CIVIL WRIT PETITION NO. 4122 OF 2007 -1- IN THE HIGH COURT OF PUNJAB AND HARYANA AT CHANDIGARH. DATE OF DECISION: November 10, 2008. Parties Name Joint Action Forum ..PETITIONER VERSUS State of Haryana and others ...RESPONDENTS CORAM: HON'BLE MR. JUSTICE T.S.THAKUR, CHIEF JUSTICE HON'BLE MR. JUSTICE JASBIR SINGH PRESENT: Mr. R.S.Bains, Advocate, for the petitioner Mr. Rameshwar Malik, Addl. A.G., Haryana, for respondents No. 1 to 3. Mr. Ashish Tanwar, Advocate; 1. Whether Reporters of local papers may be allowed to see the judgment? 2. To be referred to the Reporters or not? 3. Whether the judgment should be reported in the Digest? T.S.THAKUR, CHIEF JUSTICE (oral) JUDGMENT Scheduled Castes and Scheduled Tribes (Prevention of CIVIL WRIT PETITION NO. 4122 OF 2007 -2- Attrocities) Act, 1989, stipulates punishment for offences of attrocities committed on members of the Scheduled Castes and the Scheduled Tribes, provides for externment of those, who are likely to commit such acts, and makes other incidental provisions. Section 21 of the Act empowers the Central Government to make rules, to provide for effective implementation of the Act and in particular provisions for the economic and social rehabilitation of victims of the attrocities. In exercise of the said power, the Central Government have framed what are known as the Scheduled Castes and the Scheduled Tribes (Prevention of Attrocities) Rules, 1995. Rule 6 of the said Rules stipulates that whenever the District Magistrate or the Sub Divisional Magistrate or any other Executive Magistrate or any Police Officer receives information from any person or upon his own knowledge that an attrocity has been committed on the members of the Scheduled Castes or the Scheduled Tribes within his jurisdiction, he shall immediately visit the place of occurrence to assess the extent of attrocity, loss of life, loss and damage to the property and submit a report forthwith to the State Government. It also provides for drawing up a list of victims, their family members and dependents entitled for relief under the Rules, preparation of a detailed report of the extent of attrocity, loss and damage to the property of the victims, intensive police patrolling in the area and effective and necessary steps to provide protection to the witnesses and other sympathisers of the victims, apart from providing immediate relief to the victims. Rule 8 of the Rules envisages setting up of Scheduled Castes' and Scheduled Tribes' Protection Cell, while Rules 9 and 10 of the said Rules require the Government to nominate Nodal Officer of the level of a CIVIL WRIT PETITION NO. 4122 OF 2007 -3- Secretary to the State Government, preferably belonging to the Scheduled Castes or the Scheduled Tribes and appointing a Special Officer not below the rank of Additional District Magistrate to co-ordinate with the District Magistrate, Superintendent of Police or other officers responsible for implementing the provisions of the Act and the various Committees and the Scheduled Castes' and the Scheduled Tribes' Protection Cell. Rule 12 of the Rules is by far the most significant of the provisions, made by the said Rules and provides for measures to be taken by the District Administration, while sub rules 1 to 4 provide for visit to the place or area, where the attoricity has been committed for assessment of loss of life and damage to the property and for drawing up a list of victims, their family members and dependents entitled for relief, ensure registration of First Information Report by the Police Officers concerned and making arrangements for providing immediate relief in cash or in kind or both to the victims of such attrocity, their family members and dependents according to the scale including food, water, shelter, medical aid etc. Sub Rule 5 of Rule 12 provides for relief to the victim of the attrocity or his/ her so called dependent in respect of death or injury in addition to damage to property. Sub Rule 5 further provides that the grant of relief to the victim shall be in addition to any other right to claim compensation in respect thereof under any other law for the time being in force. In terms of sub rule 6 of Rule 12, relief and rehabilitation facilities mentioned in sub rule 4 have to be provided by the District Magistrate or Sub Divisional Magistrate or any other Executive Magistrate in accordance with the scales provided in the Schedule annexed to the Rules. What is significant is that a report of the relief and rehabilitation facilities, provided to the victim, has to be CIVIL WRIT PETITION NO. 4122 OF 2007 -4- forwarded to the Special Court by the District Magistrate or the Sub Divisional Magistrate or the Executive Magistrate or the Superintendent of Police. In case the Special Court is satisfied that the payment of relief was not made to the victim or his / her dependent in time or the amount of relief or compensation was not sufficient or only a part of payment of relief or compensation was made, it may order for making in full or part the payment of relief or any other kind of assistance. Rule 15 of the Rules requires the Government to prepare a model contingency plan, which shall include a package of relief measures stipulated in the said rule, while rule 16 of the Rules requires the State Government to constitute a High Power Vigilance and Monitoring Committee of not more than 25 members consisting of those, mentioned in the said Rule. It is evident from a conspectus of the provisions of the Act and the Rules, referred to above, that the same provide for a complete code for determination of the rights and the obligations of those affected by attrocities, as defined in the Act. In particular the Rules envisage assessment of the damage caused by any attrocity upon any member of the Scheduled Castes or the Scheduled Tribes community, payment of compensation to him and determination of the adequacy of such compensation by the Special Court concerned, to whom a report is to be submitted in terms of Rule 12 (Supra). In the present writ petition, the petitioner -Forum has brought into focus the alleged failure of the respondents in complying with the provisions of the Act and the Rules, mentioned above. According to the averments, made in the writ petition, attrocities on the members of the Scheduled Castes and the Scheduled Tribes community living in Salwan in CIVIL WRIT PETITION NO. 4122 OF 2007 -5- district Karnal of the State of Haryana were committed by the Rajput community living in the said village on the Ist of March, 2007. It is alleged that the Rajput community had attacked the Dalit community , in which nearly 200 Dalit houses were burnt and destroyed and 25 Dalits including women and children had to be shifted to a Trauma Centre at Karnal after the attack. The Police, though informed immediately, is alleged to have reached the spot three hours after the attack, in which electricity supply to the Dalit houses were cut. The alleged attrocity was covered by the Electronic as well as Print Media, alleges the petitioner. The writ petition further alleges that two deaths had taken place, one each from the Dalit and the Rajput communities and complains of neglect on the part of the authorities in assessing the damage, caused by the attrocity committed upon the Dalit community and in providing immediate succor to them including reconstruction of houses, that had been burnt down. The petition, therefore, prays for a mandamus directing the respondents to remove the police force in village Salwan as the same is biased in favour of the members of the high castes including the Rajput community and for payment of compensation strictly in accordance with the Scheduled Castes and the Scheduled Tribes (Prevention of Attrocities) Act, 1989. It also prays for a direction to the respondents to restore and rehabilitate each affected family by reconstruction of their houses at the expense of the State and to provide food, water, clothing, shelter, medical aid, transportation besides allotment of agricultural land. In response to a notice, issued by this Court, the respondents have filed three affidavits – one by each respondent. In the affidavit filed by Shri V.P.Vats, Under Secretary to Government of Haryana, Home CIVIL WRIT PETITION NO. 4122 OF 2007 -6- Department, it is inter alia alleged that an incident in village Salwan had taken place on the Ist of March, 2007, in relation to which FIR No. 77, dated March 1, 2007, was registered in the Police Station at Assandh for offences punishable under Sections 148/149/323/452 /427/307/436/332/ 353/120-B IPC, apart from Section 3 of the Scheduled Castes and the Scheduled Tribes (Prevention of Attrocities) Act, 1989. Compensation amount of Rs. 13,00,000/- was also, according to the affidavit, filed by the respondent, provided to 73 affected families/ persons. The atmosphere, according to the affidavit, is now peaceful and there is no tension between the two communities living in the village. The affidavit also refers to certain other incidents in Gohana, Budhram, Farmana, Kilazafagarh and Dohala, in relation to which also police cases were registered and financial assistance provided to those affected by the same. The allegation that the police force posted in these villages is sympathetic to any particular community has been denied. It is alleged that round the clock police surveillance has been provided to avoid any other incident and adequate steps have been taken to maintain law and order. A temporary police post was also set up in village Salwan w.e.f. March 2, 2007, to maintain effective vigil in the area and to create a sense of security among the Harijans living in the same. It is also alleged that a team of National Commission for Scheduled Castes had visited the village and that no adverse report was made to the Commission. The Deputy Commissioner and Superintendent of Police, Karnal, had, according to the affidavit, camped in the village for a number of days and restored peace and harmony and distributed compensation to the tune of Rs. 13,00,000/- among the affected families. In the affidavit, filed by Shri Sibash Kabiraj, IPS, CIVIL WRIT PETITION NO. 4122 OF 2007 -7- Superintendent of Police, Karnal, it is reiterated that on February 26, 2007, at about 6 PM, two Dalit boys of village Salwan, namely, Pardeep and Lilu had an altercation with Mahipal Rajput of village Salwan over grazing of sheep in his fields and on the next day, i.e., February 27, 2007, badly mutilated deadbody of Mahipal Rajput was found in his fields as the assailants had used sharp edged and blunt weapons to attack him. An FIR No. 74, dated February 27, 2004, for offences under Sections 120-B and 302 read with Section 34 of the Indian Penal Code was registered in Police Station Assandh in relation to the said incident. In the course of investigation, it was found that Pardeep and Anil alias Lilu in connivance with Pala alias Shish Pal and Bahadur alias Rajesh had committed the murder of said Mahipal. All the four accused persons were accordingly arrested in connection with the said incident and a charge-sheet filed in the competent Court. The members of deceased Mahipal community caused violence in Dalit Basti, Salwan, and although an ASI and a constable were present in the village in connection with the investigation of the murder case, referred to above, the violence could not be controlled by them. FIR No. 77 was accordingly registered as noticed earlier. The affidavit gives the details of how the incident took place and also that criminal cases have been registered against those responsible for the same. It is alleged that the District Administration is vigilant for providing protection to the Dalit community in the village and the situation is fully under control. The affidavit, filed by Shri B.S.Malik, IAS, District Magistrate, Karnal, refers to the provisions for food, clothes and distribution of monetary assistance to the 73 affected families of the area and states that the total amount thus released to the affected families was more than 13 Lakhs CIVIL WRIT PETITION NO. 4122 OF 2007 -8- in terms of the provisions of the Act and the Rules made thereunder. The affidavit refers to the details of such payments given in Annexures R-2 to R- 5, which enumerate the names of the persons, to whom such payments have been made. Also placed on record is a report, submitted by the Deputy Commissioner, Karnal, to the National Commission for Scheduled Castes, New Delhi, in relation to the incidents and the steps that have been taken by the Government. Appearing for the petitioner Mr. Bains made a three-fold submission before us. Firstly, he contended that the payment of monetary compensation to the victims of the attrocities was not adequate. He submitted that the determination of the compensation and the quantum were both unsatisfactory. In support of that submission, he referred to the provisions made by the Act and the Rules framed thereunder . Secondly, he contended that there were individuals, who had fled from the village and whose names did not figure in the Survey conducted by the authorities for purpose of payment of such compensation. The list of the victims, prepared by the authorities, was, therefore, not exhaustive nor factually correct. This, according to the learned counsel, called for a proper enquiry by the District Magistrate for determination of the compensation, payable to those, who have not been included in the list earlier prepared by them. Thirdly, he contended that the Government had not taken any steps in terms of nomination of a Nodal Officer, appointment of a Special Officer and setting up of Scheduled Castes' and the Scheduled Tribes' Protection Cell, as envisaged by the Scheduled Castes and the Scheduled Tribes (Prevention of Attrocities) Rules, 1995. This, according to the learned counsel, shows the effort of the State Government to be half-hearted leaving much to be CIVIL WRIT PETITION NO. 4122 OF 2007 -9- desired. The Government, argued the learned counsel, ought to be directed to take necessary steps to ensure that the mechanism provided under the Act and the Rules works effectively. On behalf of the respondents, it was argued by Mr. Malik that the preparation of the Survey List was fair and objective and as per the position obtaining on the spot . Who ever made any claim for payment of compensation on account of any loss suffered by him , and came forward before the District Magistrate was paid compensation after verification. It was not open to the petitioner Forum to espouse their cause as, according to Mr. Malik, no one, who had actually suffered any damage had been left out of the list. He submitted that even the National Commission for Scheduled Castes had been monitoring the steps , taken by the State Government, and its officers had not pointed out any deficiency in the process of assessment or dereliction on their part in the discharge of the statutory duties. It was further argued that the question of adequacy or sufficiency of the amounts, paid to the victims, was a seriously disputed question of fact, which could not be satisfactorily determined in the present writ proceedings. The proper course for the affected parties was to approach the Special Court that was competent to determine any question, relating to sufficiency or adequacy of compensation, in terms of Rule 12(7) of the Rules mentioned above. As regards setting up of the State Level Vigilance and Monitoring Committee and appointment of Nodal Officer or Special Officer ,Mr. Malik was unable to say whether any such appointments had been made without taking instructions. He urged that since the writ petition did not make any such grievance, he had no instructions regarding such appointments having been made but urged that even if such appointments had not been made, this CIVIL WRIT PETITION NO. 4122 OF 2007 -10- Court can direct the appointments to be made. We have given our careful consideration to the submissions made at the Bar and perused the paper book. The material facts are not in dispute. That village Salwan in Karnal district of State of Haryana was hit by violence involving attrocities upon the members of the Scheduled Castes and the Scheduled Tribes community is not in dispute. It is also not in dispute that extensive damage was caused in the course of the said incident to the property, owned by members of the Dalit community. That compensation was due and payable to those, who suffered such damage, has not been denied before us by Mr. Malik, counsel appearing for the respondents. As a matter of fact, the survey reports, prepared and enclosed with the counter affidavits, shows the details of the persons, to whom such compensation has been paid. What is, however, argued on behalf of the petitioner is that the said compensation was not sufficient nor was compensation paid to each member of the community, who suffered the damage. Whether or not there are any members of the community, who were left out of the survey list, would necessarily require a factual enquiry to be made just as the adequacy or sufficiency of the compensation to be paid would require an enquiry by the competent authority. In so far as the sufficiency of the compensation is concerned, the Rules provide for examination and determination of that issue by the Special Court, established under the Act. Rule 12(7) of the said Rules is in this regard relevant and reads: “A report of the relief and rehabilitation facilities provided to the victims shall also be forwarded to the Special Court by the District Magistrate or the Sub-Divisional Magistrate or the CIVIL WRIT PETITION NO. 4122 OF 2007 -11- Executive Magistrate or Superintendent of Police. In case the Special Court is satisfied that the payment of relief was not made to the victim or his/her dependent in time or the amount of relief or compensation was not sufficient or only a part of payment of relief or compensation was made, it may order for making in full or part the payment of relief or any other kind of assistance.” Mr. Malik was unable to state as to whether a report of the relief and rehabilitation facilities provided to the victims has been forwarded to the Special Court in terms of the above provision. Indeed there is no averment on either side in this regard. The writ petition as also the counter affidavits are silent as to the submission of any such report. The fact, however, remains that the issue has been raised before us regarding the sufficiency of the payment made to the victims of the attrocities, which can in terms of Rule 12(7) (supra) be adequately examined and appropriate directions regarding payment issued by the Special Court, established under the Act. All that is required to be done is that a report regarding relief and rehabilitation facilities provided to the victims should be submitted by the District Magistrate or the Sub Divisional Magistrate or the Executive Magistrate, as the case may be, to the said Court. In case no report has been submitted by the District Magistrate or the Sub Divisional Magistrate or the Executive Magistrate concerned, they shall do the needful expeditiously but not later than six weeks from the date a copy of this order is received by the concerned authority. It shall then be open to those, who are dissatisfied with the amount of compensation determined in his/her CIVIL WRIT PETITION NO. 4122 OF 2007 -12- favour, to raise the question of sufficiency of compensation before the Special Court, which would then examine the said objection and issue appropriate orders in terms of Rule 12(7) (supra). As regards payments , due to those who do not figure in the survey list and who have not been recognised by the District Magistrate as victims of the attrocities, we are of the view that the writ petitioner can point out such cases before the District Magistrate, in which event the District Magistrate would hold an enquiry into the claim and determine and pay compensation in terms of the Schedule to the Rules. For the present, there are no such claims pending before the District Magistrate but we see no reason why such a claim should be declined by the District Magistrate in case the same is made within a period of eight weeks from the date of receipt of copy of this order. We accordingly direct the District Magistrate, Karnal, to entertain and verify any claim that may be made by any one, alleged to be the victim of the attrocity in relation to the incident in question, if such a claim is made within eight weeks from the date of receipt of copy of this order. Needless to say that a report about the claim of any such victim shall also be made to the Special Court, before whom person concerned can seek appropriate redress, if he is dissatisfied with the amount of compensation paid. The only aspect that we are left with is the appointment of Nodal Officer under Rule 9, Special Officer under Rule 10 and a constitution of a monitoring Committee in terms of Rule 16, referred to earlier. As fairly stated by Mr. Malik, in addition to nomination of a Nodal Officer and a Special Officer, the rules require constitution of a Committee within the contemplation of Rule 16. A prosecution cell in terms of Rule 8 CIVIL WRIT PETITION NO. 4122 OF 2007 -13- has also to be set up. In the circumstances, the Government ought to take appropriate steps in that regard also to ensure that all such things as are necessary for an effective implementation of the provisions of the Act are done without any further delay, if the same has not already been done With above directions, this writ petition is disposed of leaving the parties to bear their own costs. ( T.S.THAKUR) CHIEF JUSTICE (JASBIR SINGH) November 10, 2008. JUDGE DKC