earlier attempt to contact victim could not be
E made as she had gone to Delhi with her husband. On
08.11.13 scene of crime was visited along with the victim.
In her 161 Cr.PC statement and in FIR there was some
contradiction as in FIR she has said that six person has
raped her but in 161 Crpc statement she said that only 4
F person raped her and she does not know rest of the
person. Further her call details did not match 161
statement. Her statement had to be verified and
contradiction needed proper justification. Therefore, the
investigating officer had to investigate the case cautiously.
G Later on statement of other witnesses were recorded.
Statement under 164 Crpc was recorded on 09.12.13.
After 164 Crpc statement some other statement had to be
taken. Requisition of arrest was sent to the police station
on 02.01.14 and NBW was taken against all six accused.
H Warrant under 82 Crpc has been taken against all the
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 965
[P. SATHASIVAM, CJI.]
accused. Raids were conducted to arrest the accused on A
04.01.14, 05.01.14, 20.01.14. Further raids are going on
to arrest the accused."
52. As regards rape case pertaining to CC No. 360 of
2013, the State has furnished the following details:
B
Date of incident - 08.09.2013
Date of reporting - 01.10.2013
Offences - under Sections 147, 148, 149, 452, 352, 376D C
IPC
Police Station - Fugana, Muzaffarnagar
Place of Incident - Village Fugana
D
Date of medical examination - 18.10.2013
Date of the statement under Section 161 Cr.PC -
25.10.2013
Date of statement under Section 164 Cr.PC - 11.12.2013 E
53. In the said case, an FIR was lodged stating that 16
named cuprits committed the. above crime. As regards
progress of the case, it is stated:
"The investigation was started by SI R.S. Bhagaur of P/S F
Fughana on 09.10.13. It was taken by lnsp. Mala Yadav
of SIC on 18.10.13. The statement under 161 Crpc was
recorded on 25.10.13 as the victim had gone to Delhi. The
statement under 161 Crpc and FIR were contradictory as
no. of persons accused of rape differed from FIR. G
Therefore, her statement had to be verified cautiously.
Place of incident was visited on 08.10.13 as she was not
available on other date. Statement under 164 Crpc was
recorded on 11.12.13. Call details of mob. No. did not
match with the incident. Further statement of other H
966 SUPREME COURT REPORTS [2014] 4 S.C.R.
A witnesses has to be taken to corroborate the incident as
according to FIR her husband, Father in Jaw, brother in law
and mother in law all were present at the time of incident.
After collecting all evidence requisition of arrest was given
on 18.01.14 to local police station. NBW was taken and
B sent on 23.01.14 and warrant under 82 Crpc was taken
on 27.01.14. Raids were conducted on 18.01.14, 19.01.14
and on other dates in spite of strong resistance from local
villagers."
54. Regarding rape case pertaining to CC No. 179 of
C 2013, the State has furnished the following details:
Date of incident - 08.09.2013
Date of reporting - 22.09.2013
D Offences - under Sections 395, 342, 436, 153A, 506,
376D IPC
Police Station - Fugana, Muzaffarnagar
Place of Incident - Village Fugana
E
Date of medical examination - 29.09.2013
Date of the statement under Section 161 Cr. PC -
24.10.2013
F
Date of statement under Section 164 Cr.PC - 09.12.2013
55. In the said case, FIR was lodged against 5 named
culprits. As regards progress of the case, it is stated:
G "The case was registered on 22.09.13 at P/S Fughana
Muzaffarnagar by the victim. The investigation was initially
started by SI Anil Kumar Jayant of SIC on 30.09.2013
since at that time there was no Lady Police Officer attached
to the SIC. Medical of the victim was done on 29.10.2013
H by the local police. The investigation of the case was taken
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 967
[P. SATHASIVAM, CJI.]
over by Lady Police Officer Inspector Mala Yadav on A
18.10.13. On 24.10.13 statement under 161 Crpc was
recorded as earlier attempts on 21.10.13 and 23.10.13 to
record her statement could not be made as the victim had
gone to Delhi. On 8.11.13 the scene of the crime was
inspected. Earlier attempt to contact her failed as she has B
gone to some relations. In her statement name of other
witnesses also appeared but they could not be contacted.
Call details of victim was also taken to verify the statement
· given by her son and the victim. The statement of victim
differed from FIR as in FIR it was written that the culprits c
came from roof of the House but in her statement she said
that they caught her on the road. She could not even
identify the scene of crime. Besides this there were some
contradictions in her statement which needed proper
verification .as she had stated that her domestic animals D
were stolen but it was found during investigation that she
has taken her domestic animals back from one inhabitants
of viii. Fughana. The clothes worn by her on the date of the
incident could not be recovered as she said that she had
thrown it. Her 164 Crpc statement was registered on
09.12.13. The earlier attempts to register her statement u/ E
s 164 Crpc could not succeed because she was not
available even though Safina was sent to her under section
160 Crpc. In her 164 Crpc statement she accused all the
5 named person of committing the crime. The statements
of other witnesses were also recorded. Therefore, it took F
some time to ensure that innocent persons may not
become culprit and proper sufficient evidence is collected
to prosecute the offenders and all contradiction should
have proper and reasonable justification. Requisition of
arrest under 55 Crpc against all 05 culprit was issued on G
18-01-14. NBW was issued against accused on 20.01.14.
On 24.01.14 one accused Vedpal was arrested. On
27.01.14 Warrant under 82 Crpc was taken. Meanwhile
attempts to arrest the accused was mad'3 on 18.01.14,
19.01.14 and even after 27.01.14, though under severe H
968 SUPREME COURT REPORTS [2014] 4 S.C.R.
A protest from villagers. Further raids are being made to
arrest the accused. No case of arson was found."
56. It is seen fr.om the above particulars that a total number
of six cases of rape were registered at the police station
Fugana of District Muzaffarnagar. The cases were registered
8
after more than 20 days from the date of incident. According
to the State, investigation in all the six case-s js almost complete.
After taking the statement of victims under Section 161 of the
Code, scene of crime has been visited by the investigatin.g
officer along with other officers. Medical examination of ~II the
C victims has been done and statements of all the victims have
been recorded under Section 164 of the Code. It is further seen
that although 41 persons were named in all the six cases,
investigation and the statement of victims under Section 164
of the Code refers only to 22 persons. Only one accused had
D been arrested in the case of C.C. No. 179 of 2013 and
proclamation under Section 82 of the Code has been issued
against rest of the 21 accused persons. It is also seen that
raids are being conducted by local police to arrest the
remaining accused.
E
57. The particulars furnished further show that a total seven
cases of molestation were registered during the communal
violence. After investigation and recording the statement of
complainant and the so-called victims, it was found that there
F was no case of molestation. Charges of molestation in all the
seven cases were found false. Out of seven cases, in five
cases, other charges of dacoity and 'injury were also found false
as the complainants denied occurrence of any such incident.
In rest of the three cases, act of dacoity was claimed by the
complainant. Orders of arrest in Crl. No. 299 of 2013 have been
G given against five persons. In Crl. No. 254 of 2013, complainant
stated involvement of 19 out of 22 named persons of committing
dacoity and arson. Four fresh names were also given.
Investigation is going on t.o find out the authenticity of
involvement of accused person in this case. Similarly, in Crl.
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 969
[P. SATHASIVAM, CJI.]
No. 312 of 2013, complainant had named 14 persons but in A
statement under Section 161 of the Code, denied the charges
of molestation. The scene of crime showed arson in the house.
Though the complainant has not mentioned any act of arson in
the house, the investigating officer has added the relevant
Section in his investigation. Investigation is going on to find the B
involvement of four named persons.
58. In addition to the same, the State has also filed details
of molestation cases, such as number of persons involved,
offences, police station, summary of FIRs, progress of the case,
etc.
c
59. Regarding the allegation that in the relief camp rape
has been committed, based on the information, Case No. 537
of 2013 under Sections 376(g) and 506 IPC has been
registered against Sachin and Sushil and the investigation of D
the same has been initiated by Kawarpal Singh Inspector in
charge. During the investigation, both alleged accused Sachin
and Sushil have been arrested and sent to the jail on
03.11.2013. Both the accused are in jail. In the investigation,
proper and sufficient evidence have been found against both E
the accused and charge-sheet No. 73 of 2013 dated
08.12.2013 has been presented to the court concerned.
60. Apart from the above particulars, the State has also
placed the actual statement of rape victims made under Section
164 of the Code before the court concerned. We have also
F
perused the same.
61. With regard to various allegations raised in Writ Petition
(Criminal) No.11 of 2014 relating to the rape victims, a request
for recording fresh statement under Section 164 of the Code G
was made. Responding to this, the State has informed that the
statement made by Petitioner No. 4 under Section 164 of the
Code had not supported her version in FIR No. 141 of 2013
and Case Crime No. 296 of 2013. During the course of
arguments, learned senior counsel for the State agreed to H
970 SUPREME COURT REPORTS [2014] 4 S.C.R-.
A record the statement of Petitioner No.4 before a lady Magistrate
if the petitioner is willing to appear. It is clarified by the State
that pursuant to the above statement, the 1.0. concerned got in
touch with Petitioner No.4 on 17.02.2014 and explained the
circumstances to her for making a fresh statement under
B Section 164 of the Code to a lady Magistrate. However,
according to the respondent-State, Petitioner No.4 declined to
make a fresh statement under Section 164 of the Code before
the lady Magistrate as requested. In addition to the same,
counsel for the State has also brought to our notice the
c statement of Petitioner No.4 and video proceedings which are
available with the State for perusal as and when desired by this
Court.
62. Regarding the lack of security cover to the rape victims,
on behalf of the State, it is brought to our notice that the State
D of U.P. has provided security cover to all the rape victims,
except Petitioner No.4 in whose case Final Report has been
filed. It is also brought to our notice that Petitioner No.1 and
her husband had been provided security earlier. It is also stated
that all the rape victims refused security cover being provided
E by a lady constable and on seeing the sensitivity of the matter,
the State has provided them with one male and one female
security personnel. As per the materials placed, the following
are the details of the security personnel provided to the
petitioners:
F
S.No. Petitioner No. Particulars
1. Petitioner No.1 Gunner Constable No. 304
armed police Ravi Kumar/
Lady Constable No. 890
G Nisha
2. Petitioner No.2 Gunner Constable No. 238
armed police Anil Kumar/
Lady Constable No. 1195
H Anjula
MOHD. HAROON & ORS. v. UNION OF !NOIA & ANR. 971
[P. SATHASIVAM, CJI.]
3. Petitioner No.3 Gunner Constable No. 313 A
armed police Narendra
Kumar /Lady Constable No.
157 Kashtina
4. Petitioner No.5 Gunner Constable No. 55
8
armed police Arun Kumar/
Lady Constable No. 1991
Sa vita
5. Petitioner No.6 Gunner Constable No. 319
armed police Vineet Kumar c
Lady Constable No. 1302
Meenakshi
6. Petitioner No.7 Gunner Constable No. 232
armed police Ravish/Lady
Constable No. 1023 Bharti
D
63. Regarding non-registration of FIR on the complaint sent
by Petitioner No.7, the State has informed this Court that FIR
No. 18 of 2014 being Case Crime No. 37 of 2014 under
Sections 3760 and 506 of the IPC at Police Station Fugana E
stands registered even on 18.02.2014. It is also brought to our
notice that the following accused persons, viz., Kuldeep,
Maheshveer and Sikandar have been made accused in the said
case crime and investigation had already been comryienced.
As on date, Petitioner No. 7 has also been provided with one F
male and one female security personnel.
64. In respect of arrest of accused persons in cases
related to the offence of rape, the State has highlighted that so
far 50 teams of police personnel have been constituted. Each
team is led by a Sub-Inspector and has 2-3 constables. Each G
team has been allotted 3-4 accused and has been given a
specific time frame to affect these arrests since during the raids,
it has been found that the accused persons are not staying in
their native villages. These teams will track the location and
H
972 SUPREME COURT REPORTS [2014] 4 S.C.R.
A have a focussed strategy of arresting targetted persons.· In .
addition to the same, it is highlighted that two companies of
the State Paramilitary Force have been earmarked for assisting
these arresting squads. Additional SP, Crime, Muzaffarnagar
has been made in-charge of arrest operations. It is also assured
8 to this Court that despite resistance to arrests, police has
successfully conducted raids on the houses and probable
places of hiding in villages on regular basis.
Action taken in murder and other offences:
C 65. Regarding murders which occasioned during the
violence, the State has filed a compilation containing list of
named accused who were found false in murder cases. The
particulars furnished by them show that about 70 persons (54
Hindus and 16 Muslims) were shown as accused and after
o investigation it was found that they were falsely implicated. In
the Action Taken Report dated 08.02.2014, under the caption
"murder cases", the State has furnished information that in
Muzaffarnagar, Shamli, Bagpat, Saharanpur, Meerut, 857
persons were implicated and after investigation they identified
E the total true accused as 337, out of which 94 persons were
arrested, 14 surrendered, 6 reported dead and non-bailable
warrants are pending against 198, Section 82 proceedings
pending against 119, Section 83 proceedings pending against
3 and 6 persons were detained under the National Security Act.
F The details furnished further show that a total of 59 cases are
being investigated by SIC. In these cases, 741 persons were
named arid 116 persons were brought to light. Of these,
evidence has been found against 337 persons. Requisition of
arrest has been sent against 289 accused. 94 accused have
beeri arrested and 14 have surrendered before the Court. 6
G accused died during investigation. Non-bailable warrants
against 193 accused have been issued and action under
Section 82 of the Code has been taken against 116 accused.
Action under Section 83 of the Code has been taken against
3 accused. Charge-sheet was filed against 55 accused. 70
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 973
[P. SATHASIVAM, CJI.]
persons were found false. Cases against 450 persons named/ A
brought to light are under investigation.
66. In addition to the same, the State has also furnished
details showing the names of the accused found true in murder
cases. It shows that a total number of 322 accused were found B
· true, which consists of 286 from Hindu community and 36 from
Muslim community. The chart also shows the names and
residential particulars, crime number, police station, other
details about action against those accused. The State also filed
list of surrendered accused in murder cases which comes to C
total 13 persons (4 from Hindu community and 9 from Muslim
community), all from Muzaffarnagar district. The chart also
shows the names and residential particulars, case number,
police station, offences under various enactments, date of
surrender, etc.
D
Cancellation of Bail:
67. Regarding cancellation of bail orders, on hearing the
counsel for the petitioners, this Court sought details of
cancellation of bail and action undertaken by the State with E
regard to those accused who have been granted bail either by
the Court of Magistrate or Sessions Court. In response to the
same, the State has furnished that against 26 accused persons,
the State has moved for cancellation of bail before the Court
of Sessions. In addition to the same, the State has also placed
F
a chart showing the details of cases in which the State has
·moved before the Court of Sessions. The details furnished
show that in 26 cases in which the accused persons were
charged with various offences under IPC read with Criminal
Amendment Act, though court concerned has granted bail, the
State has moved an application for cancellation of the same. G
The State Authorities are directed to pursue the same
effectively. It is also brought to our notice that in another set of
petitions where the accused persons have been granted bail
by the competent court, the State has already given approval
to file application for cancellation of bail before the High Court H
974 SUPREME COURT REPORTS [2014] 4 S.C.R.
A and the Government counsel has been instructed that necessary
action may be taken for moving such applications. The details
of moving applications for cancellation of bail against 57
accused persons to be filed before the High Court are furnished
before this Court for our perusal. The Government counsel has
B also brought to our notice such government orders instructing
for moving suc~1 applications for cancellation. During the course
of hearing, the counsel for the State has also brought to our
notice Government Order dated 09.01.2014 for cancellation of
the bail of Azad and others in Case Crime No. 415 of 2013.
c 68. During the course of hearing, various counsel
appearing for the petitioners submitted that bail has been
granted to some accused persons as the State had not strongly
opposed their bail applications. By d·rawing our attention to
certain documents placed before us, the counsel for the State
D has pointed out that the Additional Public Prosecutor had
opposed the grant of bail then and there.
69. Regarding action taken against persons belonging to
various political parties, it is highlighted that the State
E Government has taken strict action against all the accused
persons irrespective of their political affiliation. Learned counsel
for the State has pointed out that even the State Government
invoked the provisions of National Security Act wherever
required. It is pointed out that the provisions of National Security
F Act were invoked against 11 persons. Mr. Sangeet Som, MLA,
BJP, and Mr. Suresh Rana, MLA, BJP were amongst those 11
persons. The chart produced by the State for our consideration
shows that against 11 persons hailing from Districts
Muzaffarnagar, Shamli and Baghpat detention under National
G Security Act was claimed and the appropriate Board approved
five detention orders and disapproved 6.
70. In addition to the same, the State of U.P. has moved
application for cancellation of bail in relation to Mr. Kadir Rana,
M.P. BSP, Mr. Suresh Rana, MLA, BJP, Mr. Kunwar Bhartendu,
H MLA, BJP and Mr. Shyam Lal. The State has also assured that
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 975
[P. SATHASIVAM, CJI.]
against Mr. Sangeet Som, MLA BJP an application for A
cancellation of bail will be moved by the State of UP before the
Allahabad High Court. It is also brought to our notice that
against Mr. Sangeet Som, a case Crime No. 888/13 under
Sections 153A, 420, 120B and 66AE of the IT Act read with
7th Criminal Law Amendment Act was lodged in which it was B
alleged that the accused had uploaded a false and
inflammatory video clipping intended to incite communal
violence in the State. In this regard, it is submitted that the said
clipping was uploaded on the social website-Facebook which
has its server in the US. It is submitted that the request for c
providing the details of the IP address of the computer which
has been used to upload the said video is being made to the
said company following the provisions of Section 166A of the
Code. Letter dated 26.11.2013, written by the Under Secretary,
Government of India to the Home Department, State of U.P. is D
also placed before us.
Follow-up action initiated for Missing Persons:
71. With regard to the allegations regarding missing
persons, the State has placed materials to show that there were E
total 24 reported missing persons, out of which 3 have been
traced and have returned to their houses and 2 dead bodies
have been found. Remaining 19 persons are still missing and
the State administration has assured that necessary steps have
been taken for the same. If any person is declared dead in terms F
of Registration of Births and Deaths Act, 1969 and the Indian
Evidence Act, the State will consider for paying compensation
to the kith and kin of their families.
Whether investigation by SIT/CBI is required:
G
72. Regarding the claim for transfer of investigation to
specialized agency like the Central Bureau of Investigation
(CBI) or Special Investigation Team (SIT) or transfer of trial
outside the State of U.P., it is useful to refer the principles
enunciated by this Court in various decisions:- H
976 SUPREME COURT REPORTS [2014] 4 S.C.R.
A 73. In Common Cause, A Registered Society vs. Union
of India and Others, (1999) 6 sec 667, while considering the
scope and ambit of a criminal case being tried or to direct an
investigation by the CBI, a three-Judge Bench of this Court held
as under:-
B
"174. The other direction, namely, the direction to CBI to
investigate "any other offence" is wholly erroneous and
cannot be sustained. Obviously, direction for investigation
can be given only if an offence is, prima facie, found to
have been committed or a person's involvement is prima
c facie established, but a direction to CBI to investigate
whether any person has committed an offence or not
cannot be legally given. Such a direction would be contrary
to the concept and philosophy of "LIFE" and "LIBERTY"
guaranteed to a person under Article 21 of the Constitution.
D This direction is in complete negation of various decisions
of this Court in which the concept of "LIFE" has been
explained in a manner which has infused "LIFE" into the
letters of Article 21 ."
E 74. In. Secretary, Minor Irrigation & Rural Engineering
Services,· U.P. and Others vs. Sahngoo Ram Arya and
Another, (2002) 5 sec 521, again, considering the power of
the High Court under Article 226 to direct an inquiry by the CBI,
this Court held thus:
F "5. While none can dispute the power of the High Court
under Article 226 to direct an inquiry by CBI, the said
power can be exercised only in cases where there is
sufficient material to come to a prima facie conclusion that
there is a need for such inquiry. It is not sufficient to have
G such material in the pleadings. On the contrary, there is a
need for the High Court on consideration of such pleadings
to come to the conclusion that the material before it is
sufficient to direct such an inquiry by CBI. This is a
requirement which is clearly deducible from the judgment
of this Court in the case of Common Cause.
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 977
[P. SATHASIVAM, CJI.]
75. In State of West Bengal and Others vs. Committee A
for Protection of Democratic Rights, West Bengal and Others,
{2010) 3 SCC 571, a Constitution Bench of this Court while
considering direction of High Court under Article 226 or this
Court under Article 32, directing the CBI to investigate
cognizable offence in a State without the consent of the State B
Government, explained its scope and permissibility. Among
various reasons, the direction in para 70 is relevant which is
as under:
70. Before parting with the case, we deem it necessary to
emphasise that despite wide powers conferred by Articles C
32 and 226 of the Constitution, while passing any order,
the Courts must bear in mind certain self-imposed
limitations on the exercise of these constitutional powers.
The very plenitude of ~he power under the said articles
requires great caution in its exercise. Insofar as the D
question of issuing a direction to CBI to conduct
investigation in a case is concerned, although no inflexible
guidelines can be laid down to decide whether or not such
power should be exercised but time and again it has been
reiterated that such an order is not to be passed as a E
matter of routine or merely because a party has levelled
some allegations against the local police. This
extraordinary power must be exercised sparingly,
cautiously and in exceptional situations where it becomes
necessary to provide credibility and instil confidence in F
investigatioi;is or where the incident may have national ,and
international ramifications or where such an order may be
necessary for doing complete justice and enforcing the
fundamental rights. Otherwise CBI would be flooded with
a large number of cases and with limited resources, may G
find it difficult to properly investigate even serious cases
and in the process lose its credibility and purpose with
unsatisfactory investigations."
76. With these principles, let us test whether the case on H
978 SUPREME COURT REPORTS [2014] 4 S.C.R.
A hand, particularly, at this juncture is required to be entrusted to
CBI or SIT to be formed with personnel from other States.
77. Almost all the petitioners, either victims, NGOs, persons
hailing from that region, prayed for an independent
investigation of the entire incident relating to communal violence
8
and the subsequent action either by the Special Investigation
Team (SIT) consisting of officers from outside U.P. or by the
independent Agency like CBI. We have already referred and
adverted to the grievance of various group of persons,
organizations as well as the stand taken by the Union of India
C and specific stand taken by the State of Uttar Pradesh including
having taken appropriate action against the culprits,
rehabilitation measures for the victims, compensation for the
loss of properties, both movable and immovable, for injuries,
both simple and grievous, and fatal cases. The State has also
D highlighted the steps taken in respect of rape victims due to
the communal violence and rehabilitation measures for those
victims. In addition to the same, the State has also highlighted
the cases filed against the persons concerned irrespective of
their political affiliations, cases filed against political persons,
E either MLA/MPs and the status as on elate.
78. It is not in dispute that subsequent to the incident that
took place on 07.09.2013 and afterwards, in and around
Muzaffarnagar, a large number of persons, particularly, villagers
F from within and neighbouring districts, fled from their homes out
of fear and took shelter in relief camps in various villages of
two districts of Muzaffarnagar and Shamli. It is also seen that
total 58 camps were made functional of which 41 camps were
established in the district Muzaffarnagar and 17 in the district
G Shamli.
79. The incidents of communal disturbance flared up
sometimes on flimsy grounds blaming one community to other.
Whatever may be, after the Mahapanchayat that took place on
07.09.2013, certain incidents such as eve teasing of other
H community girls followed by murders had taken place. Further,
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 979
[P. SATHASIVAM,. CJI.]
inasmuch as thousands of people gathered at a particular place A
in order to take revenge or retaliate, it is expected by the State
intelligence agencies to apprise the State Government and the
District Administration in particular, to prevent such communal
violence. Though the Central Government even on day one
informed this Court through the Attorney General for India that B
all necessary help, both financially and for maintaining law and
order, had been provided to the State, there is no authoritative
information to this Court whether there was any advance
intimation to the State about the communal violence. Likewise,
though the State has enumerated several aspects in the form c
of eleven compliance reports, there is no information to this
Court whether the District Administration was sounded about
the proposed action between the two communities. Had the
Central and State intelligence agencies smelt these problems
in advance and alerted the District Administration, the D
unfortunate incidents could have been prevented. Thus, we
prima facie hold the State government responsible for being
negligent at the initial stage in not anticipating the communal
violence and for taking necessary steps for its prevention.
80. At this juncture, viz., after a period of six months, E
whether an agency other than the State is to be directed to
investigate and take appropriate steps. We have already noted
various circumstances under which the court can entrust
investigation to agency other than the State such as SIT or CBI.
We have to keep in mind, as observed by the Constitution F
Bench referred to supra, that no inflexible guidelines can be laid
down to decide whether or not such power should be
exercised. However, this Court reiterated that such order is not
to be passed as a matter of routine or merely because a party
has levelled some allegations against the State police. In other G
words, this extraordinary power must be exercised sparingly,
cautiously and in exceptional situations where it becomes
necessary to provide credibility or instill confidence in
investigatjon or where such an order may be necessary for
doing complete justice in enforcing the fundamental rights. H
980 SUPREME COURT REPORTS [2014) 4 S.C.R.
A Apart from this, immediately after the occurrence, Writ Petition
(Crl.) No. 155 of 2013 came to be filed in this Court even in
the first week of September, 2013. Pursuant to the same, this
Court, after taking note of the importance of the issues, viz.,
many people lost their lives and properties, sufferings of both
s communities and children, issued various directions to the State
and the Central Government. We have already extracted those
orders in the earlier part of our judgment.
81. It is relevant to note that based on various orders of
C this Court, even after the incident, the State itself has constituted
a Special Investigation Cell (SIC). It is also brought to our notice
that a total of 566 cases are being investigated by the SIC and
after noting that many cases were false and many persons were
wrongly named in the FIRs, 549 names have been removed.
A total of 48 registered cases have been found false and have
D been removed from the records. It is also brought to our notice
that names of 69 persons in murder cases have been found
false and those names have also been removed from the array
of parties. The details furnished by the State also show that after
constitution of the SIC in September, it inquired about all those
E persons who had fled from their villages and had taken refuge
in various relief camps and noted their problems by taking list
of such persons staying in camps and getting their mobile
numbers. The SIC also recorded the statements of the
complainants and witnesses. We have already referred to the
F total number of arrested persons in communal violence in
M!-'zaffarnagar and adjoining areas, list of total. surrendered
accused in the investigated cases, number of persons against
whom action was taken due to communal violence, details
regarding political persons, difficulties faced by the District
G Police in making arrests, details regarding recovery of AK-47
and 9 MM cartridges in village Kirthal P.S. Ramola, District
Baghpat. They also placed the details about the steps taken
in respect of case Crime No. 148 of 2013 (Fagana,
Muzaffarnagar) and 403/2013 (Janath, Muzaffarnagar). In the
H list of persons, SIC also noted community-wise affiliation of their
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 981
[P. SATHASIVAM, CJI.]
political parties etc. A
82. In respect of cases of rape, the State has assured this
·. Court that they are taking effective steps to apprehend all the
accused and in providing security cover to the rape victims. 50
teams of police personnel have been constituted in order to 8
arrest the accused persons in rape and other cases. The State
has also filed details and progress of rape and molestation
cases, statement of rape victims under Section 164 of the
Code etc.
83. We have already noted that action had been taken C
against 11 persons under the provisions of the National Security
Act as well as persons belonging to various political parties.
The State has also furnished the details regarding 24 missing
persons out of which 3 have been traced and is taking effective
steps for tracing the remaining missing persons. D
84. In respect of murder cases, the State has filed a
separate chart showing the list of accused persons, verification
of persons concerned who were involved, list of surrendered
accused in murder cases as well as various other steps for E
apprehending the remaining accused. The State has also
highlighted that through their public prosecutors/ counsel, it is
taking effective steps for cancellation of bail in those heinous
crimes in which persons involved have secured bail.
85. In the light of various steps taken by the State, facts F
and figures, statistics supported ,by materials coupled with the
various principles enunciated in ttie decisions referred above,
we are of the view that there is no need to either constitute SIT
or entrust the investigation to the CBI at this juncture. However,
we are conscious of the fact that more effective and stringent G
measures are to be taken by the State administration for which
we are issuing several directions hereunder.
Victim Compensation in Rape Cases:
86. As a long term measure to curb such crimes, a large H
982 SUPREME COURT REPORTS [2014] 4 S.C.R.
A societal change is required via education and awareness. The
Government will have to formulate and implement policies in
order to uplift the socio-economic conditions of women,
sensitization of police and other concerned parties towards the
need for gender equality and it must be done with focus in areas
B where statistically there is higher percentage of crimes against
women.
87. No compensation can be adequate nor can it be of
any respite for the victims but as the State has failed in
C protecting such serious violation of fundamental rights, the State
is duty bound to provide compensation, which may help in
victims' rehabilitation. The humiliation or the reputation that is
snuffed out cannot be recompensed but then monetary
compensation will at least provide some solace.
D 88. In 2009, a new Section 357A was introduced in the
Code which casts a responsibility on the State Governments
to formulate Schemes for compensation to the victims of crime
in coordination with the Central Government whereas,
previously, Section 357 ruled the field which was not mandatory
E in nature and only the offender can be directed to pay
compensation to the victim under this Section. Under ttle new
Section 357 A, the onus is put on the District Legal Service
Authority or State Legal Service Authority to determine the
quantum of compensation in ·each case. However, no rigid
F · formula can be evolved as to have a uniform amount, it should
vary in facts and circumstances of each case. Nevertheless, the
obligation of the State does· not extinguish on payment of
compensation, rehabilitation of victim is also of paramount
importance. The mental trauma that the victim suffers due to
G the commission of such heinous crime, rehabilitation becomes
a must in each and every case.
89. Considering the facts and circumstances of these
cases, we are of the view that the victims in the given case
should be paid a compensation of Rs. 5 lakhs each for
H rehabilitation by the State Government. We, accordingly, direct
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 983
[P. SATHASIVAM, CJI.]
the State Government to make payment of Rs. 5 lakhs, in A
addition to various other benefits, within 4 weeks from today.
Further, we also wish to clarify that, according to Section 3578,
the compensation payable by the State Government under
Section 357A shall be in addition to the payment of fine to the
victim under Section 326A or Section 3760 of the IPC. B
Directions relating to rape cases:
90. We have already noted various steps taken by the
State in respect of rape cases. In addition to the same, in the
light of the apprehensions/grievance expressed by the learned C
counsel for the petitioner in W.P. (Crl.) No. 11 of 2014, we issue
the following directions:
1) The SIC is directed to arrest and produce before the
Court all the persons concerned in respect of petitioners in D
W.P. (Crl.) No. 11 of 2014 as well as other affected victims
within a time-bound manner. They are also directed to record
the statement of the victims under Section 164 of the Code
before a lady Magistrate even if they had made a statement, if
they desire to make additional statement, the same may be E
recorded as requested.
2) The security cover provided to rape victims as furnished
before this Court shall continue till they desire or completion of
the trial whichever is later.
F
3) The victims of rape who are parties in WP. (Crl.) No.
11 of 2014 as well as other rape victims are to be paid
compensation of Rs. 5 lakhs each, in addition to various other
benefits, by the State Government within a period of 4 weeks
~m~~- G
4) The State is also directed to provide other financial
assistance as well as any other scheme applicable to them for
their betterment and to continue their normal avocation.
H
984 SUPREME COURT REPORTS [2014] 4 S.C.R.
A Directions regarding other offences including murder:
1) Sincere efforts shall be made to apprehend all the
accused irrespective of political affiliation and produce
them before the appropriate court.
B 2) The particulars furnished by the State in respect of
criminal action taken against political persons shall be
continued by placing acceptable materials before the court
concerned.
c 3) The reason given by the State Police that whenever
efforts were made to arrest the persons involved, women
folk of their village form a human chain and block the police
in execution of their work is unacceptable and untenable.
If there is reliable material against a person irrespective
D of the community or religion, the police have to take sincere
efforts in arresting those persons and produce them before
the court concerned. There shall not be any let up and upon
failure on the part of the police, action will be taken against
the officers concerned. The victims or aggrieved persons
are free to move such application before the jurisdictional
E
court.
4) ln respect of recovery of AK-47, 9 mm cartridges in
village Kirthal, the police have to identify the persons
concerned and proceed against them under the provisions
F of IPC and Arms Act.
5) In respeCt of Case Crime No. 148/2013, P.S. Fugana,
Case Crime No. 403/2013, 404/2013 P.S. Jansath, more
efforts must be taken for apprehending all the genuine
G accused and to produce them before the court for further
action.
6) The investigating authorities should eschew communal
bias and proceed against all the offenders irrespective of
their caste, community and religior;i.
H
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 985
[P. SATHASIVAM, CJI.]
7) In the case of murders, the police must take sincere A
efforts to identify and arrest the real culprits within a time-
bound manner preferably within a period of two months
and report the same before the jurisdictional court
concerned.
B
8) In heinous crimes, including murder cases, if any of the
real accused was granted bail, as assured before this
Court, the District Administration has to take effective
steps for cancellation of their bail in appropriate cases.
9) As assured before this Court, the persons concerned C
in the higher level to follow the letters issued to various
government counsel/police officers/1.0. for apprehending
the real accused and re-arresting the released persons by
getting appropriate orders from the court concerned.
D
10) The authorities concerned should continue to take
effective steps to locate the missing persons.
Financial Assistance/Rehabilitation measures:
1) Children who died in ~he violence as well as in the E
camps due to cold weather conditions shall be compensated
to their parents as that of others.
2) The State is directed to identify the left out injured
persons (simple/grievous), next kin of the deceased who died
F
in the communal violence and settle the compensation agreed
to before this Court (Rs. 10,00,000 + Rs. 3',00,000 + Rs.
2,00,000 = Total Rs. 15,00,000). It is also directed to settle
compensation for the damages caused to movable/immovable
properties of the person concerned due to the violence if they
have not already received the same. Any of the victims referred G
above such as rape victims and the family members of the
deceased who died in the violence, if they have not received
any amount so far, they are permitted to make proper
application to the local/district authority concerned within a
period of one month from today. If any such application is made, H
986 SUPREME COURT REPORTS [2014] 4 S.C.R.
A the authorities concerned are directed to verify and after
satisfaction settle the eligible amounts within a period of one
month thereafter. The District Administration is also directed
to implement Rani Lakshmibai Pension Yojana to eligible
persons and consider the case of persons who were left out
B or who have not made any such application till this date. Any
of the victims, if need arise, may also approach the District
Legal Services Authority and the DLSAs are directed to
provide necessary help to the victims in the light of various
directions referred above.
c 3) For any reason, after receipt of Rs. 5 lakhs those who
want to settle to other places than the place of occurrence after
change of mind and in order to join their relatives and friends
in the village/place where they lived at the time of violence, are
permitted to resettle, in that event, the State is directed not to
D recover the amount already paid. However, the State is free to
ascertain the genuineness of those persons concerned in their
effort to resettle in the same place. The District Administration
has to make all endeavours for their peaceful return to the same
place in order to continue the same avocation along with their
E relatives and friends.
4) The officers who have grievance about their transfer on
vindictive ground from the district concerned to far away places
are free to make a representation to the competent authority
F within a period of one month from today. If any such
representation is made and if the same is acceptable, the
competent authority is directed to take a fresh decision.
5) Adequate compensation should be paid to the farmers
who lost their source of livelihood, namely, tractors, catties,
sugarcane crops etc. In this category, the farmers who were yet
to get compensation for the same are permitted to make a
representation within one month from today supported by
materials to the local/district administration. If any such
representation is made. the same shall be considered and
disposed off within a period of one month thereafter.
MOHD. HAROON & ORS. v. UNION OF INDIA & ANR. 987
[P. SATHASIVAM, CJI.]
91. Finally, we reiterate that it is the responsibility of the A
State Administration in association with the intelligence
agencies of both State and Centre to prevent such recurrence
of communal violence in any part of the State. It is made clear
that the officers responsible for maintaining law and order, if
found negligent, should be brought under the ambit of law B
irrespective of their status. It is important that the relief, as
enumerated above, not only be provided to all needy families
irrespective of their religion but it should also be provided to
only genuinely affected families.
92. With the above directions, we dispose of all the matters C
including the intervention applications. However, the affected
persons, if they come across any impediment in implementing
the above directions, are permitted to highlight their grievance
by filing application before this Court in the above matters after
a period of two months from today. It is made clear that only D
after exhaustion of efforts with the District authorities
concerned, they are permitted to file such application in the
above disposed off matters. In those cases which have not
been transferred to this Court and are still pending before the
High Court of Allahabad, the parties are free to move the High E
Court for disposal of the same in accordance with the above
directions.
Devika Gujral Matters disposed of.
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