A Handbook For Justice SC and ST Act

The Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989
A handbook for Justice

(A field guide for human rights defenders, advocates,
victims, witnesses, and their supporters)
Human Rights Advocacy and Research Foundation

The Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989
A handbook for Justice


e: [email protected] | w: www.hrf.net.in
A handbook for justice
Version 1.0
March 2024
Creative Commons License 4.0
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Table of Contents
Acknowledgements ...................................................................................................................13
A guide to the handbook ............................................................................................................15
The need for citizens’ monitoring ...............................................................................................17
Glossary....................................................................................................................................21
1 CITIZENS’ AUDIT REPORT 2023: EXECUTIVE SUMMARY
Foreword – Justice Madan B. Lokur .......................................................................................................29

Message – MoS Ramdas Athawale ............................................................................................31
Why a citizens’ audit report?......................................................................................................33
Fill the gaps.............................................................................................................................................33
Fulfil fundamental duties ..........................................................................................................................36
Full systems monitoring ..........................................................................................................................38
Terminology...............................................................................................................................39
Methodology .............................................................................................................................40
People and process ...................................................................................................................41
Context ....................................................................................................................................43
Status of implementation ...........................................................................................................45
Crime recording ......................................................................................................................................45
Crimes against women ............................................................................................................................49
Charge–sheeting .....................................................................................................................................57
Special courts and pendency...................................................................................................................61
Convictions .............................................................................................................................................64
Appeals...................................................................................................................................................66
Relief, socioeconomic rehabilitation .........................................................................................................67
Monitoring mechanisms ..........................................................................................................................69
The state level high power vigilance and monitoring committee ..................................................................................69
The district vigilance and monitoring committee .........................................................................................................71
The subdivisional vigilance and monitoring committee................................................................................................71
Other state mechanisms..........................................................................................................................72
Action required ..........................................................................................................................76
Crime recording ......................................................................................................................................76
Charge–sheeting .....................................................................................................................................77
Administration of justice ..........................................................................................................................77
Special court.............................................................................................................................................................77
Support and protection for victims and witnesses .....................................................................................................77
Relief.........................................................................................................................................................................78
Convictions .............................................................................................................................................78
Appeals...................................................................................................................................................79
Instant monetary relief.............................................................................................................................79
Relief.........................................................................................................................................................................81
Travel allowance and maintenance expenses..............................................................................................................81
Socioeconomic rehabilitation .....................................................................................................................................82
POA Handbook for Justice – 2024 Table of Content 3

State level high power vigilance and monitoring committee meetings..........................................................................83
District vigilance and monitoring committee meetings ................................................................................................83
Subdivisional vigilance and monitoring committee meetings .......................................................................................84
State level .................................................................................................................................................................84
Contingency plans .....................................................................................................................................................84
Surveys.....................................................................................................................................................................85
Atrocity prone areas ..................................................................................................................................................85
Special officers..........................................................................................................................................................86
Special police stations ...............................................................................................................................................86
Awareness programmes ............................................................................................................................................86
Support to NGOs.....................................................................................................................................86
Accountability .........................................................................................................................................87
Reporting................................................................................................................................................88
Data and information management ..........................................................................................................88
Additional data needed for the state annual reports..............................................................................89
Prevention ..........................................................................................................................................89
Recorded crime ..................................................................................................................................89
Relief, allowances, socioeconomic rehabilitation..................................................................................90
2 INTRODUCTION TO THE ACT AND RULES
A history of the Act....................................................................................................................93

The Constitutional architecture.................................................................................................................93
From the Constitution to PCRA.................................................................................................................94
The Act, 1989 .........................................................................................................................................97
The Rules, 1995....................................................................................................................................100
The social context .................................................................................................................................102
Official roles and responsibilities ..............................................................................................106
Responsibility for implementation ..........................................................................................................106
State .......................................................................................................................................................................106
Union ......................................................................................................................................................................107
Constitutional bodies to monitor safeguards...........................................................................................107
National Commission for Scheduled Castes .............................................................................................................107
National Commission for Scheduled Tribes...............................................................................................................108
Committee for effective coordination........................................................................................................................108
The Parliamentary Committee on the Welfare of Scheduled Castes and Scheduled Tribes..........................................109
Centrally sponsored schemes................................................................................................................109
National helpline against atrocities .........................................................................................................110
Key features of the Act.............................................................................................................111
When it can be invoked .........................................................................................................................111
Definition of crimes ...............................................................................................................................111
Additional punishment and relief ............................................................................................................112
Who can file a complaint .......................................................................................................................112
Registration of FIR.................................................................................................................................113
No anticipatory bail ...............................................................................................................................113
Time bound investigation.......................................................................................................................113
4 Table of Content POA Handbook for Justice – 2024

Time bound trial and appeals .................................................................................................................113
Precise, timely reporting........................................................................................................................114
Precise vigilance and monitoring mechanisms .......................................................................................115
Instant monetary relief...........................................................................................................................116
TAME, relief, and socioeconomic rehabilitation.......................................................................................116
Arming scheduled communities.............................................................................................................117
Externment of offenders.........................................................................................................................117
Duty of the state to protect witnesses ....................................................................................................117
Direct responsibility of highest political, civil, legal, and police officials ...................................................118
Appointment of officials with the right aptitude only................................................................................119
Rights of victims and witnesses.............................................................................................................119
Formal role for civil society organisations ..............................................................................................121
Convergence, anchored by social justice ...............................................................................................122
3 MANDATORY MINIMUM STATE RESPONSE
Relief.......................................................................................................................................125
Socioeconomic rehabilitation ...................................................................................................126
Mandatory restoration of rights and services............................................................................126
Dr Ambedkar National Relief ....................................................................................................129
Annexure 3.1: Dr Ambedkar National Relief ..............................................................................131
Annexure 3.2: Merging DANR into CSS (13 January 2023 Circular)..........................................136
Contingency plan simplified .....................................................................................................138
4 MONITORING A CASE
Introduction .............................................................................................................................147
Before you start.......................................................................................................................147
Using RTI to monitor implementation .....................................................................................................147
Know the Acts and Rules.......................................................................................................................149
Get the latest notifications......................................................................................................................150
Know the duties of the state...................................................................................................................152
Know the state mechanisms..................................................................................................................153
Know the rights of the victims, witnesses, and their dependents.............................................................154
Know the rights of human rights organisations and defenders ................................................................154
Know the allowances.............................................................................................................................154
Know the relief and socioeconomic rehabilitation ...................................................................................155
Online resource .......................................................................................................................156
Choose a case to monitor ........................................................................................................157

Information: Filing a complaint .................................................................................................158
Procedure .............................................................................................................................................158
Allowances, relief, and socioeconomic rehabilitation ..............................................................................159
Atrocity case tracking............................................................................................................................160
Additional tracking.................................................................................................................................161
Inquiry: Spot assessment ........................................................................................................161
Procedure .............................................................................................................................................161
Inspection ...............................................................................................................................163
Procedure .............................................................................................................................................163
Investigation ............................................................................................................................166
Procedure .............................................................................................................................................166
Monitoring mechanisms ........................................................................................................................167
Trial.. ......................................................................................................................................170
Procedure .............................................................................................................................................170
Judgement ..............................................................................................................................174
Procedure .............................................................................................................................................174
Appeal ....................................................................................................................................176
Procedure .............................................................................................................................................176
Jail and release........................................................................................................................178
Procedure .............................................................................................................................................178
Annexure 4.1: Checklist for inquiry, inspection, and investigation ..............................................180

5 MONITORING AT THE UNION LEVEL
Introduction .............................................................................................................................197
Constitutional bodies to monitor safeguards .............................................................................198
The parliament ......................................................................................................................................198
The Parliamentary Committee on the Welfare of Scheduled Castes and Scheduled Tribes........................199
National Commission for Scheduled Castes ...........................................................................................199
National Commission for Scheduled Tribes ............................................................................................199
National human rights institutions ..........................................................................................................200
Union ministries ....................................................................................................................................200
Committee for effective coordination......................................................................................................201
Monitoring...............................................................................................................................202
The parliament ......................................................................................................................................202
Other periodic reports............................................................................................................................204
Meeting minutes ...................................................................................................................................204
Annexure 5.1: Centrally sponsored scheme for PCRA and POA Guidelines................................205
Appendix – A:..........................................................................................................................214
Appendix – B: ..........................................................................................................................215
Appendix – C:..........................................................................................................................217
Appendix – D:..........................................................................................................................219
Appendix – E: ..........................................................................................................................220
RTI Format 1: Request for the union annual report u/s 21(4).....................................................221
RTI Format 2: Request for the state annual report u/r 18...........................................................222
RTI Format 3: Request for the state contingency plan u/r 15 .....................................................223
6 MONITORING AT THE STATE LEVEL

Citizens’ monitoring .................................................................................................................227
Using RTI to monitor implementation........................................................................................228
A note on style ........................................................................................................................229
The short cut...........................................................................................................................229
Before you start.......................................................................................................................230
State level: Responsibilities and mechanisms ...........................................................................231
State level: Officials ...............................................................................................................................234
Sequencing: Implementation road map ..................................................................................................236
Reporting: The information ow.............................................................................................................237
Mandatory notifications ...........................................................................................................238
Preventive action .....................................................................................................................241
Monthly reports .......................................................................................................................242
Quarterly reviews.....................................................................................................................244
Half yearly reviews ..................................................................................................................247
Monitoring the SVMC ..............................................................................................................248
Setting up the SVMC [Rule 16(1)]..........................................................................................................249
Members of the SVMC [Rule 16(1)].......................................................................................................249
Meetings [Rule 16(2)] ...........................................................................................................................250
Briefing documents to be provided to the SVMC members .....................................................................250
Meeting agenda and role of the SVMC [Rule 16(2)]................................................................................253
Annual report ..........................................................................................................................254
RTI Format 4: Request for SVMC meeting minutes u/r 16(2).....................................................256
RTI Format 7: Request for chief minister’s tenure .....................................................................259
RTI Format 8: Request for translations of the Act and Rules in the official language ...................260
Annexure 6.1: Contact details: state nodal officers....................................................................261
Annexure 6.2: Contact details: NCSC .......................................................................................266
Annexure 6.3: Contact details: NCST........................................................................................268
7 MONITORING AT THE DISTRICT LEVEL
Introduction .............................................................................................................................273
District level: Responsibility and mechanisms ..........................................................................274
District level: Officials ............................................................................................................................275
The DVMC.............................................................................................................................................278
Monitoring the DVMC...............................................................................................................279
Setting up the DVMC [Rule 17(1)]..........................................................................................................279
Members of the DVMC [Rule 17(2)] ......................................................................................................279
Meetings [Rule 17(3)] ...........................................................................................................................279
Meeting agenda and role of the DVMC [Rule 17(1)]................................................................................279
Documents to be provided to the DVMC members .................................................................................280
Proceedings of the DVMC......................................................................................................................282
8 MONITORING AT THE SUBDIVISIONAL LEVEL
Introduction .............................................................................................................................289
Subdivisional level: Responsibilities and mechanisms ..............................................................289
Subdivisional level: Officials...................................................................................................................290
The SdVMC ..........................................................................................................................................292
Monitoring the SdVMC.............................................................................................................293
Setting up the SdVMC [Rule 17A(1)]......................................................................................................293
Members of the SdVMC [Rule 17A(2)]...................................................................................................293
Meetings [Rule 17A(4)] .........................................................................................................................294
Meeting agenda and role of the SdVMC [Rule 17A(1)]............................................................................294
Documents to be provided to the SdVMC members................................................................................295
Proceedings of the SdVMC ....................................................................................................................297

9 SURVIVORS’ GUIDE TO POA
Content ..................................................................................................................................303
What is an atrocity?.................................................................................................................303
Section 3(1) .........................................................................................................................................303
Section 3(2)..........................................................................................................................................306
Stage 0 Preparatory .................................................................................................................307
What if the rights are violated?...............................................................................................................307
Stage 1 and 2: Information and FIR registration ........................................................................309
Stage 1: Information..............................................................................................................................309
Stage 2: FIR registration ........................................................................................................................309
Responsible officials .............................................................................................................................309
What if a right is violated? .....................................................................................................................309
Stage 3: Inquiry (Spot assessment) .........................................................................................309
Stage 4: Inspection..................................................................................................................311
Stage 5: Investigation ..............................................................................................................312
Stage 6: Trial ...........................................................................................................................314
What if a right is violated / dissatisfied? .................................................................................................314
Stage 7: Judgement.................................................................................................................314
Stage 8 and 9: Jail and release.................................................................................................315
Stage 10: Appeal .....................................................................................................................316
Compliance Format 1: Format for information to register FIR [Rule 5(1)]...................................317
Compliance Format 2: Format for complaint for non-registration, deriliction of duty [Rule 5(3)]......320
Compliance Format 3: Format for entitlements (DANR, relief, TAME, rehabilitation)....................322
Compliance Format 4: Requisition for immediate enhancement of pension................................324
Compliance Format 5: Requisition for immediate payment of TAME ..........................................325
Compliance Format 6: Requisition for socioeconomic rehabilitation ..........................................327
Annexure 9.1: How to give witness in court..............................................................................329
Annexure 9.2: Checklist for effective followup ..........................................................................331

10 CVMC AND SURVIVORS’ FORUMS
Citizens’ vigilance and monitoring committee ...........................................................................341

Objective...............................................................................................................................................341
Composition..........................................................................................................................................342
Model structure.....................................................................................................................................342
Role of CVMCs ........................................................................................................................343
Tasks and periodicity .............................................................................................................................343
Who can join.........................................................................................................................................344
Survivors’ forums....................................................................................................................344
Why a survivors’ forum? .......................................................................................................................344
Objective ..............................................................................................................................................345
Participants ..........................................................................................................................................345
Roles and responsibilities .....................................................................................................................345
Survivors .............................................................................................................................................345
Lawyers ...............................................................................................................................................346
Counsellors...........................................................................................................................................347
Dalit Adivasi Human Rights Defenders (DAHRD) ....................................................................................348
People’s movements, civil society organisations, volunteers ..................................................................348
The CVMC role in the survivors’ forums.................................................................................................348
Model schedule ....................................................................................................................................349
FORMATS
Compliance Format 2: Format for complaint for non-registration, deriliction of duty [Rule 5(3)]......320

LIST OF FIGURES
Figure 1: Recorded crime (1992 to 2021) ..................................................................................42

Figure 2: Recorded crime rate (1992 to 2021) ............................................................................44
Figure 3: Recorded crime (2021) ...............................................................................................46
Figure 4: Recorded crime rate (2021).........................................................................................48
Figure 5: Recorded bodily harm: All India (2017 to 2021) ...........................................................49
Figure 6: Recorded murder and rape (1992 to 2021) ..................................................................50
Figure 7: Recorded rape: Women and girls (2021)......................................................................52
Figure 8: Recorded atrocities: Women and girls (2014 to 2021)..................................................53
Figure 9: Rape against minor girls (2021)...................................................................................54
Figure 10: Rape against women and girls (2017 to 2021)...........................................................55
Figure 11: Rape as highest recorded atrocity against women (2021)...........................................56
Figure 12: Charge–sheeting rate (2021) .....................................................................................58
Figure 13: States with exclusive special courts ...........................................................................60
Figure 14: States receiving central assistance for special courts (2021)......................................60
Figure 15: Cases in court: Rape (2017 to 2021).........................................................................62
Figure 16: Cases in court: Murder (2017 to 2021)......................................................................63
Figure 17: Cases for trial: Murder (2017 to 2021).......................................................................63
Figure 18: Cases for trial: Rape (2017 to 2021) ..........................................................................63
Figure 19: Cases disposed off by courts: Murder (2017 to 2021) ...............................................64
Figure 20: Cases disposed off by courts: Rape (2017 to 2021) ..................................................64
Figure 21: Cases convicted: Murder (2017 to 2021)...................................................................64
Figure 22: Cases convicted: Rape (2017 to 2021) ......................................................................65
Figure 23: Conviction rate: Rape (2017 to 2021) ........................................................................65
Figure 24: Conviction rate: Murder (2017 to 2021) .....................................................................65
Figure 25: Appeals % (2021)......................................................................................................66
Figure 26: Relief % (2021) .........................................................................................................67
Figure 27: DANR, Relief, TAME ...................................................................................................68
Figure 28: SVMC meetings % (1995–2021)................................................................................69
Figure 29: SVMC meeting % (2021) ...........................................................................................70
Figure 30: DVMC meetings % (2021) .........................................................................................71
Figure 31: SdVMC meeting % (2021) .........................................................................................72
Figure 32: Nodal officers (2021).................................................................................................72
Figure 33: Protection officers (2021) ..........................................................................................72
Figure 34: Contingency plan (2021) ...........................................................................................73
Figure 35: Periodic survey (2021) ..............................................................................................73
Figure 36: Identified (atrocity prone) areas (2021) ......................................................................74
Figure 37: Special police station (2021) .....................................................................................74
Figure 38: District level CVMC Composition .............................................................................342
* The table and page numbers reference the data tables and page numbers in the full audit report.
POA Handbook for Justice – 2024 Table of content 11

HUMAN RIGHTS ADVOCACY AND RESEARCH FOUNDATION
m: +91 86680 91452 | e: [email protected] | w: www.hrf.net.in
Acknowledgements
This handbook is the result of decades of work and the tireless dedication of thousands of
human rights defenders. Some pioneers among them are no longer with us. We fondly
remember P S Krishnan who crafted the legislation and Ossie Fernandes who ensured that the rights
of victims and witnesses made it into legislation. It has benefited immensely from the inputs and
insights of several DAHRDs who have freely shared their insights and undertook quick reviews. It
incorporates feedback from DAHRDs who have used earlier drafts and have several decades of
experience in trying to get the Act implemented.
The Citizens’ Audit of the Union Report u/s 21(4) on the Implementation of the Act for the calendar year
2021 – the executive summary of which forms the first part of this handbook – benefitted greatly from the
patient hearing, gentle questions, and discerning feedback of Justice Madan Lokur. We deeply
appreciate MoS (SJ&E) Ramdas Athawale’s encouragement and willingness to engage. The first
CVMC members Deepthi Sukumar, Thomas Franco, and Sudha Ramalingam helped get the
initiative off the ground. D Tangaraj has been a source of strength right from inception in Karnataka.
We are grateful to Dr Veeraragavan Suresh, Comrade Bhavani Mohan, Raj Kapil, and
Dr S Venkataraman, all of whom helped with the introductory workshops and helped us to sharpen
the material. Nadim Nikhat provided critical input on IPC–POA equivalence.
A special thanks to Venkatesh, Director, Commonwealth Human Rights Initiative for permission to
use the checklist developed for Madhya Pradesh, and Advocate Sathish, Director, Centre for Dalit
Rights for translating it in record time. John Tirunavakarasu graciously provided the first cut of the
survivors’ forum guidelines. Advocate Kavitha G kindly helped us fine tune the compliant format.
Trailblazer Nanda Gopal Vudayagiri, who first started monitoring the implementation of the Act way
back in 1998 as the founder–director of Sakshi Human Rights Watch, Andhra Pradesh, has been our
constant mentor and guide.
These tools are informed by the experience of civil society monitoring the implementation of the Act
in Karnataka since 2009 and in Tamil Nadu since 2017. The present handbook has been
comprehensively updated, and is the outcome of a collective effort of the HRF team – Anitha C,
Chitra N, Divya N, Geetha Vani S, Halcyon F, Revathy R, and Treseena F.
This handbook is designed to be used in the field by DAHRDs. It will be updated based on field
experience, so if you find it lacking in any area, or if something is not clear, or if some other topics
need to be added to make it more comprehensive and useful for the DAHRDs, do let us know. We do
not promise to incorporate every suggestion and addition (field guides and encyclopaedias are
different), but we will seriously consider every suggestion and feedback. If necessary, we will bring
out a companion volume based on your feedback.
If, despite this galaxy of stars, some errors of omission and commission have crept in, they are ours
alone. Please bring them to our notice so that they can be corrected in future editions. Suggestions for
improvement are always welcome. Please send feedback and suggestions to [email protected].
Tamilarasi P
March 2024
POA Handbook for Justice – 2024 Acknowledgement 13

A guide to the handbook
The Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 and its
Rules, 1995 are the only legal instruments to prevent atrocities against the scheduled castes and the
scheduled tribes and to secure justice without compromise through legal means if atrocities are
committed. Unique among Indian legislation, this Act provides for (a) preventive measures before
the commission of the crime, (b) adequate protection and support not only for the victims but also for
their dependents, witnesses, and attendants (including provision of daily allowance and travel
allowance), (c) completion of the investigation and trial within a short period to ensure that the
victims and witnesses are not tampered with, (d) relief in three stages to prevent further suffering for
the victims, and (e) the possibility of taking action against public servants who have not properly
fulfilled their duties.
This handbook for justice has been developed as a comprehensive guidebook for everyone, including
the judiciary, desirous of securing justice for the affected individuals, families, and communities.
It is a compendium of ten self–contained books. The reader can dip into any as per need or interest.
Book 1 is the executive summary of the The Citizens’ Audit of the Union Report u/s 21(4) on the
Implementation of the Act for the calendar year 2021. It is, as Justice Madan B Lokur puts it, a
performance audit of the law. One can learn the current situation and make comparisons between
states and the performance of the responsible government bodies and judiciary at every level. This
report will serve as a model for those who wish to create similar reports at the district, state, or
national level.
For those unfamiliar with the Act or desire a brief introduction, Book 2: An introduction to the Act and
Rules, will be helpful. Victims of atrocities face numerous hardships such as violence, poverty, the
inability to immediately return to work, intimidation, and social ostracism. Immediate relief,
socioeconomic rehabilitation, and the contingency plans of the government have been introduced to
protect survivors from further misery and to restore them to a sustainable standard of living with less
reliance on the oppressor communities, removing them from the circumstances that led to the
atrocity, including by relocation, when required. Guidance on how much, at what stage, and whom to
approach, depending on the nature of the case, is detailed in Book 3: Mandatory minimum state
response. However, do temper expectations since only five states (Tamil Nadu, Rajasthan,
Karnataka, Haryana, and Bihar) report updated state contingency plans compliant with the Amended
Rules 2016.
Book 4: Monitoring a case, explains how victims or persons and organisations assisting them can
learn about the progress of a case, how to monitor it at various levels, who the relevant authorities are,
and whom to approach in case of violations of legal procedures. The state mechanisms under this Act,
the officials, their responsibilities, the reports they must submit, the time limits, etc., are precisely and
meticulously defined. The reader is provided the tools to monitor their functioning and assess
their performance at the union (Book 5), state (Book 6), district (Book 7), and subdivisional
(Book 8) levels. The tools are fairly simple to use and the methodology is spelt out in detail.
It is sometimes difficult for ordinary people to understand the law, rules, and other guidelines in their
original version. Therefore, we have compiled all the important information needed by the victims in
a simple manner in Book 9: A survivors’ guide. This book will serve as a complete guide for victims,
dependents, and witnesses who need not read the other books. It can be used independently as a
standalone resource for community awareness programmes and survivors’ forums.
Finally, in Book 10: CVMC and survivors’ forums, we have described the structure, duties, and
functions of the citizens’ vigilance and monitoring committee, as well as a forum for the victims and
survivors, which serve as important civil society mechanisms for the effective monitoring and
implementation of the Act.
The only way to secure justice for the scheduled communities is to properly implement this Act. We
hope this Handbook for Justice will contribute to that endeavour.
POA Handbook for Justice – 2024 A guide to the handbook 15
The need for citizens’ monitoring
Laws, no matter how noble, do not implement themselves. It does not matter how good a law is, it is
only as effective as its implementation. And implementation is only as good as the capacity and intent
of the people tasked with its implementation. The Act envisages a ‘whole of society approach’ to
what is essentially a set of crimes that arise out of societal norms. Therefore, it is too serious a matter
to be left to formal institutions, or ‘law enforcement’, alone. Though the law does set out the
minimum standards, it is the society – citizens – who set the normative standards of acceptable
behaviour. It is citizens with the same biases from caste society that staff the institutions tasked with
implementing the law and monitor implementation.
On the 31st anniversary of the Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities)
Act, 1989, a global review of its implementation over three decades brought together 31 national and
international human rights defenders for a stocktaking. The consensus is reflected in the title of the
anniversary compendium – the elusive search for justice. This elusiveness is despite the successful
civil society campaign to strengthen the Act from 2007 that culminated in its amendment in 2015. It is
a continuum of the results of similar civil society exercises in 2009, on the 20th anniversary of the
Act, the 2004 NHRC review by K B Saxena, and even the 1969 review of the predecessor
Untouchability Offences Act, 1955 commissioned by the union Ministry of Social Welfare by a
committee chaired by L Elayaperumal, a member of parliament from Tamil Nadu. The Citizens’
Audit of the Union Report u/s 21(4) on the Implementation of the Act for the calendar year 2021
exposed the utter shallowness of implementation at all levels, with low or even nil compliance in
several statutory requirements for over 30 years.
Though the Act is very precise and specific, compliance rates on several parameters are nil or in the
low single digits as revealed by the sea of red in the heat map (pullout) summing up the
implementation in the calendar year 2021. Even the easy to schedule and conduct state vigilance and
monitoring committee meetings (January and July each year) have a compliance rate of only 6.5%.
Over 75% of the chief ministers have a 0% compliance rate. Though 34 years have passed since the
Act came into force, the victims have yet to receive justice within the stipulated time of four months
from the time of the FIR being registered.
Crime In India (CII), the annual report of the National Crime Records Bureau (NCRB), records that
3,650 scheduled community women and 1,951 children were subjected to inter–community rape in
2022. There are 1,184 recorded inter–community murders in 2022. The year marks the second
consecutive year in which there are more than 5,000 recorded inter–community rapes and the fourth
consecutive year in which there are more than 1,000 recorded inter–community murders.
There are over 327,816 cases pending in the courts (up 11% from 295,115 on 31 December 2021)
some of them for over 30 years. As per law, cases are to be disposed off within two months of the
charge–sheet being filed. At the present rate of disposal of 30 cases per court per annum (NCRB CII
2022), there should be a minimum of 1,796 special courts if the courts are to be compliant with the law
and dispose off the 53,877 cases charge–sheeted in 2022 within two months of the charge–sheet
being filed. This is the minimum required to clear the cases sent to court in 2022, and does not include
the backlog of 327,816 pending cases which need 11,000 exclusive special courts. For context, at
present there are 173 exclusive special courts and 487 designated special courts for a combined total
of 663 special courts – just 6% of the requirement.
Despite all the special provisions, the implementation is lacklustre. To illustrate, a charge–sheet is
filed in court after investigation by an officer not below the rank of deputy superintendent of police.
The investigation itself commences after two stages of verification after information is received: an
inquiry by a deputy superintendent of police or a subdivisional magistrate that confirms that an
POA Handbook for Justice – 2024 The need for citizens’ monitoring 17
atrocity has taken place followed by a spot inspection by both the superintendent of police and the
district magistrate to ensure that the correct sections of the Act are invoked in the FIR. Yet, most cases
(66% in India and 79% in Tamil Nadu in 2022) end in acquittal. Appeals are even less at 3.5%.
Conviction rates are zero or close to zero in several courts, and single digits or low double digits in
most states. Several DSPs and exclusive special public prosecutors have a perfect 0% conviction rate.
This calls into question the competence of all the top officials and special public prosecutors who
handled the case. The fact that the government or the officials, who should have taken this as an insult,
did not appeal in over 95% of acquittals nation–wide shows that they have no faith in themselves or
that they too are bound by the caste structure. The lack of proper enforcement indicates a total failure
of the government, the police, and the judiciary.
This has real world consequences in what should be the easy to fulfil post–atrocity provisions –
instant monetary relief from the Dr Ambedkar National relief, reimbursements, and socioeconomic
rehabilitation. Less than 1% of the over 35,000 eligible victims or their families – of murder, rape,
arson, or permanent incapacitation – have got instant monetary relief from 2017 to 2022 – resulting in
the denial of over C900 crores to the victims from the union government administered Dr Ambedkar
National relief. Since there was insufficient citizens’ vigilance, this scheme was quietly ‘merged’
with the centrally sponsored scheme on 13 January 2023, and vanished from the new ‘guidelines’
issued on 26 February 2023. The C900 crores due to the victims of the most horrible atrocities –
murder, rape, arson, and permanent disability – delayed and denied by bureaucratic venality vanished
unsung by a bureaucratic sleight of hand.
The government has no data of fulfilment of the over 35,000 pensions, jobs, houses, agricultural land,
and residential education up to graduation for children, due to the victim families as socioeconomic
rehabilitation. Socioeconomic rehabilitation given after 30 years (and even then, partially) are not
unknown. Relief, when given, is unconscionably delayed. Travel allowance and maintenance
expenses are seldom paid.
This Act is ‘effectively implemented’ by senior officers, most of them from the IAS and IPS cadre.
Every step from registering the FIR to verifying the complaint through an inquiry (by a DSP or SDM),
to a spot inspection (SP and DM), to the investigation (DSP), relief, socioeconomic rehabilitation,
trial, and the monitoring of progress at each stage – is overwhelmingly by officials from these cadres.
All the procedures and protocols from prevention to restitution and socioeconomic rehabilitation are
designed, implemented, and monitored by public servants from these cadres. Therefore, it is only
right that they are held accountable for any miscarriage of justice or delay at any or all stages – since it
is their entirely preventable lapses that have permanent, irrevocable, and multi–generational
consequences for the scheduled communities.
Monitoring implementation of this Act by the officers from these self–same IAS and IPS cadre has
been a failure. Correctives, let alone accountability, is unheard of. There is dramatic improvement in
the administration of justice, including fulfilment of entitlements and delivery of services, when
officials are monitored and held accountable. In the light of this multiorgan failure of the state, it falls
on civil society, human rights organisations, and enlightened individuals, to take up the responsibility
to address this gap and bridge it. In this environment where systemic failure is the chosen institutional
normative virtue, it becomes the moral imperative of enlightened citizens to be sentinels of the
constitution, monitor the monitors, and follow through using all democratic means to ensure effective
implementation of the Act. Only when such independent monitoring is done, the performance of the
officials can be benchmarked, systemic barriers can be identified, the under– and non–performance
of officials will be exposed, and they can be held accountable.
18 The need for citizens’ monitoring POA Handbook for Justice – 2024
Rather than focusing solely on filing FIRs and securing partial relief for the victims, civil society
should pay equal attention to monitoring, and holding accountable, those tasked with the effective
implementation of the Act at all levels. However, though some human rights organisations and
defenders ensure that the FIRs are filed and the first tranche of relief is paid, few follow through to
socioeconomic rehabilitation, and even less focus on the culpability of the officials in delays and
denials. Few have both the capacity and the wherewithal to do so.
Since this Act is different from other laws in India and has many unique features, there is a compelling
need to raise awareness and provide training on the implementation and nuances of this law to
everyone – from the victims, individuals, NGOs, people’s organisations, lawyers, and social
activists, in addition to the police, district administration (including the district magistrate), social
welfare department (Adi Dravidar and Tribal Welfare Department in Tamil Nadu), the scheduled
castes and the scheduled tribes protection cell (Social Justice and Human Rights Wing in Tamil
Nadu), the state nodal officer, special officers, the exclusive special public prosecutors, directors of
prosecution, and the judiciary at all levels.
As the Chief Justice of India Dr DY Chandrachud writes [W.P.(C) No.–000880 / 2017 Association
for Democratic Reforms & Anr. vs Union of India & Ors.]:
64. ... citizens have a duty to hold the government of the day accountable for their actions and
inactions.
To those who love justice, monitoring thus becomes an imperative for a healing justice for the
perpetrators, for securing timely relief and socioeconomic rehabilitation for the victims, and for
ensuring accountability of the state mechanisms and officers. It is nothing less than a constitutional
obligation of a citizen. It is for these conscientious citizens that this handbook for justice provides the
tools to move from an elusive search for justice towards making healing justice a reality.
This handbook for justice is based on the lessons learnt and best practices from decades of defending
the constitutional values of equality, liberty, and fraternity in the community, subdivisional, district,
state, and union levels, to the highest courts of the land and in parliament. Monitoring the monitors
and holding them accountable is the remedy to decades of non–implementation. It could well be a
gamechanger in the effective implementation of the Act.
POA Handbook for Justice – 2024 The need for citizens’ monitoring 19
Glossary
Abbreviation Full form / explanatory notes
4I syndrome Pronounced ‘four–eye’. Individually intelligent, institutionally idiotic. Here used in

relation to suppression and trivialisation in crime recording, it means any action
that seems intelligent at the individual level but is rather idiotic at the collective
level (due to the consequences, or due to exposure through technology, or newer
forms of analysis).
ACP Assistant commissioner of police. The investigating officer in urban areas. Equivalent
to DSP in peri–urban and rural areas.
ACS Additional Chief Secretary.
AD&TW Adi Dravidar and Tribal Welfare.
ADGP Additional Director General of Police.
Adivasi Indigenous and tribal peoples, literally ‘first dweller’. They are classified as scheduled
tribes. Some tribes, especially from the northeast, do not like to be called Adivasi and
prefer the term tribal.
ASATYA Atrocity Suppression and Trivialisation Yearly Assessment. A tool to track

under–recording of crime.
Assault Assault on Women with Intent to Outrage her Modesty (adult+children)

[Section 354, 354A, 354B, 354C, 354D IPC and POCSO Act 8 &10 or POCSO Act
and Sec. 8 &10 r/w 354 IPC / 73, 74, 75, 76, 77 BNS].
AtM Attempt to Commit Murder (Section 307 IPC and 107 BNS).
AtR Attempt to Commit Rape (Section 376/511 IPC and 64/62 BNS).
Autopsy Popularly ‘post–mortem’. Medical examination of a body after death to find the cause
and the manner of death.
BNS Bharatiya Nyaya Sanhita, 2023 replaces the Indian Penal Code (IPC) 1860 with effect
from 1 July 2024, along with the related laws, Bharatiya Nagarik Suraksha Sanhita,
2023 (BNSS) which replaces the Code of Criminal Procedure, 1973 (CrPC), and
Bharatiya Sakshya, 2023 (BS) which replaces the Indian Evidence Act, 1872.
CBDV Caste–based discrimination and violence.
CDR Call Detail Record. The call details from the mobile phone (most often of the accused’s
mobile phone). To be obtained from the cyber cell.
CEC The monitoring mechanism at the union level, with the Minister for Social Justice
and Empowerment as the chairperson and the Minister for Tribal Affairs as the
co–chair. The full form is: Committee for Effective Coordination to Devise Ways and
Means to Curb Offences of Untouchability and Atrocities Against the Scheduled
Castes and the Scheduled Tribes and Effective Implementation of the Protection of
Civil Rights Act, 1955 and the Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989.
Continued...
POA Handbook for Justice – 2024 Glossary 21

Glossary
Charge–sheet Case final report, submitted by the investigating officer to the jurisdictional court at the
end of investigation.
Charge–sheeting (Cases charge–sheeted ÷ Cases disposed off by police) * 100.
rate
Contingency plan Standard operating procedure under Rule 15, developed and notified by each state.
Conviction rate (Cases convicted ÷ Cases in which trials were completed) * 100.
Crime rate Cases registered per 100,000 population
CRC Crime Review Compendium, annual report and statistics published by the Tamil Nadu
State Crime Records Bureau.
Crore Ten million. Popular Indian measurement unit, since it works out to 100 lakhs.
CrPC The Criminal Procedure Code 1973.
DANR Dr Ambedkar National Relief to the Scheduled Castes and the Scheduled Tribe Victims
of Atrocities Scheme. It was administered by the Dr Ambedkar Foundation till 31 March
2023. Since then it has been merged with the centrally sponsored schemes and
administered by the Ministry of Social Justice and Empowerment.
DAHRD Dalit Adivasi Human Rights Defenders. Inclusive term encompassing human rights
defenders who are Dalits or Adivasis (i.e., those from the communities), and those who
defend the human rights of the Dalits and Adivasis.
Dalit Those who face extreme forms of caste oppression, especially untouchability. Some of
them (the Buddhists, Hindus) are classified as scheduled castes, while others
(Christians, Muslims) are not.
DGP Director General of Police.
DLSA District Legal Services Authority. Supposed to give free legal aid for those who cannot
afford to pay for their own lawyers.
DM District magistrate, popularly ‘collector’ or ‘district collector’. In some states also
referred to as ‘deputy commissioner’.
DOP Director of prosecutions, sometimes abbreviated as DoP. In some states the
designation is director of public prosecutions (DPP). We use DOP throughout this text
for consistency.
DPP Director of public prosecutions. See DOP above.
DSP Deputy superintendent of police. Some states use the term DySP. In this report we use
DSP for consistency.
DVMC District level vigilance and monitoring committee, set up under Rule 17.
DWD Descent and Work based Discrimination (the present international terminology used to
describe caste–based discrimination).
Continued...
22 Glossary POA Handbook for Justice – 2024

Glossary
DySP Deputy superintendent of police. See also DSP.
ESC Exclusive special court.
ESPP Exclusive special public prosecutors. Often political appointees, they have a track
record of zero convictions. In this document the abbreviation SPP is used inclusive of
ESPP for brevity.
FIR First Information Report.
FSL Forensic Science Laboratory.
GH Grievous hurt.
HRD Human rights defender.
IAS Indian Administrative Service.
Insult Insult to the Modesty of Women (Section 509 IPC and 78 BNS).
IO Investigating officer, normally the DSP in rural areas and ACP in urban areas.
IPC Indian Penal Code, 1860.
IPS Indian Police Service.
Lakh 100,000. Popular Indian measurement unit.
LSA Legal services authority. A government funded body to provide free legal aid for those
who cannot afford to pay for their lawyers.
MBC Most backward classes.
MLC Medico–legal case.
MoSJ&E Ministry of Social Justice and Empowerment.
Murder Murder (Section 302 IPC and 101 BNS).
NCRB National Crime Records Bureau.
NCSC National Commission for Scheduled Castes.
NCST National Commission for Scheduled Tribes.
Nodal officer Appointed under Rule 9 to coordinate the functioning of the various officials under the Act
(district magistrates, superintendents of police etc), and to review their performance and
the implementation of the POA every quarter.
OBC Other backward classes.
Continued...
POA Handbook for Justice – 2024 Glossary 23

Glossary
Panchnama The seizure or inventory report prepared by the police during investigation. A detailed
record and description of the items, property, or evidence seized by the police from a
location or individual including the date, time, and location of the seizure, the names
and designations of the police officers involved. It plays a crucial role in the legal
process, providing an essential record of the seized items that may be used as
evidence in court proceedings.
Patwari A government official who maintains land records of villages in northern India.
Patta Title deed.
PCRA Protection of Civil Rights Act, 1955. The revamp of the Untouchability (Offences) Act,
1955 in 1976. The 1976 amendment also changed its name but retained the year of
enactment.
PI Police inspector.
POA The Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 as
amended to date. Contextually, it includes the Rules 1995 as amended to date.
r/w ‘read with’. A term used in criminal law to show how a specific offence(s) is connected
with another offence or offences. For example murder r/w unlawful assembly; or
murder r/w conspiracy.
Rape Rape (Section 376 IPC, 64 BNS).
RTI Right to information, also used as a popular abbreviation for the Right to Information
Act, 2005.
SAR State annual report, prepared by the state and sent to the union government on or
before 31 March every year, under Rule 18.
SC Scheduled caste, administrative classification of some communities based on
historical discrimination based on work and descent. Drawing from Article 341 of the
Constitution of India, these are implemented through ‘Presidential Orders’: Constitution
(Scheduled Castes) Order 1950, and the periodic amendments, that lists the scheduled
castes in its schedules. As of 2021, a total of 1258 communities have been classified
as scheduled castes. No community has been specified as scheduled caste in the
states of Arunachal Pradesh and Nagaland and the union territories of Andaman and
Nicobar Islands and Lakshadweep. (see also Dalit).
SCI Supreme Court of India.
SCRB State Crime Records Bureau.
SDM Subdivisional magistrate.
SdVMC Subdivisional vigilance and monitoring committee, set up under Rule 17A of the POA.
SH Simple Hurt (Section 323 r/w IPC 324, 327, 328, 330, 332, 353 and BNS 113 r/w 116,
117, 121, 118, 119, 130.
Continued...
24 Glossary POA Handbook for Justice – 2024

1 CITIZENS’ AUDIT REPORT 2023: EXECUTIVE SUMMARY
Foreword – Justice Madan B. Lokur .......................................................................................................29

Message – MoS Ramdas Athawale ............................................................................................31
Why a citizens’ audit report?......................................................................................................33
Fill the gaps.............................................................................................................................................33
Fulfil fundamental duties ..........................................................................................................................36
Full systems monitoring ..........................................................................................................................38
Terminology...............................................................................................................................39
Methodology .............................................................................................................................40
People and process ...................................................................................................................41
Context ....................................................................................................................................43
Status of implementation ...........................................................................................................45
Crime recording ......................................................................................................................................45
Crimes against women ............................................................................................................................49
Charge–sheeting .....................................................................................................................................57
Special courts and pendency...................................................................................................................61
Convictions .............................................................................................................................................64
Appeals...................................................................................................................................................66
The state level high power vigilance and monitoring committee ..................................................................................69
The district vigilance and monitoring committee .........................................................................................................71
The subdivisional vigilance and monitoring committee................................................................................................71
Action required ..........................................................................................................................76
Crime recording ......................................................................................................................................76
Charge–sheeting .....................................................................................................................................77
Administration of justice ..........................................................................................................................77
Special court.............................................................................................................................................................77
Support and protection for victims and witnesses .....................................................................................................77
Relief.........................................................................................................................................................................78
Convictions .............................................................................................................................................78
Appeals...................................................................................................................................................79
POA Handbook for Justice – 2024 Citizens’ Audit Report 2023: Executive Summary 27
Instant monetary relief.............................................................................................................................79
Relief.........................................................................................................................................................................81
Travel allowance and maintenance expenses..............................................................................................................81
Socioeconomic rehabilitation .....................................................................................................................................82
State level high power vigilance and monitoring committee meetings..........................................................................83
District vigilance and monitoring committee meetings ................................................................................................83
Subdivisional vigilance and monitoring committee meetings .......................................................................................84
State level .................................................................................................................................................................84
Contingency plans .....................................................................................................................................................84
Surveys.....................................................................................................................................................................85
Atrocity prone areas ..................................................................................................................................................85
Special officers..........................................................................................................................................................86
Special police stations ...............................................................................................................................................86
Awareness programmes ............................................................................................................................................86
Support to NGOs.....................................................................................................................................86
Accountability .........................................................................................................................................87
Reporting................................................................................................................................................88
Data and information management ..........................................................................................................88
Additional data needed for the state annual reports..............................................................................89
Prevention ..........................................................................................................................................89
Recorded crime ..................................................................................................................................89
Relief, allowances, socioeconomic rehabilitation..................................................................................90
828
2 Citizens’ Audit Report 2023: Executive Summary POA Handbook for Justice – 2024
Justice Madan B. Lokur
Former Judge
Supreme Court of India
FOREWORD
The Citizen’s Report on the working of the Scheduled Castes and Scheduled Tribes
(Prevention of Atrocities) Act, 1989 is a remarkable document. It is the first of its kind
and concerns itself with issues relating to the calendar year 2021.
The Report is based on information and data collected entirely from government
sources. Any specific gap or absence of information was made up through applications
filed under the Right to Information Act. As such, therefore, the integrity of the data,
information and source is unimpeachable. The Report covers all aspects of the working
of the law and the overall picture that appears is that the law is not being implemented
either in letter or in spirit. For example, state–level vigilance and monitoring
committees rarely meet and the national average in this regard is barely 12%. This is
unfortunate because the Report makes it quite explicit that crimes against members of
these communities and tribes is on the rise. With the vigilance and monitoring
committees not meeting as mandatorily required, an important aspect of prevention of
crime becomes secondary.
The Report highlights deficiencies in investigation and trial of offences not only in
terms of procedures but also in terms of substantive relief that victims and witnesses
are entitled to under the law. For example, the disbursement of compensation during
investigation and trial is minimal, if at all and rehabilitative measures including
monetary steps are rarely taken. The problem is compounded by the fact that cases of
atrocities against members of these communities and tribes sometimes take years to get
resolved that it is not unknown that such cases remain pending for more than 20 years.
In such bleak situation of access to justice, rehabilitative measures, even if they are
minuscule, have no real meaning whatsoever.
The importance of the Report lies not only in bringing out the deficiencies in the
implementation of the law but more importantly, making practical recommendations
and suggestions. Increase in the number of special courts and improving their
efficiency is only one of the many suggestions made in the Report but there are several
others concerning different aspects of implementation of the law. These are certainly
worth debating and discussing so that we are in a position to provide access to justice to
the members of these communities and tribes and make their rehabilitation real and
meaningful.
A–26, First Floor, Gulmohar Park

New Delhi – 110 049
Justice Madan B. Lokur
Former Judge
Supreme Court of India
We tend to look at crime in terms of numbers and statistics. While this is important, the
time has come to look beyond numbers and look at the human side of crime. While
victims have been given certain privileges under the law, the Report brings out that this
is really only on paper. That apart, it is also time to look at the emotional and
psychological impact of the crimes against members of these communities and tribes.
Rehabilitation cannot be confined only to monetary relief but must take into account
the entire personality of the victim, including counselling and holistic support.
The Report is just the beginning what one may call a performance audit of the law.
Such reports must be encouraged for the betterment of society and the long–term
rehabilitation of victims of crime. The Report must be taken seriously and its
recommendations implemented at the earliest so that justice is done to large sections of
our society who, in most cases, have no voice or visibility.
(Madan B. Lokur)
30 September 2023
A–26, First Floor, Gulmohar Park

New Delhi – 110 049
30 Citizens’ Audit Report 2023: Executive Summary POA Handbook for Justice – 2024
RAMDAS ATHAWALE
MINISTER OF STATE FOR
SOCIAL JUSTICE & EMPOWERMENT
GOVERNMENT OF INDIA
Date:–06.10.2023
I am happy to know that the Citizens’

Vigilance and Monitoring Committee (CVMC) has
developed the First National Civil Society Report
under Section 21(4) on the Implementation of the
Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989.
This report will make mechanisms aware
of their human rights responsibilities and
provide guidance on their implementation. The
report is also likely to help communities to
understand the various approaches for the
prevention and mitigation of the impacts of
atrocities and equip them with practical guidance
on the same.
I extend my heartiest greetings for the
successful publication of this report, which will
be released on 14th October 2023 at the
Constitution Club, New Delhi, and wish the
Citizens’ Vigilance and Monitoring
Committee (CVMC), all success in its future
activities.
Your’s
(Ramdas Athawale)
, ,
Room No.101, ‘C’ Wing, Shastri Bhawan, Dr Rajendera Prasad Road, New Delhi, Tel. : 011–23381656, 23381657, Fax : 011–23381669
Citizens’ Audit Report 2023:
Executive Summary 01
Why a citizens’ audit report?
There are several regular, periodic, statutory monitoring reports
on the implementation of the Scheduled Castes and the
Scheduled Tribes (Prevention of Atrocities) Act, 1989. There are
monthly reports and reviews from each district to the state level
protection cell, director of prosecutions, and the state nodal
officer. There are quarterly reports and reviews at the state,
district, and subdivisional levels, followed by state level
half–yearly reports reviewed by the chief minister every January
and July. Each state prepares its annual report under Rule 18 and
sends it to the union government on or before 31 March of the
subsequent year. The union government (Ministry of Social
Justice and Empowerment, MoSJ&E) consolidates them all and
adds what the union has done to make a comprehensive national The official report u/s
report which is tabled in both houses of parliament each year 21(4) falls short due to
several acts of omission
under Section 21(4). and commission, from
the incomplete data to
When there are already official reports prepared after such an deliberate distortions in
elaborate process across many levels of the union and state the analysis.
executive hierarchy, what is the necessity for an independent
citizens’ report? There are several reasons, from the omissions to
the commissions, from the incomplete data to deliberate
distortions in the analysis, and finally, the lack of official and
political will to ensure fair and proper implementation of the law.
The three most important are detailed below.
Fill the gaps

As far back as 1969, the Elayaperumal committee reviewing the
implementation of the Untouchability (Offenses) Act, 1955
noted that1
(b) … the Department do not make any use of the information
collected through their proforma.
(d) Because there was no follow up by the Government of India
for collection of information from the State Governments/
Union Territory Governments/ Administrations it is possible
that the States/Union Territories might not have even
1
Paragraph VI.22; Chapter VI Working of the Untouchability (Offences) Act, 1965; Report of the Committee on Untouchability,
Economic and Educational Development of Scheduled Castes and Connected Documents, Department of Social Welfare,
Government of India, 1969.
POA Handbook for Justice - 2024 Citizens’ Audit Report 2023: Executive Summary 33
furnished the complete data to the Government of India on

the subject and hence the failure on the part of the
States/Union Territories as also the Department of Social
Welfare, Government of India to furnish the necessary
statistics to the Committee.
The report of the union government is only a compilation. With
the government report as a basic starting point, this independent
citizens’ report brings together additional government data. It
therefore has a more detailed analysis with evidence of what is
working and where, lacunae in the law, and incontrovertible
evidence of lapses in its implementation – by omission,
commission, or compulsion. This report highlights the status of
implementation and distils the actionable points to make
specific, actionable, timebound recommendations for better
implementation, prevention, and remedial action.
To understand the union report u/s 21(4) presented to
parliament, the readers need to be familiar with bureaucratese –
An independent
citizens’ report is to fill the context specific meaning of seemingly common ‘everyday’
the gaps with a full words – which, unfortunately, is a skill that few have. The
system analysis, parliamentary discussions on the report therefore are quite shallow
highlighting the findings,
and provide actionable and let the state mechanisms (including the judiciary) off the hook
recommendations. without any accountability or liability, and the discussions rarely
move beyond platitudes. The most ‘adventurous’ of the questions
is to ask for the (publicly available) statistics on atrocities. The
government of the day easily answers those easily predictable
questions with data available on the website of the National Crime
Records Bureau. It requires little more than a copy–paste job,
which most of the ‘answers’ in both houses of parliament are,
regarding the implementation of this Act. The rest are deflected
with the stock answer that ‘law and order is a state subject’.
We will illustrate this point with a few examples below.
(a) For most states, the union annual report u/s 21(4) says that
the ‘State Level Vigilance and Monitoring Committee has
been constituted and is functioning’. If the SVMC has met
during the calendar year, then the dates of the meetings are
given. If not, it means that the committee did not meet. Now
comes the interesting part: the only function of the SVMC is
to meet, with the chief minister as the chair, to review the
implementation of the Act. It has no other function.
Therefore, if it did not meet, it did not function – something
that the bureaucratese hides in plain sight, and the
34 Citizens’ Audit Report 2023: Executive Summary POA Handbook for Justice - 2024
parliamentarians are unlikely to know. Until MP

Ravikumar of Tamil Nadu raised the question in parliament 1
(AS323, Lok Sabha, 17 March 2020), none even knew that
16 states where it was reported that the SVMC ‘has been
constituted and is functioning’ did not meet at all in the
pre–pandemic calendar years 2016–18. It is not a one–off
error. It has been going on for several years – perhaps from
the days of the Untouchability (Offences) Act, 1955 as the
Elayaperumal committee report notes in 1969.
(b) The union annual report has data on the rate of compliance
of every state in conducting the district and subdivisional
vigilance and monitoring committee meetings – yet this is
buried in the data of individual states rather than tabulated
for comparison. It is a short step from comparison to action
to hold the officials responsible for non–compliance
accountable. This is a glaring omission.
(c) The union report presents a very truncated version of the Only 12 states and the
crime data recorded under this Act. But for the basic union territory of
identification of the 12 states which cumulatively account Andaman and Nicobar
Islands have identified
for 95% of the recorded atrocities each for the scheduled
the atrocity prone areas.
castes and the scheduled tribes, no other analysis is Uttar Pradesh with the
presented to the parliamentarians, much less actionable highest number of
recommendations. recorded cases has not
identified even one area.
(d) Nine of these states – including Uttar Pradesh which had
13,150 recorded cases and Rajasthan which had 9,645
recorded cases in 2021 – do not have contingency plans yet.
Just a few paragraphs below, the union report lists the 16
states that have a contingency plan a standard operating
procedure) that kicks in when an atrocity takes place
[Rule 15(1)]. The report has both sets of data, yet fails to
draw out the action point naming the states that need to have
the contingency plan in place immediately.
A simple line connecting these two data points to recommend that
these seven states notify the state contingency plans post haste, and
the remaining states within the next reporting period would make it
an actionable report, which can then be reported on and reviewed
when the next annual report u/s 21(4) is tabled in parliament. Of
course, if such scrutiny is conducted, it will also bring to light that
only four states have updated their contingency plans to harmonise
them with the Amendment Rules 2016, and that some contingency
plans date from 1998.
This report is to fill these gaps, so that the parliamentarians are

provided with a comprehensive report that has the data analysed
and the action points distilled out for informed discussion in the
temple of our democracy.
Fulfil fundamental duties

As eternal vigilance is the price of freedom, it is the duty of
citizens to monitor the monitors (sentinels) and to ensure
implementation through all democratic means necessary. Laws,
no matter how noble, do not implement themselves.
The situation regarding the SVMCs is not new or even unique.
This ‘evasiveness’ and ‘no action taken’ seems to be
hardwired into the respective ministries and department. It was
the same situation in 1969 as well when the Elayaperumal
committee was reviewing the implementation of the
Untouchability (Offences) Act, 1955.2 As the report rather
poignantly notes (italics as in original):
The only function of the
SVMC is to meet in Appointment of Committees to look after the successful
January and July to implementation of Untouchability (Offences) Act, 1955.
review the
implementation of the VI.4. The Committee, therefore, wanted to find out from the
Act, with the chief State Governments and the Union Territory Administrations
minister as the chair. It as to what action they took on the above mentioned
has no other function.
From 2016–18, 16
communication of the Ministry of Home Affairs. It is
states where SVMCs regretted that though a specific question was inserted in our
were ‘constituted and questionnaire to elicit information on this issue, most of the
functioning’ did not
State Governments and the Union Territory Governments/
meet at all.
Administrations have given evasive replies, as a result of
which it became an up–hill task for the Committee to gauge
the correct situation. However, from the replies received it is
gathered that none of the Governments/ Administrations
except Bihar and Madhya Pradesh appointed Committees to
review the working of the Untouchability (Offences)
Act,1955. The Committee appointed by the Bihar and
Madhya Pradesh Governments, no doubt, made a number of
recommendations, but we are sorry to note that no action
was taken by the respective Governments on these
recommendations.
Even a cursory reading of the Act will reveal that the individuals
tasked with implementing this Act are senior officers, most of
2
Paragraph VI.4, Chapter VI Working of the Untouchability (Offences) Act, 1965; Report of the Committee on Untouchability,
them from the elite Indian Administrative Service (IAS) and

Indian Police Service (IPS) cadres – more so when it comes to 1
monitoring implementation. Every step from registering the FIR
to verifying the complaint through an inquiry by a deputy
superintendent of police (DSP) or subdivisional magistrate
(SDM), to a spot inspection by the district magistrate (DM) and
the superintendent of police (SP), to investigation by a deputy
superintendent of police, relief, socioeconomic rehabilitation,
trial, and the monitoring of progress at each stage – rests with
officials from these cadres. All these are bureaucratic procedures
fully within the powers of the state and these officials to
discharge within the time limits set by the Act and Rules. It is
clear evidence of multi–organ failure that relief is delayed,
socioeconomic rehabilitation is denied, acquittals are high,
appeals are low, and accountability is absent though there are
sufficient provisions in the legal ecosystem.
All the procedures and protocols from prevention to restitution
It is clear evidence of
and socioeconomic rehabilitation are designed by the state (read
multi–system failure that
those from these elite cadres), implemented, and monitored by relief is delayed,
them. It is they who are the cause and reason for the delay of socioeconomic
relief, denial of justice, and destruction of communities – though rehabilitation is denied,
acquittals are high,
they have the legal authority, executive power, and the financial, appeals are low, and
human, and institutional resources required to ensure that justice accountability is absent
is done, and socioeconomic rehabilitation is completed within though there are
sufficient provisions in
the time limit. Therefore, it is only right that they are held the legal ecosystem.
accountable for any delay at any stage – lapses that have
permanent irrevocable adverse multi–generational consequences
for the scheduled communities.
Implementation reports prepared by the officers from these
self–same IAS and IPS cadre are unlikely to highlight the wholly
preventable, and sometimes deliberate, lapses done by their
brother, and increasingly sister, officers. Proposed solutions are
absent in the official reports prepared by them, and their reviews
are echo chambers at best.
To return to the Elayaperumal committee report (italics as
in original):3
VI.7. … the discussion in the meeting of the Central Advisory
Board for Harijan Welfare held on 7th December, 1963, in
which it transpired that the recommendations of the
3
Paragraph VI.7, Chapter VI Working of the Untouchability (Offences) Act, 1965; Report of the Committee on Untouchability,
Government of India regarding setting up small committees to

review the working of the Act from time to time were generally
not carried out. It was stated that the general experience was
“that no such committees had come into existence or having
come into existence they had become dormant.”
[…]
It is also regretted that the Central Government themselves
did not appoint any committee for this purpose at the Central
level till the formation of this Committee.
These facts make it abundantly clear that the sentinels
recommended by the Joint Committee of both Houses of
Parliament which were absolutely essential to gauge the
working of the Act were not created by the various
Governments, and thus, watch was not kept on the working of
the Act, which was very essential for the removal of social
disabilities.
The state annual reports Full systems monitoring

do not contain all Monitoring the monitors – the states, state mechanisms, and
information requested in
individuals – can be done by citizens using instruments from
the format provided, and
are sometimes whimsical three powerful sources. The provisions of the Scheduled Castes
in the use of terminology. and the Scheduled Tribes (Prevention of Atrocities) Act, 1989
Some states are reluctant and Rules 1995, a landmark judgement of the Supreme Court of
to share information
India in the State of Gujarat vs Kishanbhai etc. [Criminal Appeal
even with the union
government. 1485 of 2008] dated 7 January 2014 and the Right to Information
Act, 2005 (RTI).
The internal monitoring mechanisms provided within the Act are
precise and comprehensive. The reports of the standing
committee set up in each state on the orders of the Supreme Court
of India in the State of Gujarat vs Kishanbhai etc. fixes
responsibility for acquittals and the RTI enables us to get the
information. Together, the three form a powerful enabling
ecosystem to ensure that the state mechanisms work. Used in
combination, the implementation of the Act can be monitored
and enhanced by informed citizens.
True, the emotional return of seeing the relieved smiles of the
victims and dependents get their entitlements and socioeconomic
rehabilitation is hard to beat. In contrast, monitoring
implementation at the systems and mechanisms level is drab and
dreary. However, the effect of monitoring the performance of
officials and state mechanisms can, at times, bring more dramatic
results than the monitoring of individual cases. In the special court
in Tirunelveli, Tamil Nadu, SPP S. Bagathsingh was replaced with
SPP Rajaprabaharan in 2020. The convictions shot up from 1 of 111

cases tried with a conviction rate of 0.9% in 2019 to 55 convictions of 1
86 cases tried with a conviction rate of 63.95% in 2020. Monitoring
the sentinels and fixing chokepoints gives better results and has
greater impact than if the cases were monitored individually –
the difference between wholesale and retail.
Terminology
In conversation, the terms scheduled castes–Dalit–SC, scheduled
tribes–Adivasi–ST, sometimes SCST or SC/ST to refer to them
collectively, and POA–SC/ST Act–Atrocities Act are used
interchangeably. However, that is erroneous at several different
levels. Several indigenous and tribal people (‘Adivasis’ in casual
conversation and popular usage) are administratively
misclassified as Scheduled Castes or Most Backward Class
(MBC) or Other Backward Classes (OBC). The same
misclassification affects those referred to as Dalits in conversation
and popular usage. More precision is required in the written form Lapses by the senior
especially in a report such as this. government officials –
many from the IAS and
In this report, when each is referred to individually, the legal IPS cadres – have
terms are used – Scheduled Caste (SC) and Scheduled Tribe (ST). permanent irrevocable
adverse
The collective term ‘scheduled communities’ (but not the initials
multi–generational
as a short form, to prevent confusion) is used, unless consequences for the
contextually required otherwise. The term ‘communities’ is scheduled communities.
preferred, as an explicit rejection of the ritual impurities of caste
ascribed onto these communities by caste society. Each is a
community, not a sub–community, and certainly not a
‘sub–caste’. Precision in language is a small step towards
increasing individual self–esteem and empowering the
communities.
For brevity, ‘special public prosecutors’ (SPP) include exclusive
special public prosecutors (ESPP), and ‘special courts’ include both
designated special courts and exclusive special courts. The generic
‘survivor’ is used to include several legal terms used in the Act and
Rules: victims, witnesses, informers, and their dependents, family
members, and attenders. Their rights often overlap (information,
protection, and relief), some provisions are similar (protection), and
some are the same (travel allowance and maintenance expenses).
Familiarity with the specific context is advised, and the reader could
refer to the section or rule for the specifics.
We use the term ‘recorded’ crime rather than ‘reported’, since
we are using the crime data recorded by the National Crime
Records Bureau. The National Crime Records Bureau only

records the cases reported to them by the state crime records
bureaus, which in turn record only what the police report to them.
It is somewhat difficult to be sure that all crimes reported to the
police are recorded by them, though anecdotal evidence
indicates they do not. The police only report the number of cases
in which the first information reports (FIRs) were registered,
which is less than the number of crimes reported to them
(complaints etc.) by informants, witnesses, and survivors.
Rather than second guess, we stick with the official data, but
subject it to rigorous analysis.
Methodology
The report is based solely on the government data on the
functioning of the mechanisms under the Act at the union, state,
district, and subdivisional levels: from the National and State
Crime Records Bureaus (NCRB and SCRB), state annual reports
Though monitoring (SAR) sent to the union government under Rule 18, and the
implementation at the union annual reports u/s 21(4) tabled in parliament. Some
systems level is drab and
dreary, monitoring the
requests under the Right to Information Act, 2005 (RTI) were
sentinels and fixing filed with the respective states and union ministries to fill in the
chokepoints has better gaps, since some of these reports were not disclosed suo moto as
long term results and
required under the RTI Act, 2005. The analysis and presentation
has greater impact
than monitoring are done inhouse by a dedicated team of DAHRDs using this
individual cases. union and state government data.
Since the reviews [Rule 4 and Rule 14] are official wise and are
performance assessments of individual officers, it is
methodologically simple (though time consuming) to identify
the precise mechanisms and officials that are underperforming
and therefore need attention at progressively higher levels. The
emphasis on the performance of individual officers is a feature of
the Act rather than any crime or crime related classification. The
rules are clear that the cases are supposed to be reviewed as per
the official involved: ‘position of all investigations done by the
investigating officers [Rule 7(3)], and performance of the special
public prosecutors [Rule 4(2) and Rule 14(2)]. The union
government has the means and tools to identify the individual
officers at all levels and take corrective action.
In this report, the scorecard on the performance of key
individuals is restricted to the chief ministers, their parties, and
the states. Being the first report, it has the scorecard on their
performance since the Rules came into force on 31 March 1995.
People and process

This report and the roundtable are anchored by the citizens’ 1
vigilance and monitoring committee (CVMC) and is an outcome
of a collective effort of various initiatives. It includes various
human rights organisations, campaigns, and civil society
initiatives such as the Right to Information Network and
lawyers’ collectives. The initiative is by active citizens coming
together on the CVMC platform at the district, state, and union
levels. The report was prepared by a distributed team of Dalit and
Adivasi Human Rights Defenders, verified, and released by a
group of eminent citizens from the national CVMC.
The report is a scaled–up version of the previous scorecards and
status reports prepared on the implementation of the Act in
Karnataka and Tamil Nadu, all of which, along with the union
and state annual reports and source data, are available on the
exclusive website https://www.cvmc.in/.
The preparation of the national report formally kicked off on Citizens have a duty to
22 October 2022, rooted in the Tamil Nadu experience since hold the government of
2017, and the Karnataka experience since 2009. The RTI the day accountable for
their actions and inactions.
requests were sent out by the end of February 2023, and the ~ Dr DY Chandrachud,
information analysed in June 2023. Chief Justice of India
This inclusive and participatory process holds within it an

optimistic attempt to rejuvenate the union, state, district, and
subdivisional level mechanisms under the Act. In presenting a
more comprehensive report to the nation and parliament, using
the same data, it is to forge a better long–term access to justice
and to enable the prevention of atrocities against the scheduled
communities.
Executive Summary
Figure 1: Recorded crime (1992 to 2021)
Year Scheduled Tribes Scheduled Castes
1992 4,306 24,922
1993 3,652 24,973
1994 5,019 33,908
1995 5,498 32,996
1996 4,973 31,440
1997 4,644 27,944
1998 4,276 25,638
1999 4,450 25,093
2000 4,190 25,455

2001 6,217 33,501
2002 6,774 33,507
2003 5,889 26,252
2004 5,535 26,887
2005 5,713 26,127
2006 5,791 27,070
2007 5,532 30,031
2008 5,392 33,430
2009 5,250 33,412
2010 5,764 32,643
2011 5,756 33,719
2012 5,922 33,655
2013 6,793 39,408

2014 11,451 47,064
2015 10,914 38,670
2016 6,568 40,801
2017 7,125 43,203
2018 6,528 42,793
2019 7,570 45,961
2020 8,272 50,291
2021 8,802 50,900
(Table 01 page 82)

The table and page numbers reference the data tables and page numbers in the full audit report.
Executive Summary
Context
The Scheduled Castes and the Scheduled Tribes (Prevention of 1
Atrocities) Act, 1989 and its predecessors – the Untouchability
(Offences) Act, 1955 and the Protection of Civil Rights Act,
1955 – are rooted in Articles 15 and 17 of the Constitution of
India. Article 15 prohibits discrimination based on caste. Article
17 states that ‘Untouchability is abolished and its practice in any
form is forbidden. The enforcement of any disability arising out
of “Untouchability” shall be an offence punishable in
accordance with law’.
It is the key legislation in India to prevent atrocities against the
scheduled communities by those from other communities and, in
the unfortunate event that an atrocity does take place, for
timebound administration of justice, relief, instant monetary
relief, allowances, reimbursements, and socioeconomic
rehabilitation within three months. It has periodic reviews at the
The SCs and the STs (PoA)
subdivisional, district, state, and union levels, dedicated officials
Act, 1989 is the key
for investigation and prosecution, and special officers for legislation to prevent
coordination. It is a comprehensive and precise legislation with atrocities against the
scheduled communities
precise dates, timeframes, precise roles and responsibilities of and, if an atrocity takes
various departments and their officers at different levels, the role place, for time–bound
and responsibility of local governments, non–government administration of justice,
relief, and socioeconomic
organisations, and monitoring mechanisms with written reports rehabilitation. It has
at every stage to confirm compliance or explain non–compliance. precise dates, timeframes,
roles and responsibilities
The implementation of the Act is reviewed quarterly by the of various departments
subdivisional, district, and state level vigilance and monitoring and their officers, from
local, state to union
committees, chaired by the subdivisional magistrate, district governments,
magistrate, and nodal officer respectively. In addition, there is a non–government
state level high power vigilance and monitoring committee that organisations, and
monitoring mechanisms
reviews implementation in January and July every year. At the with written reports at
national level, the Committee for Effective Coordination to every stage to confirm
Devise Ways and Means to Curb Offences of Untouchability and compliance or explain
non–compliance.
Atrocities Against the Scheduled Castes and the Scheduled
Tribes and Effective Implementation of the Protection of Civil
Rights Act, 1955 and the Scheduled Castes and the Scheduled
Tribes (Prevention of Atrocities) Act, 1989 (hereafter ‘CEC’)
does the reviews with the minister for social justice and
empowerment as the chairman.
Executive Summary
Figure 2: Recorded crime rate (1992 to 2021)
Year Scheduled Tribes Scheduled Castes
1992 0.5 2.9

1993 0.4 2.8
1994 0.6 3.8
1995 0.6 3.6
1996 0.5 3.4
1997 0.5 2.9
1998 0.4 2.6
1999 0.5 2.5
2000 0.4 1.4
2001 0.6 3.3
2002 0.6 3.2
2003 0.6 2.5
2004 0.5 2.5
2005 0.5 2.4
2006 0.5 2.4
2007 0.5 2.6
2008 0.5 2.9
2009 0.5 2.9
2010 0.5 2.8
2011 0.5 2.8
2012 5.6 16.7
2013 6.5 19.5
2014 11.0 23.4
2015 10.5 22.3
2016 6.3 20.3
2017 6.8 21.5
2018 6.3 21.3
2019 7.9 22.8
2020 7.9 25.0
2021 8.4 25.3
Executive Summary
The CEC reviews and coordinates the following (all emphasis as

in the union report 2021): 1
(i) Setting up of exclusive special courts for speedy trial of
offences under the Act.
(ii) Regular conduct of meetings of the State and District level
Vigilance & Monitoring Committees, as per Rules 16 and
17 of the Rules.
(iii) Identification of Atrocity Prone Areas as per Section 21(vi)
of the Act and Rule 3(i) of the Rules.
(iv) Invoking relevant provisions of the Rules for de–notifying
defaulting public prosecutors.
(v) Reviewing all cases of acquittal, for appropriate remedial
action.
The implementation status of the Act for the calendar year 2021
detailed in this report is after these multi–level high power
monitoring and effective coordination has been done. It is
compiled using data from the National Crime Records Bureau,
the state annual reports prepared under rule 18, the union reports The calendar year 2021 has
u/s 21(4), and additional information got through the Right to crossed several milestones
in the recorded
Information Act, 2005. The state and union annual reports have inter–community crime
been uploaded onto the website https://www.cvmc.in/ for public against the scheduled
reference and use. communities. Cumulatively,
over a million (1,021,694)
cases of atrocities against
Status of implementation the scheduled castes. For
Crime recording the first time over 5,000
inter–community rapes of
The calendar year 2021 has crossed several milestones in the scheduled community
recorded inter–community crime against the scheduled women were recorded in a
communities (scheduled castes and the scheduled tribes). Since year, and the third
consecutive year in which
1992, when the National Crime Records Bureau started keeping over a thousand from the
disaggregated records of crimes registered this Act, scheduled communities
cumulatively over a million (1,021,694) cases of atrocities were murdered in
inter–community crime.
against the scheduled castes have been recorded by 31 December
2021. This is in addition to the 184,566 atrocities against the
scheduled tribes during the same period, making a total of
1,206,260 recorded crimes against the scheduled communities
from 1 January 1992 to 31 December 2021.
The calendar year 2021 marks the first time there were over
5,000 recorded inter– community rapes of scheduled community
women in a year, and the third consecutive year in which over a
thousand from the scheduled communities were murdered in
inter–community crime – i.e., by persons from non–scheduled
communities. It is also the third consecutive year when rape is
the most recorded inter–community crime against women and
Executive Summary
Figure 3: Recorded crime (2021)
13
Scheduled Castes
244
200 0 13,146
123
1,628
136
2
7,524 13,146 15
5,842
546 3
1,201 7,214 108
330
2,327
2,503
1,772
Scheduled Tribes
4 2,014
0 2,627 1,673
7
1 1,377
948
7
6
5 1
1
2,121 4 16
103
341 250 92
2,627
506
3 676
628
512
5 361
361
3
39
133
(Table 02 page 82)
Executive Summary
girls from the scheduled communities in India as a whole, and in

10 states in the case of women and girls from the scheduled 1
castes and in 14 states and one union territory in the case of
women and girls from the scheduled tribes.
Just 15 states record over 98% of the crimes recorded under this
Act. The states where most of the atrocities against the scheduled
castes take place, and their crime rates are Uttar Pradesh (13,146,
31.8%), Madhya Pradesh (7,214, 63.6%), Rajasthan (7,524,
61.6%), Bihar (5,842, 35.3%) and Maharashtra (2,503, 18.9%).
Other states with high rates are Telangana (1,772, 32.6%), Odisha
(2,327, 32.4%), Haryana (1,628, 31.8%), Kerala (948, 31.2%), and
Gujarat (1,201, 29.5%).
Most of the recorded atrocities against the scheduled tribes are
from Madhya Pradesh (2,627, 17.2%), Rajasthan (2,121,
23.0%), Odisha (676, 7.0%), Maharashtra (628, 6.0%), and
Telangana (512, 15.6%). In addition, high rates are recorded in
Kerala (133, 27.4%), Andhra Pradesh (361, 13.7%), Karnataka Analysis of the crimes
(361, 8.5%), Bihar (103, 7.7), and Chhattisgarh (506, 6.5%). recorded shines the light on
the official behaviour in
An analysis of the crimes recorded shines the light on the official recording atrocities against
behaviour in recording atrocities against the scheduled the scheduled communities
communities and on the underlying trends in recording. It and on the underlying trends
in recording. It reveals a
reveals a systemic suppression and trivialisation of crimes
systemic suppression and
against the scheduled communities. trivialisation of crimes
against the scheduled
The atrocity suppression and trivialisation yearly assessment
communities. While for the
(ASATYA), was done by comparing the recorded murder, overall India total there is a
attempt to commit murder, grievous hurt, and simple hurt in logical inverse relationship
three categories – India overall, atrocities against the scheduled (a tapering tail) between
frequency and severity of
castes, and atrocities against the scheduled tribes, for the the atrocity, the sequence
calendar years 2017 to 2021. gets skewed for
inter–community crimes.
ASATYA reveals a curious pattern. While for the overall India total
there is a logical inverse relationship (a tapering tail) between
frequency and severity of the atrocity – about 1.85 attempts to
commit murder for every murder, 1.7 grievous hurt for every attempt
to commit murder, and about five simple injuries for every grievous
hurt, the sequence gets skewed for inter– community crimes.
For the scheduled castes, about one (0.97- half the national
average) attempt to commit murder is registered for every
murder, 1.6 grievous hurt for every attempt to commit murder,
but over 11 simple injuries for every grievous hurt. For the
scheduled tribes it is worse – about 0.8 attempts to commit
murder are recorded for every murder, one grievous hurt for
Executive Summary
Figure 4: Recorded crime rate (2021)
0
1.4
Scheduled Castes
14.1
2.3
6.5 0 63.6
31.8
4.8
7.1
61.6 31.8 0.7
35.3 0
0
29.5 13.7 0.5 0
63.6 0.5
10.1
32.4
18.9
Scheduled Tribes
32.6
0 27.4
15.7 23.8
16
0
0.1
3.6
1.8 9.5
31.2
2.1
0.1
0.5
23 0.4 0.4 0
7.7 0
0
3.8 2.9 0 0
17.2 1.7
6.5
1.5 7
6
15.6
3.3 13.7
8.5
10.5
4.9
27.4
(Table 02 page 82)
Executive Summary
every attempt to commit murder, but

about 14 simple injuries for every 1600% 1
grievous hurt. The implication that 1400%
the scheduled communities –
especially the scheduled tribes who 1200%
are in remote locations – rush to
1000%
police stations for registering simple
hurt rather than attempt to commit 800%
murder is rather intriguing.
600%
Compared to the national mean of
recorded inter–community murder 400%
to attempt to commit murder,
200%
recording is only 53% for the
scheduled castes and 45% for the 0%
scheduled tribes. For the scheduled Murder AtM/M GH/AtM SH/GH
tribes, there is an over 41% gap India SC ST
between the recorded grievous hurt AtM: Attempt to murder GH: Grievous Hurt SH: Simple Hurt
to attempt to commit murder and rate Figure 5: Recorded bodily harm: All India (2017 to 2021)
of those recorded overall, while for (Table 04 page 85)
the scheduled castes it is just a 5%
gap indicating little divergence from the overall national
recording trend. The difference from the all India average for
grievous hurt to simple hurt is an astounding 220% for the
scheduled castes and 284% for the scheduled tribes.
Crimes against women
While the patriarchal nature of the state and society is a given,
the extent it plays out through caste in the fragile bodies of
women and girls from the scheduled communities is revealed
through the records of the National Crime Records Bureau.
There, the ASATYA effect of suppression and trivialisation –
the pernicious effect of the intersection of gender, caste,
ethnicity, and class – manifests starkly, shorn of emotion in cold
numbers. Overall, India records only 13% attempt to commit
rape for every rape. This cannot be attributed to social
compulsions, since 257% assault on the modesty of women are
recorded compared to rape. It is rather unlikely that women
would report rape and assault on their modesty but shy away
from reporting attempt to commit rape. The further degrading of
the women from the scheduled castes is revealed by recording
just 3.7% attempt to commit rape and even lower at 1.9% for
women and girls from the scheduled tribes. For the scheduled
communities, recorded assault on the modesty of women
Executive Summary
Figure 6: Recorded murder and rape (1992 to 2021)
Year Murder Rape Scheduled Tribes Scheduled Castes
1992 719 1,183
1993 615 1,143
1994 651 1,377
1995 646 1,242
1996 637 1,263
1997 608 1,352
1998 582 1,254
1999 586 1,384
2000 585 1,486
2001 930 1,889
2002 928 1,928
2003 766 1,640
2004 810 1,723
2005 833 1,812
2006 868 1,916
2007 814 1,976
2008 746 2,038
2009 751 1,939
2010 696 1,990
2011 816 2,329
2012 807 2,305
2013 798 2,920
2014 861 3,158
2015 851 3,278
2016 925 3,515
2017 842 3,755
2018 966 3,944

2019 1,074 4,596
2020 1,027 4,509
2021 1,166 5,194
(Table 01 page 80)
Executive Summary
compared to rape is also lower than the India average (257%),

just 106% for women from the scheduled castes and lowest for 1
women from the scheduled tribes (82%). The recorded insult to
the modesty of women to recorded assault on their modesty in
India overall is over 260% more than that recorded for women
from the scheduled castes and almost 360% more than for the
scheduled tribes.
Data from the National Crime Records Bureau for the calendar
year 2021 reveals shocking trends. Twenty states and the union
territory of Delhi have registered inter–community crime against
scheduled caste women. Rape is the most recorded inter–
community crime against women from the scheduled castes in ten
states: Bihar, Chhattisgarh, Gujarat, Himachal Pradesh, Kerala,
Odisha, Sikkim, Tamil Nadu, Telangana, and Uttarakhand.
Rape is the most recorded inter–community crime against
women and girls from the scheduled tribes in 14 states – Bihar,
Chhattisgarh, Gujarat, Jharkhand, Karnataka, Kerala, Madhya Data from the National
Pradesh, Odisha, Rajasthan, Sikkim, Tamil Nadu, Telangana, Crime Records Bureau for
the calendar year 2021
Uttar Pradesh, and Uttarakhand – and the union territory of reveals shocking trends.
Andaman and Nicobar Islands. Rape is the most recorded
inter–community crime
There are virtually no recorded ‘attempts to commit rape’ or against women from the
‘insult to the modesty of women’ recorded in conjunction with scheduled castes in ten
states and against women
relevant sections under this Act, but most are lumped with
and girls from the scheduled
‘assault on woman with intent to outrage her modesty’. Of the tribes in 14 states. There is
100 cases of attempt to commit rape women from the scheduled a discernible increasing
castes, a bulk are recorded in Rajasthan (67) and Uttar Pradesh trend of targeting the
minor girls for rape.
(9). All eight union territories and 17 of 28 states record nil
attempt to commit rape of women from the scheduled castes in
2021, though one union territory and 17 states have recorded
rapes. There is a discernible increasing trend of targeting the
minor girls for rape – indicating caste–warlike consolidation of
prejudice and execution of hate.
In 2021, there were 3,780 recorded cases of inter–community
rape of women and girls from the scheduled castes, and 1,324 of
women from the scheduled tribes. Incredibly, data for the
calendar year 2021 reveals that rape is the most recorded
inter–community crime against women from both the scheduled
castes and the scheduled tribes. It is higher than attempt to
commit rape (SC100, ST25), or assaults on women with intent to
outrage her modesty (3764, 881) or insult to the modesty of
women (157, 29). This pattern holds true for 2014 to 2021 for
Executive Summary
Figure 7: Recorded rape: Women and girls (2021)
Scheduled Castes
13
20
18 0 566
234
4
1
566 559
117
120 564 16 2
103
225
395
Scheduled Tribes 256
0 376
190 135
123
209
2
1
149 1
3
76 376 11 5
208
122
145
103
1 34
48
1
6
32
(Table 08 , 09 page 92, 94)
Executive Summary
women from the scheduled tribes, and for 2019 and 2021 for
women and girls from the scheduled castes as well. The pattern 1
shows systematic suppression and trivialisation in crime
recording – the ASATYA effect. 5000%
The eight–year average (2014
to 2021, the years for which 4000%
data is available) show a 96.3%
difference between rape and
3000%
attempt to commit rape – with
an increasing trend to 97.4% in
2021 – with meagre records for 2000%
voyeurism, stalking, and other

crimes that precede rape for a 1000%
considerable stretch of time.
The data shows trivialisation 0%
with recorded assaults on Rape AtR/R AW/AtR I/AW
women with intent to outrage
India Scheduled Caste Scheduled Tribe
her modesty being almost 30
AtR: Attempt to rape
times recorded attempted AW: Assault on women to outrage her modesty
inter– community rape for I: Insult to modesty of women
scheduled caste women, and Figure 8: Recorded Atrocities: Women and Girls (2014 to 2021)
over 40 times for women from (Table 07 page 90)
scheduled tribes. When it comes to recorded insult to the
modesty of women, the figures again plumet to an eight–year
average of 3.45% for scheduled caste women and girls, and
2.52% for scheduled tribe women and girls. This could mean that
these crimes are not recorded since the women do not come
forward to register cases of ‘insult to the modesty of women’ or
that the police are not recording them or, worse, they are
normalised in society. In any case, it is strange that women
would register complaints about assault with intent to outrage
their modesty but not (attempt to) register complaints on attempt
to commit rape.
In atrocities against women from the scheduled castes, Bihar,
Chhattisgarh, Gujarat, Himachal Pradesh, and Uttarakhand
record rapes and assaults on women with intent to outrage her
modesty but no attempts to commit rape or insult to the modesty
of women. Kerala, Maharashtra, Odisha, Sikkim, and Delhi
record rapes but no attempt to commit rape. States with wide
disparity in recorded rape and attempt to commit rape are
Andhra Pradesh (rape 135, attempt to commit rape 4), Haryana
(234, 9), Jharkhand (16, 2), Karnataka (190, 1), Madhya Pradesh
Executive Summary
Figure 9: Rape against minor girls (2021)
Scheduled Castes
5
10 0 189
1
92 1
1
63 145
5
77 189 1
44
9
163
Scheduled Tribes 118
0 154
118 49
89
105
1
9
2
62 154 2 2
101
18
62
38
1 10
30
1
5
14
(Table 14, 15 page 98, 99)
Executive Summary
(564, 2), Punjab (20, 2), Tamil Nadu (123, 2), Telangana (256,
1), and Uttar Pradesh (559, 9). 1
Implausibly, in some states rape is the most recorded
inter–community crime – more rapes than attempt to commit
rapes (which are incredibly low) and even assaults on women
with intent to outrage her modesty – Bihar (117 rapes, 2 assaults
on women with intent to outrage her modesty), Chhattisgarh
(103, 45), Gujarat (120, 59), Himachal Figure 10:
Pradesh (13, 3), Kerala (209, 166), Odisha Rape against woman and girls (2017 to 2021)
(255, 126), Tamil Nadu (123, 34), Telangana
3,870
(256, 98), and Uttarakhand (19, 3). 3,486 3,372
Analysis reveals a wide variation in the 2,936
2,714
number of recorded rape, the number of
67%
recorded rape of children, and the 68% 69%
76% 70%
percentage–wise ranking. Of the 21 states
and union territories that recorded
inter–community rape of scheduled caste
24% 30% 32% 31% 33%
women and girls, 10 have recorded zero
2017 2018 2019 2020 2021
attempts to commit rape of scheduled caste
Scheduled Castes
women and girls, and the bulk of recorded 1,324
attempt to commit rape of scheduled caste
1,110 1,137
women and girls is from just one state 1,041 1,008
(Rajasthan, 67 of 100).
61%
On average, about a third (33%) of the 64% 60%
63% 60%
recorded rapes are of minor girls. The top
five states, in descending order of recorded
incidence are Madhya Pradesh (189, 34%), 37% 40% 36% 40% 39%
Maharashtra (163, 41%), Uttar Pradesh 2017 2018 2019 2020 2021
(145, 26%), Karnataka (118, 62%), and Scheduled Tribes
Telangana (118, 46%). In terms of (Table 10 , 11 page 96)
percentage (excluding Sikkim which recorded only one and
therefore is 100%), the top five states are Tamil Nadu (89, 72%),
Gujarat (77, 64%), Karnataka (118, 62%), Kerala (105, 50%),
and Punjab (10, 50%). Of them, Gujarat, Kerala, and Sikkim
recorded zero attempts to rape, Karnataka one, and Tamil Nadu
two – a clear indicator of suppression.
The recorded rape of little girls from the scheduled castes is
overwhelmingly from Madhya Pradesh, followed by
Maharashtra, Uttar Pradesh, and Haryana, with these states (in a
decreasing trend), accounting for over half the cases involving
children from the scheduled castes. The recorded rape of little
girls from the scheduled tribes is overwhelmingly from Madhya
Executive Summary
Figure 11: Rape as highest recorded atrocity against women (2021)
Scheduled Castes
13 1 256
18
117
120
103
225
256
Scheduled Tribes
1 376
123
209
1
149 1
3
76 376 11
208
122
103
48
1
6
32 (Table 08, 09, 14, 15
page 92,94, 98, 99)
Executive Summary
Pradesh, followed by Chhattisgarh. Together, these two states

account for about 25% of the recorded atrocities against little 1
girls from the scheduled communities. They are followed by
Maharashtra, Telangana, and Gujarat. Of them, Telangana and
Gujarat show an increasing trend.
Crimes against women are less likely to be chargesheeted. While
the difference in charge–sheeting of murder and rape is not as
significant (SC: murder 92: 89 rape and ST 93:95), for attempt to
commit murder and attempt to commit rape it is almost double
(SC 92:58 and ST 94:42).
The data indicates that the incidence of inter-community rape, its
rate, and the percentage of minor girls is steadily increasing.
While the National Crime Records Bureau data reveals that the
most vulnerable age for women in India is from 18 to 35, the
same data reveals that there is disproportionate inter-community
rape of minor girls in some states. As a pattern, it could reveal
specific targeting of girls with rape as an instrument of caste war,
as is evident from the state specific data. The data reveals that the As a pattern, it could reveal
inter–community rape of children from the scheduled tribes shot specific targeting of girls
with rape as an instrument
up even during the pandemic.
of caste war, as is evident
Even with the limited data available, an uncomfortable truth is from the state specific data.
The data revals that the
self–evident – women and girls from the scheduled communities
inter–community rape of
continue to be much more vulnerable to rape than women children from the scheduled
belonging to other communities. Women from the scheduled tribes shot up even during
communities are more likely to be raped by men from other the pandemic.
communities (in addition to intra–community rape) than women

belonging to other communities in total (by inter and
intra–community men). The remoteness of the tribal
communities does not provide adequate protection to them. All
crimes against them increased, with the little girls being the most
affected in 2021.
Charge–sheeting
Overall, the charge–sheeting rate for atrocities against the
scheduled communities is about 80% in 2021. While murder and
attempt to commit murder are taken seriously (92%) and rape
just a shade lower (89%), there are considerably less
charge–sheets filed for assault on women with intent to outrage
her modesty (81%), insult to the modesty of women (75%), and
just 58% for attempt to commit rape. This is a clear indication of
suppression of crimes against women from the scheduled castes
at the police station itself in both recording and charge–sheeting.
Executive Summary
Figure 12: Charge–sheeting rate (2021)
50
Scheduled Castes
64
67 0
81 0 100
49
93
100
50 85 23
82
100 57 88
96
98
100 91
86
Scheduled Tribes 76
0 100 60
79 76
100
75 85
79
0
80
75
100
47 75 75
85
0
97 100 64 99
99
100 95
90
76
100 78
90
100
95
82
(Table 18 page 102)
Executive Summary
The pattern for atrocities against the scheduled tribes seem to be

the same overall – with the charge–sheeting rate being a little 1
higher for the total (82%), for murder (95%), and assault on
women with intent to outrage her modesty (89%). In contrast, the
charge–sheeting for attempt to commit rape plummets from 87%
(2019) to 69% (2020) to just 42% (2021).
Sikkim, the Andaman and Nicobar Islands, and Dadra and Nagar
Haveli have a 100% charge–sheeting record, and Chhattisgarh,
Gujarat, Madhya Pradesh, and Odisha have a respectable
charge–sheeting rate of over 90%. At 23%, the charge–sheeting rate
is extremely low for atrocities against the scheduled castes in Assam.
Five states (Uttarakhand 88%, Sikkim 50%, Tripura 0%, Punjab
72%, and Assam 87%) and three union territories (Puducherry
86%, Jammu and Kashmir 46%, and Delhi 79%) have a police
disposal rate of less than 90% for atrocities against scheduled
castes, while for scheduled tribes it is seven states (Arunachal
0%, Assam 75%, Bihar 76%, Goa 90%, Tamil Nadu 49%, A majority of the cases are
Uttarakhand 83%, and West Bengal 80%), and three union not charge–sheeted within
the stipulated time (just
territories (Dadra and Nagar Haveli, Daman and Diu 33%, Delhi 46%). This results in a huge
80%, and Jammu and Kashmir 0%). These states are likely to fall delay and denial of relief to
behind in fulfilling the statutory requirement of completing the victims since, in most
cases, 50% of the relief
investigations in 60 days, and their backlog of cases pending
amount is released only
investigation and pendency rate will only increase. when the charge–sheet is
filed. In most cases, the
A majority of the cases are not charge–sheeted within the statutory written reason for
stipulated time (just 46%). This results in a huge delay and denial the delay [Rule 7(2A)] is not
of relief to the victims since, in most cases, 50% of the relief filed either.
amount is released only when the charge–sheet is filed. In most

cases, the statutory written reason for the delay [Rule 7(2A)] is
not filed either.
Though there were cases registered in the state or union territory,
Assam, Manipur, Uttar Pradesh, West Bengal, Chandigarh, and
Lakshadweep did not file a single charge–sheet in 2020. Assam
did not file a single charge–sheet in 2021 either, though there
were cases registered.
Of the states that filed charge–sheets, Goa, Tripura, and
Puducherry did not file a single charge–sheet on time in
2020, possibly due to the pandemic. Manipur, Tripura, West
Bengal, and Dadra and Nagar Haveli did not file any
charge–sheet on time in 2021.
Executive Summary
Figure 13: States with exclusive special courts
31 65
14
16 11 4
8 1
17
Annexure 4.4, p315, Annual Reports 2022-23,
MoSJ&E, Government of India
16 11
Figure 14: States receiving central

assistance for exclusive special courts
1
17
Table 4.6, p56, Annual Reports 2022-23,
MoSJ&E, Government of India
Executive Summary
Four states – Gujarat, Himachal Pradesh, Tamil Nadu, and

Uttarakhand – filed less charge–sheets in 2021 than in the 1
pandemic year 2020. Four states – Himachal Pradesh,
Jharkhand, Karnataka, and Telangana – and the union territory
of Dadra and Nagar Haveli has a less compliance rate in 2021
than in 2020.
Uttar Pradesh records almost 88% compliance in 2021, which
means that charge–sheets for the cases registered pre–2021 will
have abnormal delays since Uttar Pradesh recorded 12,714
atrocities in 2020 and 13,146 atrocities in 2021, did not file a
single charge–sheet in 2020, and filed only 11,397 charge–sheets
in 2021. So even assuming there are no pending recorded cases
for charge–sheeting pre–2021, they have over 13,000 cases that
have not been charge–sheeted for more than a year.
Special courts and pendency

There are 663 districts with either a designated special court
(487) or an exclusive special court (176) in 2021. The number of Four states – Gujarat,
exclusive special courts has increased from 157 in 2017 to 176 in Himachal Pradesh, Tamil
2021. Of the 176 exclusive special courts in 11 states, only 48 courts Nadu, and Uttarakhand –
filed less charge–sheets in
in five states (Andhra Pradesh 1, Gujarat 16, Madhya Pradesh 11, 2021 than in the
Maharashtra 3, Tamil Nadu 17) were given due central assistance pandemic year 2020.
for strengthening of the enforcement and judicial machinery in
2021 compared to 69 courts in five states in 2020.
There are fewer special public prosecutors than special courts,
and fewer exclusive special public prosecutors than exclusive
special courts, which violates Section 15(1) and Section 15(2)
respectively, which mandate one special prosecutor for one
special court, and one exclusive special prosecutor for one
exclusive special court. Eleven states (Chhattisgarh, Haryana,
Jharkhand, Karnataka, Madhya Pradesh, Meghalaya, Mizoram,
Odisha, Punjab, Tamil Nadu, and Uttarakhand) are
non–compliant. Himachal Pradesh, Maharashtra, and Manipur
do not report on this indicator. In most states, the number of
exclusive special courts do not match with the number of
identified areas and pendency rate. Of the top 15 states in
recorded atrocities against the scheduled communities, Haryana
and Kerala do not have any exclusive special courts.
A total of 12,184 cases were disposed off in 2021 – at an average
disposal of 18.37 cases per annum per court (in the 487
designated special courts and 176 exclusive special courts).
Despite the increase in number of special courts, the number of
cases disposed off is decreasing.
Executive Summary
Of 222,974 cases of atrocities against the scheduled castes

A total of 12,184 cases
were disposed off in 2021 – pending from 2020 just 10,223 (4.58%) were disposed off by
at an average disposal of courts in 2021. For cases of atrocities against the scheduled
18.37 cases per annum tribes, of the 35,415 cases pending from 2020, only 1,961 (5.5%)
per court (in the 487
designated special courts and
were disposed off in 2021. These figures do not include the cases
176 exclusive special courts). sent to court in 2021, so these 10,223 and 1,961 cases are all more
than a year old. Courts seldom comply with the guideline to
complete the trial within two months of filing the charge–sheet
[Section 14(3)].
In the five years (2017 to 2021) the number of atrocity cases
pending in court have increased by 68% – from 176,067 in 2017
to 295,115 in 2021. It has resulted in a 66% increase in pending
cases of atrocities against the scheduled castes (from 153,154 to
254,475), and 77% increase in pending cases of atrocities against
the scheduled tribes (from 22,913 to
200
40,640). At this rate the pendency will
180 keep increasing and the backlog will
never be cleared. Even if unintended,
160 these delays are fatigue inducing and
lead to acquittals.
140
Cases of murder pending in court
have increased 58% from 4,077 in
120
2017 to 6,424 in 2021. Cases of rape
100
pending in court have increased 94%
– almost doubled – from 11,793 in
0 2017 to 22,860 in 2021. Even within
2017 2018 2019 2020 2021 three years (2019 to 2021) the number
Scs in Pendency % ST in Pendency %
of pending cases has increased 30%
Scs Increase in Pendency Sts Increase in Pendency for murder and 44% for rape. Pending
Figure 15: Cases in court: Rape (2017 to 2021)
cases of insult to the modesty of
(Table 27 page 118)
women has almost doubled (93%) in
three years for the scheduled castes
and by two thirds (62%) for scheduled tribes – yet another
indicator of women getting the short end of the stick. Scheduled
tribes whose cases have been charge–sheeted as simple hurt have
75% of their cases pending.
The states with the largest number of pending cases of atrocities
against the scheduled castes are Uttar Pradesh (67,512 pending
cases, 25% of the pending cases nation–wide), Bihar (53,387), and
Madhya Pradesh (30,770). For the scheduled tribes they are
Madhya Pradesh (11,442), Odisha (5,852), and Rajasthan (4,882).
Executive Summary
In this 2017 to 2021 period, only West

Bengal (2,797 to 836, –70%), and
180
1
Chandigarh (5 to 3, –40%) have reduced
the number of pending cases of 155
atrocities against the scheduled castes.
Only Manipur (4 to 3, –25%) has reduced
130
the number of pending cases of
atrocities against the scheduled tribes.
105
The number of pending cases of
atrocities against the scheduled castes
doubled in Andhra Pradesh (126%), 80
2017 2018 2019 2020 2021
Assam (125%), Haryana (205%),
SCs Pendency % ST Pendency %
Himachal Pradesh (109%), Punjab
Scs Increase in Pendency Sts Increase in Pendency
(178%), Telangana (181%), Uttarakhand
Figure 16: Cases in court: Murder (2017 to 2021)
(183%), Dadra and Nagar Haveli
(Table 26 page 116)
(100%), and Jammu and Kashmir
(200%). Similarly, for cases of 6000
atrocities against the scheduled tribes,
the number doubled in Andhra
Pradesh (101%), Chhattisgarh (116%), 4000
Telangana (172%), Uttar Pradesh
(579%), and Uttarakhand (169%).
2000
Though there were pending cases
from 2020, courts in three states
(Assam 62, Manipur 6, and Arunachal
0
Pradesh 2) and five union territories 2017 2018 2019 2020 2021
(Puducherry 53, Dadra and Nagar
Scheduled Caste Scheduled Tribe
Haveli 14, Tripura 3, Chandigarh 3, and
Figure 17: Cases for trial: Murder (2017 to 2021)
Jammu and Kashmir 3), did not dispose
(Table 26 page 116)
off a single case in 2021. Similarly,
courts in six states (Uttar Pradesh 1083, 20,000
Tamil Nadu 100, Uttarakhand 31,

Himachal Pradesh 18, Tripura 2, and 15,000
Haryana 1), and one union territory

10,000
(Delhi 14) did not dispose of a single
case of atrocity against the scheduled
5,000
tribes in 2021.
Mizoram is an outlier, having 0
disposed off all the eight charge– 2017 2018 2019 2020 2021
sheeted cases (100%). The next in Scheduled Caste Scheduled Tribe

rate of disposal is Punjab, which has Figure 18: Cases for trial: Rape (2017 to 2021)
(Table 27 page 118)
disposed off one of three cases (33%)
Executive Summary
400 of atrocities on scheduled tribes, and

Sikkim which has disposed off three of
300 eleven cases (27%). All the rest are in
single digits, close to zero.
200 Increasing pendency has led to a low
conviction rate in a vicious cycle. Longer
100 delays are also due to less cases being
heard, which leads to more pendency and
0 more delays, resulting in lower
2017 2018 2019 2020 2021 convictions in a vicious cycle. Since 25%
Scheduled Caste Scheduled Tribe
of the relief is paid only at the end of the
Figure 19: Cases disposed off by courts: trial, the monetised value of this delay is a
Murder (2017 to 2021) minimum of H738 crores and possibly
(Table 26 page 116)
over H3,000 crores.
There is no significant difference in the
1,250
time taken for conclusion of trial and
1,000 judgement in regular courts in other
crimes, and the special courts and the
750
exclusive special courts under this Act.
500 On the contrary, in several instances the
performance of these ‘special’ and
250
‘exclusive’ mechanisms – the DSPs, the
0 prosecutors, and the courts – are
2017 2018 2019 2020 2021
demonstrably inferior to the general
Scheduled Caste Scheduled Tribe mechanisms. There are several DSPs and
Figure 20 Cases disposed off by courts: ESPPs and SPPs with a zero percent
Rape (2017 to 2021) conviction rate. There are thousands of
(Table 27 page 118) cases pending for more than 20 years,
some of them for over 30 years though
250
the trial – from charge–sheet to
judgement – should be completed within
150
two months [Section 14].
Convictions
100 The union annual report u/s 21(4) notes
that with regard to disposal of cases by
50
Courts under the Act in conjunction
with the IPC,4 during 2021, it is seen
4
0 Both the union report and this report use data from the Crime In India
2017 2018 2019 2020 2021 report of the National Crime Records Bureau. The citizens’ report uses the
number of cases where the Scheduled Castes and the Scheduled Tribes
Scheduled Caste Scheduled Tribe (Prevention of Atrocities) Act, 1989 are invoked (some of which do not
Figure 21: Cases convicted: Murder (2017 to 2021) invoke sections of the Indian Penal Code (IPC). The union report uses the
number of cases where the Scheduled Castes and the Scheduled Tribes
(Table 26, 29 page 116, 122)
(Prevention of Atrocities) Act, 1989 is invoked in conjunction with IPC,
which is a subset of the former.
Executive Summary
that 3.95% of the total cases relating to

scheduled castes were disposed of by
400
1
courts during the year out of which
300
33.60% ended in conviction. Likewise,
4.93% of the total cases relating to
200
scheduled tribes were disposed of by
courts during the year out of which
100
28.55% ended in conviction.
The all India conviction rates for cases 0
where the Scheduled Castes and the 2017 2018 2019 2020 2021
Scheduled Tribes (Prevention of Scheduled Caste Scheduled Tribe
Atrocities) Act, 1989 are invoked, are just Figure 22: Cases convicted: Rape (2017 to 2021)
36% for atrocities against the scheduled (Table 27, 30 page 118,124)
castes and 28% for atrocities against the
scheduled tribes in 2021. Only Mizoram,
which stands out with a 100% conviction 50
rate, Uttar Pradesh (SC 76%), and
40
Jharkhand (SC 54%, ST 63%) have above
50% conviction rates in 2021. The states 30
and union territories in club zero – those
that have disposed off cases with zero 20
convictions – are Goa, Sikkim, and West

10
Bengal (both scheduled castes and
scheduled tribes), Uttarakhand and Delhi 0
(scheduled castes) and Gujarat, Karnataka, 2017 2018 2019 2020 2021
Odisha, Punjab, and the Andaman and India Scheduled Caste Scheduled Tribe
Nicobar Islands (scheduled tribes).
Figure 23: Conviction rate: Rape (2017 to 2021)
In 2021, the conviction rate in cases of (Table 27, 30 page 118,124) India data taken from NCRB
inter– community murder of the

scheduled castes is 49.0% and of the
scheduled tribes is 46.0% (India average 60
42.4%), for the rape of women and girls

from the scheduled castes it is 28.8% and
40
for the rape of women and girls from the
scheduled tribes it is 30.8% (India
average 28.6%) – meaning virtual 20
impunity with no appreciable difference
from the all India rate despite being
investigated, charge–sheeted, prosecuted, 0
and monitored by senior officials. Though 2017 2018 2019 2020 2021
the number of special courts and India Scheduled Caste Scheduled Tribe
exclusive courts have increased, they are Figure 24: Conviction rate: Murder (2017 to 2021)
(Table 26, 29 page 116, 122) India data taken from NCRB
completing trials of fewer cases of murder
Executive Summary
Though the number of of the scheduled communities (from 395 in 2017 to 303 in 2021)
special courts and
exclusive courts have
under this Act and the conviction are also coming down from
increased, they are 56% in 2017 to 49% in 2021 for the scheduled castes and from
completing trials of fewer 53% in 2017 to 46% in 2021 the scheduled tribes.
cases of murder of the
scheduled communities Conviction rates for murder peaked in the pandemic year 2020 at
(from 395 in 2017 to 303 59% for the scheduled castes and at 59% for the scheduled tribes
in 2021) under this Act and in 2018. For rape over the same period (2017 to 2021) conviction
the convictions are also
coming down from 56 in rates are lower at barely 32%, pendency rose to 232%, and cases
2017 to 49 in 2021 for the disposed off per annum plunged from 989 in 2017 to 881 in 2021
scheduled castes and from (–11%) for the scheduled castes, and from 443 in 2017 to 300 in
53 in 2017 to 46 in 2021
for the scheduled tribes.
2021 (a stunning –32%) for the scheduled tribes. Conviction
rates for rape peaked in the pandemic year 2020 to 42.5% for
scheduled castes and 33% for scheduled tribes.
Less than half the cases of murder end in conviction, in a
decreasing trend. The overall conviction rate for rape of women
and girls from the scheduled communities is just about 32%
compared to 51% for murder – another reminder of the hurdle to
justice for women, and the deeply embedded systemic patriarchy.
To reiterate, these are cases where a senior police officer of rank
deputy superintendent of police or higher has completed the
investigation and filed a charge–sheet.
Figure 25: Appeals % (2021) Appeals

Overall, just 3% of the acquittals are appealed – 161 of 5,027
0% 52% acquittals in 2020 and 263 of 8,003 acquittals in 2021.
Eight states (Telangana, Tamil Nadu, Punjab, Odisha,
0% Karnataka, Jharkhand, Haryana, and Bihar) filed 0% appeals at
0%
least once in 2020 and 2021. Four states (Rajasthan,
10%
0%
Maharashtra, Kerala, and Andhra Pradesh) appeal less than 1%
52% of the acquittals.
0%
0% The low rate of appeals indicates, at best,
0.9% 0% 0% 0%
0% 0% a low level of confidence of the states in
0% 0%
16% 0%
the capacity and competence of its senior
4% 0% 0% 0%
officials – the deputy superintendent of
14%
4% police in investigation, senior public
0.3% prosecutors in prosecution, and IAS
0%
officials in monitoring the cases. Or it is a
0% vote of no confidence in them. Of course,
0% 0.6%
at a stretch, it could also mean that the
0%
entire state machinery is just going
0% 0.5% through the motions in an elaborately
(Table 31 page 130)
0.9%
Executive Summary
choreographed pantomime of performative justice, since the

caste proclivities of the personnel spills over into their 1
professional life and stains the institutions as well. If so, it is an
indication of subverting the spirit of the law and sabotaging a
system designed to support the most oppressed sections of our
society.
Relief, socioeconomic rehabilitation

Instant monetary relief [Rule 15(1)(a)] is provided by the
Dr Ambedkar Foundation under the Dr Ambedkar National
Relief to the Scheduled Castes and Scheduled Tribes Victims of
Atrocities Scheme to the victims of heinous offences of atrocities
(murder, rape, arson, complete and permanent disability) under
the Scheduled Castes and the Scheduled Tribes (Prevention of
Atrocities) Act, 1989. The relief amount up to C500,000 is paid
to each victim of atrocity or their family members or dependents.
Even a conservative estimate drawn from the Crime In India
2021 report of the National Crime Records Bureau, reveals that
the victims and their families could be losing at the very
minimum about C170 crores (C1.7 billion) in instant monetary
relief in 2021 alone, and about C734 crores (C7.3 billion) from
2017 to 2021 due to the apathy and dereliction of duty by the
district magistrates. This figure is almost certainly an
underestimate, since only the number of victims of murder, rape,
and arson are considered. The Crime In India report does not
have disaggregated data for the number of victims suffering
from complete and permanent disability
leading to loss of earning capacity, and Figure 26: Relief % (2021)
therefore those numbers are omitted.
0%
20% 0.4% 100%
In 2021, only 7.75% of the relief was given 1%
0.4%
within the stipulated time. Though an 0%
increase from 5.56% in 2020, it is a 0% 3%
clear indication that the district 10%
magistrates – all IAS officers – are not 100% 10% 1%

100%
using the money at their disposal to 9%
0%
provide relief on time to over 92% of 5%
the victims. As in all government 0%
guidelines, the ‘minimum’ is often the
maximum. Tamil Nadu is the only 40% 14%
state that has increased the quantum of
relief from the union guidelines in 0%
11%
Rule 12(4) Schedule Annexure I. 2% (Table 35 page 140)
Executive Summary
Figure 27: DANR, Relief, TAME The number of those given travel allowance and
maintenance expenses increased 40% in 2021 over the
DANR Relief given TAME
pandemic year. Some states do not provide for it at all. In
Not given 25 50 25 50 2021, a total of 7,569 persons (4,465 from the scheduled
Not applicable 75 100 75 100
NA
castes and 2,302 from the scheduled tribes) from 12 of the 36
% % states and union territories, are reported to have been given
States J in Lakhs Compliance Compliance travel allowance and maintenance expenses. Surprising
AP J2,667 14% 2 omissions are Goa, Gujarat, Haryana, Himachal Pradesh,
AR NA NA NA Telangana, Tripura, Uttar Pradesh, Uttarakhand, and West
AS J14 NA NA Bengal – all states that have recorded investigations and
BR J4,367 10% 16 trials during 2021. It is unlikely that there was no
CG J3,325 9% 659
investigation or trial or visits to the investigating officer,
GA J4 NA 0
superintendent of police/deputy superintendent of police,
GJ J2,838 100% 0
district magistrate, or any other executive magistrate in the
HR J3,188 0% 0
HP J158 0% 0
rest of the states and union territories.
JH J382 1% 100 The quantum of reimbursement is arbitrary – most have flat
KA J3,308 40% 58
rates which, apart from being unreasonably low, also
KL J2,229 2% 16
defeats the very purpose of the provision. Most of the
MP J12,671 10% 80
victims need to use mixed modes of transport to reach the
MH J6,877 5% 1
MN J6 NA NA
courts and police stations. No state factors mixed modal
ML NA NA NA
transport into their norms. Daily maintenance and dietary
MZ J40 NA 0 expenses are virtually never paid by any state. Going by the
NL NA NA NA number of active investigations and cases in court and the
OD J3,865 0% 175 amounts reported, it is unlikely that any state provides all
PB J466 20% 2,484 those who are eligible the maintenance expenses equivalent
RJ J8,181 0% 2 to one day’s minimum wage of the state norm for rural
SK J20 NA 0 agricultural workers, in addition to mixed modal transport,
TN J2,477 11% 261
dietary expenses, and daily allowance as required.
TS J4,122 0% 0
TR J7 NA NA The victims, dependents, and families of murder, rape,
UP J11,750 3% 0 dacoity, and the permanently incapacitated are eligible for
UK J302 1% 0 socioeconomic rehabilitation. At the very minimum, in the
WB J101 100% 0 last five years alone, the victims, dependents, and family
AN J6 NA 0
should have got a minimum of 27,724 pensions, 27,724
CH J2 NA NA
government jobs, 27,724 houses with homestead land, and a
DD J4 NA NA
minimum of 27,724 children (an undercount at one child per
DL J48 0% 0
JK NA NA NA
family) should be enrolled on their way to graduation,
LA NA NA NA within three months of the heinous atrocities. This is most
LD NA NA NA certainly an undercount since those permanently
PY J16 0% NA incapacitated are not included, as the National Crime
Records Bureau does not provide that data yet.
J73,441 11% 62
The state annual reports do not have data on the number of
(Table 33, 35, 37 page 136, 140, 144) job appointments that have been given, the houses and
Executive Summary
agricultural land allotted, nor the children being supported.

Equally important, even the data presented is not corelated with the 1
crime data to verify how many are eligible.
There is no data on how many children are eligible, how many
are enrolled in school and college, in which course, their
performance, and additional support provided.
Montoring mechanisms
The vigilance and monitoring committee meetings are an
essential part of ensuring compliance. Each has its own role. The
state level high power vigilance and monitoring committee
(SVMC) meetings are in January and July to be conducted
before the assembly sessions. The district (DVMC) and
subdivisional (SdVMC) meetings are to be once in three months
so that the socioeconomic rehabilitation is done on time. The
SVMC demonstrates the personal commitment of the chief
minister and the top administrative and executive echelons of the
state. The DVMC demonstrates the same at the district level with
more attention to execution and performance of officials. The
SdVMCs – with its composition of all the scheduled castes and
the scheduled tribes elected representatives in local self–
government (panchayat raj), MLAs, and MPs in the jurisdiction
– are uniquely positioned to follow up protection and
rehabilitation at the individual and household levels.
The state level high power vigilance and

monitoring committee Figure 28:
SVMC Meetings % (1995–2021)
In the calendar year 2021 India as a whole
has conducted just 9 of 72 mandatory 9% 0% 28%
0%
SVMC meetings – a compliance 0%
23%
rate of 12%. This low rate of 0%
0%
compliance is not an aberration. 8% 2% 2% 0%
19%
The record since 1995 is not 0% 0%
inspiring. Only 37 of 146 chief 19% 15%
0%
28% 0% 0%
ministers (25%) have conducted 12%
even one meeting ever. An 13%
9%
overwhelming majority of chief
ministers and parties are members 7%
of club zero. Even with the most 13%
15% 8%
liberal interpretation of the rules –
meetings conducted by any
minister at any time of the year – 13%
several states (10 of 28, 36%), 15%
(Table 39 page 154)
75
Executive Summary
chief ministers (109 of 146, 75%), and political parties (25 of 35,
71%) are honourable members of club zero.
The first ever meetings of the state level high power vigilance
and monitoring committee were conducted in 1997 – by CM
Digvijaya Singh of Madhya Pradesh (Indian National Congress,
INC) on 23 April 1997, followed by CM Karunanidhi of Tamil
Nadu (Dravida Munnetra Kazhakam, DMK) on 7 November
1997. This was followed by CM Keshubhai Patel of Gujarat
(Bhartiya Janata Party, BJP) on 27 January 1999, incidentally
the first to be conducted on a mandated month.
Only 119 of the statutory 1800 meetings have been conducted
since inception – a compliance rate of just 6.6% (or 8.35% if
the union territories are excluded). Most of these meetings
(60, 50%) were conducted from 2010 to 2015 (8, 10, 12, 13, 9,
8 respectively) – which coincide with the civil society
campaign to amend the Act, Finance Minister Amit Mitra
being the Chair of the SVMC in West Bengal, and CM Nitish
Kumar’s meetings during the Mahadalit initiative – and,
surprisingly, also in the pandemic year 2020 (8). After the
Amendment Act was passed in 2015, there was a sharp drop in
2016 (4), with some recovery (7) in 2017. With nine SVMC
Figure 29: meetings, 2021 is one of the better years, though it is yet to
SVMC Meeting % (2021)
surpass the 13 meetings in 2013 with less number of states,
though that itself is barely 19% compliance.
0% 50%
Of the 28 states, 10 belong to club zero since inception, as also

0% seven of eight union territories (Chandigarh conducted one
0%
SVMC meeting in 2021). The
0%
0%
50% ranking order of compliance
0% among states is West Bengal (15,
50%
0% 0%
0% 28%) followed by Haryana (12,
50% 0% 0%
0% 23%). Bihar and Gujarat (10, 19%)
50%
0% 0% tie for the third place. With the
0% 0% 0% 0% Indian practice of 5% grace marks,
0% 0%
0% West Bengal alone might scrape
0% 0% through with Grade E, else all states
0%
0%
and union territories, without
exception, only qualify for the rock
50% 50% bottom Grade F.
50%
0%
Finance Minister Amit Mitra from
0% West Bengal has chaired the most
0% 50%
50% (Table 40 page47155)
meetings – 15 – with a
75
conscientious 100% record for six
Executive Summary
years from 2011 to 2015, and 2018, and one meeting each in
2016, 2017, and 2019, followed by CM Nitish Kumar (9 of 29, 1
31%, E) and Manohar Lal Khattar (8 of 14, 57%, C). The top
grades, as of 2021 go to M K Stalin (100%, O), Pramod
Sawant (60%, C), Manohar Lal Khattar (57, C), Jitan Ram
Manjhi (50%, C), and Prithviraj Chavan (50%, C).
Only ten (29%) of the 34 parties in government in the period 31
March 1995 to 31 December 2021 have ever conducted an
SVMC meeting. SVMC meetings have never been conducted
during president’s rule. Party–wise, the All India Trinamool
Congress gets a grade B, with Finance Minister Amit Mitra
conducting 67% (14 of 21) of the required SVMC meetings.
With 30.3% (10 of 33 statutory meetings) Janata Dal (United)
just about scrapes through to a grade E. All other parties get an F.
The district vigilance and monitoring committee
In 2021, the all India district vigilance and monitoring
committees meeting compliance rate is just over 50%, though if
normalised (i.e., if states conduct more than the minimum
required number of meetings, then it is only counted as 100%)
then all India compliance rate falls to 43%. Maharashtra tops in
compliance (247%), since it conducts the DVMC meetings
every month (though if the internal standard of monthly
meetings is considered, compliance falls to 60%). This is
followed by Kerala at 123%, since it has
Figure 30:
separate DVMC meetings for cases DVMC Meeting % (2021)
0%
related to the scheduled castes and the 0%
scheduled tribes. Bihar is third with a 0% 247%
60%
compliance rate of 102%. Other notable 36% 0%
15%
states are Rajasthan (93%) and 41%0%
0%
Karnataka (91%). None of the 0%
93% 37%
north–eastern states (but for 1% 0%
102%
Tripura, one meeting, 3.1% 0% 0%
41%
compliance) or union territories 66% 58% 32% 0%
(but for the Andaman and Nicobar 72% 0%
0% 8%
Islands, one meeting, 8.3% 247%
compliance) have conducted a 20%
DVMC meeting in 2021.
25% 91% 31%
The subdivisional vigilance and
8%
monitoring committee
0%
The subdivisional committees are 0% 43%
seldom constituted. Just 5.3% of 123%
(Table 43 page 168)
the meetings were conducted
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nation– wide in 2021. Bihar (56%) tops the list, followed by

Figure 31:
SdVMC Meeting % (2021) Gujarat (42%), Haryana (20%), Karnataka (18%), Tamil Nadu
0% 56%
(7%), and Chhattisgarh (6%). Ten states have below 10%
compliance. All union territories, and 14 states – the
0%
0% north–eastern states (but Tripura), Uttar
0% Pradesh, Rajasthan, Odisha, Madhya Pradesh,
0% 0%
20%
4% Jharkhand, Goa, and Assam – belong to club
0% 0%
0% zero.
0% 0% 0% 0%
56%
0% 0% Other state mechanisms
42% 0% 0% 5%
0% 0% The nodal officer is key to coordinating different
6%
0% 0% departments and different levels of government
3%
1%
that need to work in concert to make this law
work. Nine states (Arunachal Pradesh,
0% 18% 3% Karnataka, Manipur, Meghalaya, Mizoram,
0%
Nagaland, Odisha, Punjab, and Uttarakhand)
0%
0% 7% and five union territories (Dadra and Nagar
5%
(Table 44 page 170) Haveli, Daman and Diu, Jammu and Kashmir,
Ladakh, and Lakshadweep) have not appointed
Figure 32: Nodal Officers (2021) nodal officers. Four states (Uttar Pradesh, Sikkim,
Haryana, and Jharkhand) and the union territory of
Andaman and Nicobar Islands have not appointed
No Yes officers of the required rank.
Most states have at least some semblance of a
protection cell, even if it is some designated officers
or departments. Some (Andhra Pradesh, Karnataka,
Tamil Nadu) have repurposed the existing cells,
while others have housed the cell in existing units
(Odisha, Tripura, the Andaman and Nicobar Islands).
However, some do not have the capacity to fulfil their
(Table 45 page 174) statutory tasks.
Figure 33: Only four states (Tamil Nadu, Karnataka, Haryana,
Protection cell (2021)
and Bihar) report updated contingency plans to bring
them in line with the Amendment Rules 2016.
No Yes
Himachal Pradesh (2012) updated only the travel
allowance and maintenance expense on 12 March
2018. Uttarakhand (2016), Punjab (2010), and Gujarat
(1998) report earlier notifications. Sikkim,
Maharashtra, and Madhya Pradesh report contingency
plans, but without the notification details. Eighteen
states (Andhra Pradesh, Arunachal Pradesh, Assam,
Chhattisgarh, Goa, Jharkhand, Kerala, Maharashtra,
Manipur, Meghalaya, Mizoram, Nagaland, Odisha,
(Table 46 page 176)
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Rajasthan, Telangana, Tripura, Uttar

Pradesh, and West Bengal) do not report Figure 34:
Contingency Plan (2021)
1
having contingency plans in their state
annual reports for the calendar year 2021.
No Yes
The union territories probably follow the
union guidelines, though only Delhi says so
explicitly. The union guidelines are not
enclosed with their state annual reports for
the calendar year 2021.
Uttar Pradesh, which tops the number of
registered cases under this Act does not
have a contingency plan yet. Though they
are among the top 12 in recorded crime (Table 47, 50 page 180, 184)
against the scheduled castes (Uttar
Pradesh), scheduled tribes (Chhattisgarh,
Kerala, and Jharkhand), or both
(Telangana, Rajasthan, Odisha,
Maharashtra, and Andhra Pradesh), nine
critical states do not have contingency plans.
Not one contingency plan has a ‘mandatory compensation’ [Rule
15(1)(f)], probably conflating it with relief and, in a miscarriage of
justice, deeming relief to be sufficient.
Periodic surveys have been conducted by only five states in
2021 (Chhattisgarh, Jharkhand, Kerala, Odisha, and Uttar
Pradesh), with Kerala conducting 239 of the 261 (92%) surveys in
the year. Surveys are prerequisites for identifying atrocity
prone areas and forms of discrimination
that could become friction points. Figure 35:
Periodic Survey (2021)
Identifying and notifying atrocity prone
areas is important since other provisions of No Yes
the Act are dependent on it – including the
appointment of special officers, the location
of special police stations, exclusive special
courts with exclusive special public
prosecutors, special courts with special
public prosecutors, the location of the peace
committee meetings, and regular visits of
the police for protection.
Only 12 states and the union territory of
Andaman and Nicobar Islands have
identified the atrocity prone areas. Uttar
Pradesh with the highest number of (Table 48 page 183)
Executive Summary
Figure 36: Identified recorded cases does not have even one identified area.
(Atrocity prone) areas (2021)
Maharashtra and Kerala are the others in the top 15 states in
terms of the number of recorded atrocities that have not even
identified the atrocity prone areas (though Kerala has
conducted surveys and has three special police stations). The
criteria for determining an identified area
2 are different across the states. Only Tamil
49 Nadu discloses the methodology of
33 classification.
15 18
69 Most states and union territories have
17
83 appointed special officers. However, 10 of
28 states (Arunachal Pradesh, Goa,
106 Himachal Pradesh, Madhya Pradesh,
8 46
Maharashtra, Meghalaya, Mizoram,
Nagaland, Uttar Pradesh, and Uttarakhand)
and three of nine union territories (Jammu
445
3 and Kashmir, Ladakh, and Lakshadweep)
(Table 49 page 184)
have not. Among them, Madhya Pradesh,
Maharashtra, and Uttar Pradesh have a high
incidence of atrocities. Only five states (Bihar 40, Chhattisgarh
27, Jharkhand 24, Kerala 3, Madhya Pradesh 51, and Manipur
10) have special police stations, though there are many more
states and districts with identified (atrocity prone) areas.
Awareness is not the top priority, though it is an essential
component of prevention, relief, rehabilitation, and the
administration of justice. Only 19 of 28 states and four of eight
union territories have conducted awareness programmes.
Figure 37:
Though government reports detail the rationale and need for
Special police station (2021)
NGOs, their role, and the requirement to consciously build
them up and to provide financial support, there is no data about
this in the state annual reports, perhaps because this data is not
requested in the format. No state reports supporting NGOs
financially in running awareness centres or
conducting workshops.
40
Knowledge of the Act and Rules by the officials
51 24
and the community is fundamental to its
27
effective implementation. The authorised
translation of the latest version of the Act (with
amendments up to 2019) is available only in
English. The latest version of the Rules with
amendments is 2016. The full Rules integrating
3 (Table 52 page 190)
the amendments of 2018 are not available in any
language, including English.
Executive Summary
Only Tamil Nadu and Chhattisgarh report having a scheme or

prize for prevention of atrocities. No other state nor any union 1
territory has a scheme to recognise or reward those who prevent
atrocities.
States seldom hold officials responsible, and rarely take punitive
action. But for three in Bihar, no police official has been
punished in 2021. The special public prosecutors were changed
in Bihar (37), Jharkhand (3), Karnataka (7), and Tamil Nadu (1).
No official in any state has been charged u/s 5 as a repeat
offender. Despite Rule 4(3) and specific judgements of the
Supreme Court of India (Arumugam Servai vs State of Tamil
Nadu criminal appeal 958 of 2011 and State of Gujarat vs
Kishanbhai etc. Criminal Appeal 1485 of 2008), officials are not
being held accountable.
Going by the management mantra of ‘measure what you
treasure’ and ‘what is measured gets done’, there are some
management orphans – serious data gaps that impede effective Though government
monitoring resulting in serious gaps in prevention of atrocities. reports detail the
In the state annual reports [Rule 18] there is no data on financial rationale and need for
NGOs, their role, and the
support to NGOs [Rule 3(ix)] though it is a statutory requirement to
requirement. Similarly the state annual reports do not contain consciously build them
data on arms licenses cancelled [Rule 3(iii)], arms confiscated up and to provide
[Rule 3(iv)], arms licenses provided to scheduled communities financial support, no
state reports supporting
[Rule 3(v)], socioeconomic rehabilitation (number of pensions, NGOs financially in
government jobs, houses, and children being educated up to running awareness
graduation) [Rule 12(4) Schedule Annexure 1], instant monetary centres or conducting
workshops.
relief [Rule 15(1)(a), Dr Ambedkar National Relief, forfeiture of
property [Section 7], persons externed [Section 10], or collective
fines [Section 16].
The state annual reports do not contain all information and are
sometimes whimsical in the use of terminology. Some states and
union territories do not file the statutory annual report u/s 21(4).
There is reluctance of the states to share information even with
the union government. The union report for the calendar year
2020 states that ‘(ii) Despite several reminders, no information
has been received from the state of Manipur’. Of the top 15 states
in incidence of atrocities, Uttar Pradesh and Kerala do not get the
district magistrate’s monthly report. Arunachal Pradesh and the
Andaman and Nicobar Islands disclose that they get reports from
the district magistrates but did not review them in 2021. Haryana
and Chhattisgarh don’t report the status in their state annual report.
POA Handbook for Justice - 2024 Citizens’ Audit ReportPOA

2023:Handbook
Executivefor 75
Justice - 2024
Summary
Executive Summary
These management orphans need to be addressed by filling the

data gaps as soon as possible. The format for the state annual
report will need to be updated accordingly.
Action required
Given below are a series of specific suggestions to improve
specific parts of the system. However, as the status detailed
above demonstrates, there is a need for a complete systems
overhaul so that impact is greater than the sum of the parts. It
requires all the constituent parts of the system to work in
harmony so that the evil of atrocities can be prevented and
eradicated. As per the system designed in the Act, each link builds
on, and mutually reinforces, the others. For instance, surveys
[Section 21(2)(vi)] should be conducted so that atrocity prone
areas are identified [Rule 3(i)], following which special officers
[Rule 10] and exclusive special prosecutors [Section 15(2)] are
appointed in the identified areas, special police stations (with
There are fewer special majority officers from the scheduled communities) [Rule 13(2)]
public prosecutors than and exclusive special courts [Section 14(1)] are set up, and
special courts, and fewer administrative officers and other staff members with the right
exclusive special public
prosecutors than exclusive
aptitude and understanding of the problems of the scheduled
special courts, which communities are posted [Rule 13(1)]. There is similar
violates Section 15(1) and interlocking harmony in socioeconomic rehabilitation, reporting
Section 15(2) respectively,
which mandate one special
and reviews, each of which individually and collectively build
prosecutor for one special on the other. No state fulfils these criteria.
court and one exclusive
special prosecutor for one Crime recording
exclusive special court.  Record even the most ‘trivial’ complaints. From these
Eleven states (Chhattisgarh,
Haryana, Jharkhand,
‘trivial’ beginnings grow the non–trivial endings. As we
Karnataka, Madhya Pradesh, show, there is significant under recording of crimes against
Meghalaya, Mizoram, women that result in virtually no records of ‘attempt to commit
Odisha, Punjab, Tamil Nadu,
rape’– let alone crimes such as voyeurism and stalking – that
and Uttarakhand) are
non–compliant. precede rapes and serve as an early warning. It is this
trivialisation that has led to the 1145% rise in rapes over the
past decade. This trivialisation is also why the classification of
‘atrocity prone areas’ is faulty and does not provide sufficient
early warning.
 If any counter–case is registered against the scheduled
communities, it should be brought to the notice of the
superintendent of police immediately, recorded in the DVMC
meeting minutes, and monitored by the district magistrate.
 Offences mentioned under Section 3(1)(r) should be made
cognizable even when they are found on social media, as is
the case in Andhra Pradesh.
Executive Summary
 Community certificates are the leading cause of delay. They

should be issued at birth to those whose parents belong to the 1
scheduled communities. Issue community certificates to those
who do not have them as on date through special drives and
camps within a strict timeframe of not more than six months.
Charge–sheeting
 The state annual reports should have, and MoSJ&E should
track, the data on the Rule 7(2A) reports filed, and the reasons
for the delay in filing the charge–sheet. The top five reasons
could be highlighted in the report to parliament, and the states
should address the specific causes applicable to them.
 Track the location of the ‘mistake of fact’ or ‘false’ cases as
an indicator of potential conflict.
 Track the number of cases charge–sheeted, and the number
pending beyond six months of registering the FIR.
 Add a new classification for identified areas where the
charge–sheeting rate is below the national average.
A complete systems
overhaul is urgently
Administration of justice required to enable all the
Special courts constituent parts work
in harmony, building on
 More judges are urgently required in these courts. Institute
and mutually reinforcing
exclusive special courts, and additional benches, once there each other as per the
are more than 50 pending cases in any special court or system design of the Act.
exclusive special court. Officials cannot
cherrypick which rules
 Exclusive special courts should be established in each district
they will implement.
once there are more than 50 cases registered in a district in a
year, and one more for every 100 registered per annum.
 The judges of the special courts should prioritise these cases,
just as the investigating officers do (or are supposed to do)
under Rule 7(2). An advisory should be issued by the Chief
Justice of India to this effect.
 Institute temporary special courts to clear the backlog, with
special attention to the long pending cases, if there are over
50 pending cases in a state, or if the pendency is over 25%, or
if there is any case pending for over a year with priority to
heinous crimes and long–pending ones.
Support and protection for victims and witnesses
 Police protection should be provided to all the victims,
witnesses, and their families if the case is not completed
within 120 days of the FIR being registered irrespective of
the nature of the case (heinous or not), and irrespective of
whether the victims and witnesses request it or not.
Executive Summary
 Legal aid and advocates services should be provided from

the time of filing the complaint or FIR, whichever is earlier,
to the victim–survivors, witnesses, informants, and their
dependents.
 The victim–survivors, witnesses and their dependents, and
the concerned individuals and organisations should be given
the performance report of the SPP and panel advocates, that
clearly discloses the number of trials appeared for and the
number of convictions. The reports of the DGPs district level
standing committees should also be made available to them
so that they can make an informed choice on who their
advocate should be.
 The advocates of choice should be given secretarial and
research assistance, or an allowance to employ them, as also
reimbursement of travel expenses at a higher scale than the
SPPs and panel advocates, as permitted in Rule 4(5). Closer
coordination with them by the investigating officer and the
More exclusive special DVMC would also help in the joint effort towards the
courts are urgently administration of justice.
needed. Once there are
more than 50 pending Relief
cases in any special court
 Release the entire balance relief amount when the case has
or exclusive special court,
institute additional been delayed for six months after registering the FIR.
special courts.  Clear the backlog by immediately sanctioning the final
tranche of relief for all cases where the charge–sheet has
been sent to court on or before 1 January 2023.
Convictions
 Ensure that the cases are heard on a daily basis and that they are
disposed off within two months of filing the charge–sheet.
 Provide protection to the victims, witnesses, and their
families at least till the judgement is pronounced.
 In all the cases of acquittal, the performance of the SPP and
ESPP should be reviewed by director of prosecution and
district magistrate and appropriate steps taken to remove
those SPPs or ESPPs from the panel of advocates.
 The DGP should send the extract of the reports of the
standing committees (State of Gujarat vs Kishanbhai etc.
Criminal Appeal 1485 of 2008, SCI judgement dated 7
January 2014) reviewing the cases of acquittal to the
director, the scheduled castes and the scheduled tribes
protection cell, and the nodal officer with details of findings
for all cases registered under this Act. The extract must
identify the responsible officials.
Executive Summary
 Take action on the DSP and SPP based on the responsibility

fixed in the above report. If the report notes that the acquittal 1
is due to ‘witness turning hostile’, initiate action against the
concerned DSP for dereliction of duty in not providing
adequate protection to the victims and witnesses as they are
required to do u/s 15A(9) r/w 15A(11)(c).
 Fees and payment schedules for all the offences mentioned
in Section 3 of the Act should be notified subsection–wise, so
that advocates of choice are informed of their remuneration,
and when they can expect to get it. Issue a separate advisory
on additional appearance–based fees which applies over and
above the notified fees when the trials do not get over within
the specified two–month period.
Appeals
 Issue an advisory to automatically appeal in higher
judiciary all cases of acquittal. Empower the director of
prosecutions to do so. Delays in court provides
 The district magistrate’s monthly report [Rule 4(4)] should opportunity for victim
be sent to the director of prosecutions, as legally required, intimidation and
‘witnesses turning hostile’.
with guidance notes on acquittals, appeals, and delays in
Cases must be disposed off
addition to the status of the case. quickly so that timely
 Acquittals and status of appeals should be tracked in the protection and relief
government internal reports [Rule 4(4), Rule 8(1)(xi)] and can be given to the victims.
action taken to ensure that appeals are filed within 90 days.

 The reasons for every case not being appealed should be
reported in the annual reports individually, in an annexure to
be prepared by the director of prosecutions, endorsed by the
director of the scheduled castes and the scheduled tribes
protection cell, and approved by the nodal officer. It should
be discussed in the SVMC meetings. The action taken should
be reported in the state annual report [Rule 18].
 Ensure that all posts of exclusive public prosecutors and
special public prosecutors are filled immediately.
 Notify and disseminate widely the names and contact details
of the empanelled advocates [Rule 4(1)].
 Notify the rates payable and the schedule of payment by the
government to advocates of choice for appeals.
Relief, socioeconomic rehabilitation

Instant monetary relief
 District magistrate: Make it mandatory for the district
magistrate to send the requests for the Dr Ambedkar
National Relief along with the Rule 4(4) monthly report, for
Executive Summary
all cases of heinous offences of atrocities (murder, rape,

arson, complete and permanent disability) under the
Scheduled Castes and the Scheduled Tribes (Prevention of
Atrocities) Act, 1989.
 All district magistrates should immediately apply for the
Dr Ambedkar National Relief instant monetary relief for
all those eligible at least for the past five years (longer if
possible).
 A government order (GO) should be issued to make it
mandatory for the district magistrate to automatically file the
applications for the Dr Ambedkar National Relief immediate
monetary relief for all those eligible every month, since only
he is authorised to do so. Compliance should be reported in
the district magistrate’s monthly report [Rule 4(4)].
 Nodal officer: The state nodal officers should forward
the applications to the Dr Ambedkar National Relief
within a month.
All cases of acquittal should
be automatically appealed.  The Dr Ambedkar National Relief should report state–wise,
The performance of the crime–wise applications received and approved in its annual
investigating officer, SPP,
report. It has the power to take suo moto cognisance of any
and ESPP should be
reviewed and they should be case of atrocity and depute an officer for visiting the place of
held accountable, as per law. atrocity for taking necessary action under the scheme. It
Remove the SPPs or ESPPs should do so, whenever there is a mismatch in applications it
from the panel of advocates
and the investigating officers
receives and the National Crime Records Bureau data.
from the protection cell Bridging the gap should be the action agenda of the
for repeated failure. Dr Ambedkar National Relief for the subsequent year.
 MoSJ&E: The union report u/s 21(4) should report the
Dr Ambedkar National Relief compliance with an
explanation as to the divergence between the National Crime
Records Bureau data and the Dr Ambedkar National Relief
figures. This would require changes to the reporting template
under Rule 18 for the states. The state annual report format
should have (a) number of persons eligible (verified with
the National Crime Records Bureau data for murder, rape,
arson, and medical records for permanent disability)
(b) applications filed, (c) applications sanctioned, and
(d) amount received by all eligible persons.
 NCSC and NCST: The Dr Ambedkar National Relief
compliance on instant monetary relief should be monitored
by the respective national commissions for the scheduled
castes and the scheduled tribes.
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 Judges in the special courts and exclusive special courts

trying these cases should monitor if the Dr Ambedkar 1
National Relief applications have been filed, the progress
of the applications, and the receipt of immediate
monetary relief.
Relief
 The relief sanctioned by the union government, and the state
government’s budgetary provision, should be 120% of the
eligible relief of the previous year.
 There is insufficient accountability. There need to be
standards against which the district magistrates need to be
benchmarked (at least 90% of the money should be paid on
time and 90% of the victims should have benefitted on time).
Those consistently below the state average must be formally
reprimanded.
 Immediate remedial action needs to be taken against district
magistrates who are particularly lax to ensure that the The objective of providing
delayed relief is paid on a priority – including remarks in relief, allowances, and
their annual confidential reports. Their performance should socioeconomic
rehabilitation
be actively monitored. is to ensure that the victims
 Nodal officers of states below the national average in of atrocities and their
disbursal of relief, allowances, and socioeconomic families are provided with
full financial and other
rehabilitation need to give a written explanation for the low
support to become
score, and how they plan to improve performance in an permanently economically
annexure to the state annual report [Rule 18]. Ranking of the self–reliant without their
state, and how to improve its ranking, should be a part of the having to seek wage
employment from their
SVMC agenda. very oppressors and
 Record relief details based on the stage of the case and the classes of oppressors.
compliance. Verify with the National Crime Records Bureau ~ P S Krishnan
data (FIR, chargesheet, court disposal). The state annual
report should be modified to include these data points. The
consolidated data with analysis should be in the report
presented to parliament.
Travel allowance and maintenance expenses

 It is the duty of the special court to ensure that the
allowances are paid, and reimbursements are done, on time
[Section 15A(6)]. The courts should take this more
seriously.
 The victims, witnesses, and their attendants are
overwhelmingly daily wagers, for whom loss of income is
unaffordable. The schedule for travel reimbursement,
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maintenance expenses, and dietary expenses – immediate

reimbursement or within three days maximum – should be
scrupulously followed and ensured.
 The judges should also ensure that the quantum of
reimbursement is as per the law – that the travel allowance
covers the full cost of mixed modal travel, that the
maintenance expense is at least the agricultural minimum
wages, and the dietary expense is as per the norms for
government employees.
 Travel allowance needs to be notified at actuals or as per a
fixed rate, factoring in hybrid means of travel, and the
remoteness/ inaccessibility of the place of stay. Travel
allowance needs to be paid immediately or within three days,
as per statute.
 Dietary expenses need to be notified and paid immediately,
as per statute.
 Maintenance expense is not being paid at all, and needs to
It is the duty of the special be paid immediately, as per statute. This should be tracked
court to ensure that the separately in the state annual report by modifying the
allowances,
reimbursements, and report format.
relief are paid in full on
time, and relocation and
Socioeconomic rehabilitation
socioeconomic  Ensure timebound relief and socioeconomic rehabilitation:
rehabilitation, are done on Relief should be within the shortest period possible.
time during inquiry,
Socioeconomic rehabilitation should be complete within
investigation, and trial.
The courts should take three months of the incident.
this responsibility more  Eligibility: Eligibility for pension should not be dependent
seriously. on widowhood or permanent victimhood, since the relief and
socioeconomic rehabilitation are provided because the
government and the officials failed in their statutory duty to
prevent an atrocity let alone a heinous crime. Collect data on
the number of persons eligible for socioeconomic
rehabilitation and ensure that it is fulfilled proactively. This
could be done by modifying the reporting format, collection
of additional data points, or triangulation of the state crime
records bureau data and the district magistrate’s monthly
report [Rule 4(4)].
 Pensions: Monitor the number and quantum of pensions
annually. For pensions it is a net figure, adding those eligible
every year and weeding out those who have passed.
 Dearness allowance: The pensions need to be enhanced
immediately to meet the statutory requirements, and the
arrears need to be paid to the victims. This should be
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automatic every time the scales and/or the dearness

allowances are revised in the state. 1
 Government jobs: This seems to be one of the least
complied with provisions, along with the travel allowance
and daily maintenance expense. MoSJ&E needs to
proactively track this.
 Education: MoSJ&E needs to proactively track this, and
the children of the victims of these most heinous crimes
are taken care of not as a tokenism, but as valued
members of the community. They should be enabled to
graduate from professional courses. There is a ready
model for this in the way the armed forces take care of the
children of those lost in service.
 For every murder, rape, dacoity, and permanent disability
(for which we have no data) MoSJ&E and the state social
welfare department, by whatever name called, should know
the number of children, their present age and class, number
eligible, and how many of them are in government Delay in socioeconomic
residential schools/colleges. For education, it is a net figure, rehabilitation, relief, and
TAME defeats their very
adding those eligible every year and weeding out those who purpose. Officials tasked
have graduated. Those data points need to be added to the with implementation,
format of the state annual report [Rule 18]. monitoring, and review
should ensure on
Monitoring mechanisms time delivery of these
entitlements so that the
State level high power vigilance and monitoring committee meetings survivors, witnesses, and
 Most states and union territories do not conduct SVMC their dependents are not
meetings at all. This needs to be brought to the notice of forced to turn to the
perpetrator class
parliament and rectified immediately. for their sustenance.
 Even in states where the SVMCs are being conducted, they
have settled into one meeting a year. This needs to be
enhanced at least to two per annum – the legal minimum
requirement.
 Include the state, chief ministers’, and political parties’
performance as a table in the annual report of the union
government [Section 21(4)] to foster healthy competition on
implementation.
 Conduct the SVMC meetings on fixed dates – 15 January and
15 July – so that they benefit from the proceedings and
insights of the DVMC and SdVMC meetings.
District vigilance and monitoring committee meetings
 The DMs that conduct less than three (75%) DVMC
meetings per annum should be put on a watchlist, and it
should be recorded in their annual confidential report.
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 Conduct the DVMC meetings on fixed dates so that they

benefit from the SdVMC meetings and feed in to the SVMC
meetings – for instance 15 March, 15 June, 15 September,
and 15 December to benefit from the SdVMC meetings on 1
March, 1 June, 1 September, and 1 December, and to feed
into the SVMC meetings on 15 January and 15 July.
Subdivisional vigilance and monitoring committee meetings
 There needs to be specific attention to ensure that SdVMC
meetings are constituted and conducted. All elected
representatives in the subdivision from the scheduled
communities need to be a part of these committees (just as
all MPs and MLAs from the scheduled communities are in
the SVMC).
 Notify SdVMCs as standing committees with all the elected
representatives (panchayat presidents, ward members,
MLAs, and MPs) from the scheduled communities as
ex–officio members.
Conduct SdVMC, DVMC,
and SVMC meetings on  Conduct the SdVMC meetings on fixed date – 1 March, 1
fixed dates so that the June, 1 September, and 1 December – so that their insights
the proceedings and and findings feed into the DVMC and SVMC meetings.
insights of the meetings
flow to the higher levels
Other state mechanisms
for review, action, and
accountability. State level
 Ensure that nodal officers of the required seniority are
appointed in all the states and union territories.
 The scheduled castes and the scheduled tribes protection
cells need to be strengthened to fulfil their tasks. That only
five states conducted surveys in 2021, and that most of the
other functions are possibly in the doldrums given the
performance of the officials, is a demonstration of their
capacity, which needs to be bolstered.
Contingency plans
 MoSJ&E should notify a model contingency plan applicable
for all states that do not have their own, with the proviso that
states can better the minimum standards when they notify
their own state specific contingency plan.
 All states (but Tamil Nadu, Karnataka, Haryana, and Bihar)
should update and notify the contingency plans to bring them
in tune with the Amendment Rules 2016. High priority states
are those with the maximum number of atrocities (Uttar
Pradesh, Rajasthan, Odisha, Gujarat, Maharashtra, Andhra
Pradesh, Telangana, Kerala, and Jharkhand).
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Surveys
 Identifying (atrocity prone) areas is essential to prevention. 1
Issue advisories to ensure that a minimum number of areas
are surveyed each year on a minimum number of parameters
so that all areas are covered periodically, with all areas where
complaints are received (whether later found false or not) are
covered at least once a year.
 Design surveys to uncover local practices (often justified
as ‘custom’ and ‘tradition’) that are discriminatory so that
they can be proactively addressed and eradicated. The
surveys should be forward looking to identify potential
atrocity prone areas, especially where the social context is
rapidly changing (such as upwardly mobile scheduled
communities and relatively stagnant others, more areas for
socialisation especially between genders), so that
atrocities can be prevented.
 Conduct surveys where ‘mistake of fact’ or ‘false’ cases are Uttar Pradesh, Rajasthan,
reported to identify prevalence of any form of discrimination Odisha, Gujarat,
(new or traditional). These indicate areas of potential conflict Maharashtra, Andhra
Pradesh, Telangana,
due to changing power relations.
Kerala, and Jharkhand
 Ensure that all local self–governments are covered within a (states with maximum
number of atrocities)
specific timeframe, with a repeating cycle of not more than
should immediately
five years. update and notify
contingency plans in tune
 Areas where atrocities have taken place in the past five years
with the Amendment
must be resurveyed every six months, so that remedial Rules 2016.
measures for a healing justice can be implemented.
Atrocity prone areas

 Uttar Pradesh, Maharashtra, and Kerala – states that figure
among the top in number of cases registered or atrocity rate –
should identify atrocity prone areas immediately, using the
Tamil Nadu criteria as a starting point.
 States that have not yet identified (atrocity prone) areas and
others that do not have such norms should do so
immediately.
 Locations of the ‘mistake of fact’ or ‘false’ cases are
indicators of potential conflict due to changing power
relations and/or assertion. They could be put on a ‘watchlist’
under a new category of identified (atrocity prone) areas,
with increased protection and prevention by using the
infrastructure fund and education efforts.
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Special officers
 Since the special officers are to coordinate the
implementation of this Act in the district, it is better to have a
district magistrate level officer in this position, rather than
the subdivisional magistrate though that is also permitted
under the Act. This is purely for practical reasons. Senior
officials are more likely to follow the orders and respond to
the requests of a district magistrate rather than a junior.
 Ensure special officers of appropriate rank are appointed at
the subdistrict or village level in all identified (atrocity
prone) areas, with priority for those in Madhya Pradesh,
Maharashtra, and Uttar Pradesh which have a high incidence
of atrocities.
 Ensure that all the special officers appointed under Rule 10
are from the scheduled communities.
Special police stations
 Ensure that all identified (atrocity prone) areas have special
States that have not
yet identified atrocity police stations at the district level, and special police
prone areas – outposts at the subdistrict levels.
especially Uttar  Collect data on the personnel in these special police stations
Pradesh, Maharashtra,
and Kerala with most
and outposts (total personnel and number from the scheduled
cases registered or communities) to ensure that personnel from the scheduled
atrocity rate – should communities are a majority in them.
do so immediately.
Awareness programmes
 The government should conduct the statutory workshops,
run awareness centres, and financially support NGOs to do
both as statutorily required.
 Replicate the innovations done by some states (hoardings,
digital screens, and wall paintings) in the other states and
union territories.
 Translations: Make available authorised translations of the
latest version of the Act (up to 2019) and the Rules
(integrating all amendments up to 2018, including
annexure I). The MoSJ&E or the National Commission for
Scheduled Castes could take up this task as was done earlier.
Support to NGOs
 To substantially increase the conviction rate, the rate of relief
d is b u r s al, an d co mp lian ce w ith s o cio eco n o mic
rehabilitation, the state should urgently evolve better – and
different – systems, including supporting NGOs as it is
required to do [Rule 3(ix)].
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 Financially support NGOs [Rule 3(ix)] and concerned

organisations [Section 15A(12)] to run awareness centres 1
and conduct workshops for easy accessibility at least at the
subdivisional level. The allocation is mandatory and
should be executed in letter and spirit. The NHRC
recommendation of one NGO per district and one women
NGO per state (to provide perspective and support to the
constitutional mechanisms, and NGOs, to specifically look
at the gender should be the minimum aspects, in addition
to those of caste).
 Notify a panel of ‘first responders’ in each district who are
trained to accompany and assist the victims through all
stages from prevention, inquiry, investigation, and trial
in all the essential tasks including filing complaints, the
Dr Ambedkar National Relief, relief, socioeconomic
rehabilitation, travel allowance, and maintenance expenses.
They could be a part of the DVMCs with specific
responsibility to report on the fulfilment of Section 15A, Financially support NGOs
especially the adequacy or otherwise of the support and to run awareness centres
and conduct workshops at
protection given to witnesses to prevent them from turning the subdivisional level. The
hostile and potential conflict areas. allocation is mandatory
 Add compliance data on the district–wise NGOs to the state and should be executed in
letter and spirit. The NHRC
annual report [Rule 18] format as a separate annexure. The recommendation of one
data points would be the amount sanctioned in the state NGO per district and one
budget, district–wise names of NGOs selected under Rule women NGO per state
should be the minimum.
3(ix), their activities, and annual grants received from the
state government.
Accountability
 District magistrates who do not conduct at least 75% of the
DVMC meetings, and the subdivisional magistrates who do
not conduct at least 75% of the statutory SdVMC meetings
should have adverse remarks noted in their annual
confidential reports and repeat offenders should be denied
increments and promotions.
 Check the report of the standing committee (State of Gujarat
vs Kishanbhai etc. Criminal Appeal 1485 of 2008, SCI
judgement dated 7 January 2014), and take penal action
based on the findings on the investigating officer or special
public prosecutor.
 If no one is identified, or if the reason given is that the
witnesses turned hostile, then take penal action on the
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investigating officer for dereliction of duty since the

witnesses can turn hostile only if they are left unprotected.
 If the identified officer (investigation or prosecution) does not
have a greater than 75% success rate (or conversely is
identified in over 25% of the cases as the cause for acquittal),
they must be immediately removed from, and barred from any
further involvement in, any case in which this Act is invoked.
Reporting
 All states should file the state annual report as mandated
under Rule 18 with NIL (as Nagaland reported in 2020, and
Arunachal Pradesh in 2019) until an exemption is made.
 All states should ensure that all districts file the monthly
report [Rule 4(4)] which should be reviewed by the
competent authority.
Data and information management

Hold officials accountable  Upload all the state annual reports [Rule 18] received by
for non– or delayed
MoSJ&E from the states onto the ministry website as soon as
compliance. Note adverse
remarks in their annual they are received.
confidential reports.  Upload all the union annual reports u/s 21(4) annually when
Repeat offenders should
ready. At present there are long delays, and the earlier reports
be denied increments and
promotions, and penal are not available online.
action should be taken.  Upload all monthly reports of the districts [Rule 4(4)] and
states [Rule 8(xi)] on the status of implementation of the Act,
including headline numbers of FIRs registered and the
progress of investigations, the instant monetary relief
provided through the Dr Ambedkar National Relief, relief
paid, due, and overdue, and socioeconomic rehabilitation
done, due, and overdue (disaggregated by number of
pensions, houses, jobs, agricultural land, and children
supported for education up to graduation).
 Develop appropriate data collection formats and analytical
tools for the Rule 4(4) report. The lack of data kneecaps even
well–intentioned attempts for prevention of atrocities,
speedy administration of justice, and socioeconomic
rehabilitation. The reporting should contain data for the
decisions and action to be taken.
The reports need to have data:
(a) Disaggregated by officer as mentioned in the Act and
Rules (the investigating officer during the investigating
stage, and the special public prosecutor in the trial stage).
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(b) On the number of days of delay in filing the charge–sheet

(maximum 60 days from registering FIR) and in 1
conclusion of the trial (maximum 60 days from when the
charge–sheet was filed, and maximum 120 days from
which the FIR was registered – whichever is shorter).
(c) On the number of days, quantum, and number of
persons affected by the delay in relief (mentioned in the
contingency plan), travel allowance, maintenance
expense and dietary expenses (immediate or, if not
possible, within three days; track and report from day 4
onwards).
(d) On the number of days by which socioeconomic
rehabilitation is delayed. Socioeconomic rehabilitation
includes (i) Full relief payment and (ii) house, and
(iii) government job, and (iv) education for children up
to graduation, and (v) agricultural land, and
(vi) restoration of defiled or damaged community
goods and the infrastructure (wells etc). Data collection should be
streamlined to include
Then, and only then, will the higher echelons of the state have the data required for
data for informed decision making for timely prevention and decisions, followed by
socioeconomic rehabilitation. action. All district, state,
and union reports should
be uploaded on to the
Additional data needed for the state annual reports respective websites.
 Cases pending in court: Number of cases pending in court
year–wise (Tamil Nadu already has it and the other states
will have it as well).
 Accountability for acquittals: The standing committee
findings (Kishanbhai Judgement, State of Gujarat vs
Kishanbhai etc., Criminal Appeal 1485 of 2008, SCI
judgement dated 7 January 2014) should be annexed to the
state annual report.
 Advocates of choice: Collate data of the number and
performance of the advocates of choice separately.
Prevention
 Include the number of NGOs supported in the state, the
budget allocated to them, and their performance report.
 Rule 3(ix) budget compliance on financial support to NGOs
should be monitored in the state annual report.
Recorded crime
 Include data of cases charge–sheeted beyond six months of
registering the FIR and those pending charge–sheet
year–wise.
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 Include data of cases pending trial beyond six months of

filing the charge–sheet and those pending trial year–wise.
Relief, allowances, socioeconomic rehabilitation

 Include relief details based on the stage of the case and the
compliance in the state annual report format. This is already
available at the state and district levels.
 Include socioeconomic rehabilitation details [house,
agricultural land, government jobs, pensions (new and from
previous years), children’s education (new and from
previous years)] in the state annual report format.
 Include instant monetary relief details in the state annual
report format from (a) number of persons eligible (verified
with the National Crime Records Bureau data for murder,
rape, arson, and medical records for permanent disability)
(b) applications filed, and (c) applications and amount
received by each person eligible.
Active management
 Record relief details based on the stage of the case and the
throughout the system is compliance. Verify with the National Crime Records Bureau
required for the data (FIR, chargesheet, court disposal).
socioeconomic
 Record socioeconomic rehabilitation details for the past
rehabilitation of victims
and to meet the objective 10 years and check for compliance with the National Crime
of this Act, which is to Records Bureau data (murder, rape, dacoity) and medical
prevent atrocities. records (permanent disability).
The lack of these data leads to information blind spots and

monitoring blackholes, creating management orphans. These
management orphans need to be addressed immediately by
adding these data points to the format for the state annual reports
[Rule 18]. Active management throughout the system is required
for the socioeconomic rehabilitation of victims and to meet the
objective of this Act, which is to prevent atrocities.
2 INTRODUCTION TO THE ACT AND RULES
A history of the Act....................................................................................................................93

The Constitutional architecture.................................................................................................................93
From the Constitution to PCRA.................................................................................................................94
The Act, 1989 .........................................................................................................................................97
The Rules, 1995....................................................................................................................................100
The social context .................................................................................................................................102
Official roles and responsibilities ..............................................................................................106
Responsibility for implementation ..........................................................................................................106
State .......................................................................................................................................................................106
Union ......................................................................................................................................................................107
Constitutional bodies to monitor safeguards...........................................................................................107
National Commission for Scheduled Castes .............................................................................................................107
National Commission for Scheduled Tribes...............................................................................................................108
Committee for effective coordination........................................................................................................................108
The Parliamentary Committee on the Welfare of Scheduled Castes and Scheduled Tribes..........................................109
Key features of the Act.............................................................................................................111
When it can be invoked .........................................................................................................................111
Definition of crimes ...............................................................................................................................111
Additional punishment and relief ............................................................................................................112
Who can file a complaint .......................................................................................................................112
Registration of FIR.................................................................................................................................113
No anticipatory bail ...............................................................................................................................113
Time bound investigation.......................................................................................................................113
Time bound trial and appeals .................................................................................................................113
Precise, timely reporting........................................................................................................................114
Precise vigilance and monitoring mechanisms .......................................................................................115
Instant monetary relief...........................................................................................................................116
TAME, relief, and socioeconomic rehabilitation.......................................................................................116
Arming scheduled communities.............................................................................................................117
Externment of offenders.........................................................................................................................117
POA Handbook for Justice – 2024 Introduction to the Act and Rules 91
Duty of the state to protect witnesses ....................................................................................................117
Direct responsibility of highest political, civil, legal, and police officials ...................................................118
Appointment of officials with the right aptitude only................................................................................119
Rights of victims and witnesses.............................................................................................................119
Formal role for civil society organisations ..............................................................................................121
Convergence, anchored by social justice ...............................................................................................122
92 Introduction to the Act and Rules POA Handbook for Justice – 2024
Introduction to the Act and Rules 02
A history of the Act
The Constitutional architecture
The Scheduled Castes and the Scheduled Tribes (Prevention of
Atrocities) Act, 1989 is a comprehensive and precise legislation
with several firsts to its credit – the foremost being Chapter IVA,
Section 15A which, for the first time in India, spells out the rights
of the victims and witnesses, and the duty of the state and specific
officers to protect these rights. It is the first law which makes it a
crime if the designated officer fails to implement the law to
protect the rights of the scheduled communities.
The Act and its predecessors – the Untouchability (Offences)
Act, 1955 and the Protection of Civil Rights Act, 1955 – are
rooted in Articles 15 and 17 of the Constitution of India. The caste system faced a
Article 15 prohibits discrimination based on caste. Article 17 significant de jure attack
states that ‘Untouchability is abolished and its practice in any in independent India
when the Constitution
form is forbidden. The enforcement of any disability arising out
of India explicitly
of “untouchability” shall be an offence punishable in accordance abolished the practice of
with law’. ‘untouchability’ and
declared it an offence
The Constitution of India explicitly abolished the practice of under Article 17, in
‘untouchability’ and declared it an offence under Article 17, in addition to guaranteeing
liberty, equality, and
addition to guaranteeing liberty, equality, and fraternity and fraternity and prescribing
prescribing affirmative action measures to the socially and affirmative action
economically backward classes. However, it did not define the measures to the socially
and economically
term ‘untouchability’. Article 35 authorised the parliament to
backward classes.
enact laws for prescribing punishment for those acts which are
declared to be offences under Part III of the Constitution.
The promise of the Constitution of India towards its citizens is
found in the Directive Principles of State Policy in Part IV.
Articles 38 and 46 require special emphasis. Article 38
envisages a society characterised by social, political, and
economic justice. Article 46 obligates the state to promote with
special care the educational and economic interests of the
scheduled communities, and to protect them from social
injustice and exploitation.
The Untouchability (Offences) Act, 1955 (UOA), amended and
renamed the Protection of Civil Rights Act, 1955 (PCRA) in
1976, and the Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 were enacted to enforce

these provisions of the Constitution.
From the Constitution to PCRA

Even before the Constitution of India was adopted, many states
enacted their own ‘removal of social disabilities’ laws. The
Schedule to Section 17 of the Untouchability (Offences) Act 1955
lists 21 separate legislations in India at the time.1
Post–independence, India witnessed an increase in atrocities
against the scheduled communities. Normally, when a crime is
committed, the Indian Penal Code (IPC) and the Criminal
Procedure Code (CrPC) are invoked. In the case of the scheduled
communities however, many crimes against them were not even
recognised as crimes by the IPC or CrPC, and Article 20(1) of the
Constitution of India is clear that no one can be convicted for an
act which is not defined as an offence at the time.
Special laws became necessary to recognise and define these
If the system does not
work for the victim,
crimes, to give effect to Articles 15, 17, 39A (equal justice and
it works for the free legal aid to the poor), and Article 46 (to promote with special
perpetrator. Oftentimes, care the educational and economic interests of the weaker
the inertia of the state
mechanisms is to ensure
sections of the people, and in particular, of the scheduled castes
precisely this result. and the scheduled tribes, and protect them from social injustice
and all forms of exploitation).
The last is particularly important since it is only now being
understood in legal and administrative circles how the atrocities
are economic crimes with intergenerational consequences. Since
1
The Madras Removal of Civil Disabilities Act, 1938 (Madras Act XXI of 1938).
The Removal of Civil Disabilities Act, 1943 (Mysore Act XLII of 1943).
The Orissa Removal of Civil Disabilities Act, 1946 (Orissa Act XI of 1946).
The Bombay Harijan (Removal of Social Disabilities) Act, 1946 (Bombay Act of 1947).
The Bombay Harijan Temple Entry Act, 1947 (Bombay Act XXXV of 1947).
The Central Provinces and Berar Scheduled Castes (Removal of Civil Disabilities) Act, 1947 (Central Provinces and Berar Act XXIV of 1947).
The Central Provinces and Berar Temple Entry Authorisation Act, 1947 (Central Provinces and Berar Act XLI of 1947).
The United Provinces Removal of Social Disabilities Act, 1947 (U.P. Act XIV of 1947).
The East Punjab (Removal of Religious and Social Disabilities) Act, 1948 (East Punjab Act XVI of 1948).
The Mysore Temple Entry Authorisation Act, 1948 (Mysore Act XIV of 1948).
The Orissa Temple Entry Authorisation Act, 1948 (Orissa Act XI of 1948).
The Saurashtra Harijan (Removal of Social Disabilities) Ordinance (No XL of 1948).
The West Bengal Hindu Social Disabilities Removal Act, 1948 (West Bengal Act XXXVII of 1948).
The Bihar Harijan (Removal of Civil Disabilities) Act, 1949 (Bihar Act XIX of 1949).
The Madhya Bharat Harijan Ayogta Nivaran Vidhan, Samvat 2005 (Madhya Bharat Act No. 15 of 1949).
The Coorg Scheduled Castes (Removal of Civil and Social Disabilities) Act, 1949 (Coorg Act I of 1949).
The Coorg Temple Entry Authorisation Act, 1949 (Coorg Act II of 1949).
The Travancore–Cochin Temple Entry, Removal of Disabilities Act, 1950 (Travancore–Cochin Act XXVII of 1950).
The Hyderabad Harijan Temple Entry Regulations, 1358F (No.LV of 1358 Fasli).
The Hyderabad Harijan (Removal of Social Disabilities) Regulation, 1358F (No. LVI of 1358 Fasli).
The Travancore–Cochin Removal of Social Disabilities Act, 1125 (Travancore–Cochin Act VIII of 1125).
the atrocities cover the entire spectrum of human activity, the

prevention of atrocities encompasses virtually every right – from
work to freedom of movement to voting – mentioned in the
Constitution of India.
Five years after the Constitution of India was adopted, the
necessary legislation – the Untouchability (Offences) Act, 1955
– was enacted. Though the Untouchability (Offences) Act, 1955
2
did not precisely define the offence, it was a major step forward,
and had several enabling provisions. The Untouchability
(Offences) Act, 1955 recognised ‘wilful negligence’ [UOA
Section 10] and was proactive in that it stated clearly that the
presumption of court would be that the crime arose from
‘untouchability’ and it was the defendant who should prove that
it wasn’t [UOA Section 12]. The Act was farsighted in that it
recognised the culpability of companies and those in charge,
including their directors [UOA Section14].
It was soon recognised that the Untouchability (Offences) Act, The Untouchability
1955 was not sufficient to eradicate untouchability and to punish (Offences) Act, 1955 was a
major step forward with
the perpetrators since it suffered from certain inherent several enabling provisions:
limitations. In 1965, a Committee on Untouchability, Economic it recognised ‘wilful
and Educational Development of Scheduled Castes was set up negligence’, stated clearly
that the presumption of
with L. Elayaperumal, an MP from Tamil Nadu, as the
court would be that the
chairperson. The first of three points in its terms of reference was crime arose from
to study the various aspects of untouchability in particular the ‘untouchability’, and was
working of the Untouchability (Offences) Act, 1955, and the farsighted in that it
recognised the culpability
restrictions if any, imposed on the entry of Harijans into public of companies and those in
places of worship and to suggest remedial measures. charge, including their
directors.
The committee examined the functioning of the UOA in depth
and made several recommendations to strengthen it in 1969.
Subsequently, it was comprehensively amended and renamed as
the Protection of Civil Rights Act, 1955 (PCRA) on 19
November 1976 (the then prime minister’s birthday).
In the 1976 amendment, discrimination based on untouchability
was also brought under the Protection of Civil Rights Act, 1955
[PCRA Section 4]. The amendments made it clear that all
offences under PCRA are cognisable [PCRA Section 15(1)]. It
made mandatory the provision of legal aid, appointment of
supervising officers, setting up of special courts and committees,
and periodic survey of the working of the provisions of this Act
to suggest measures for the better implementation [PCRA
Section 15A(2)]. One of the major improvements made was the
provision for state and central government annual

implementation reports to be placed before parliament
[PCRA Section 15A(4)]. Many of these new provisions were
carried forward to the Scheduled Castes and the Scheduled
Tribes (Prevention of Atrocities) Act, 1989 and its amendments.
A major shortcoming of the changes however is the removal of
liability of companies practicing untouchability.
Despite the changes in the law against untouchability, the
Protection of Civil Rights Act, 1955 still suffered from
infirmities, chief among them being that it did not even recognise
many of the caste–based crimes, was too lenient, and did not
have an empowered mechanism to monitor the implementation
of the Act, given that the police and judiciary were drawn from
the same social milieu.
According to law, if an ‘act’ or ‘omission’ is not defined as an
offence [Article 20(1)], then it is not a crime. The Protection of
Discrimination based on Civil Rights Act, 1955 covered disabilities arising out of
untouchability was brought untouchability, but not of atrocities against the scheduled
under the Protection of
Civil Rights Act, 1955,
communities. Omitting this fundamental tenet of law, by not
making legal aid, recognising many forms of caste–based discrimination and
supervising officers, special violence as crimes, was the fatal flaw of the Protection of Civil
courts and committees,
Rights Act, 1955.
periodic survey, and state
and union government
The general criminal law framework (IPC and CrPC) and PCRA
annual implementation
reports to be placed before was found to be inadequate to curb these acts of caste–based
parliament mandatory. violence and discrimination and violence due to the following
Removing the liability of reasons:
companies is a setback.
 Lack of definitions of distinct acts of atrocities committed
against the scheduled communities.
 Prohibited certain social and religious disabilities imposed
on the scheduled communities but had meagre
punishments. Therefore, it was not a deterrent.
 Invoking IPC sections for atrocities against the scheduled
communities failed to recognise the caste and ethnic
dimensions of those crimes.
 The non–victim friendly criminal law procedures affected
the victims – the scheduled communities who were already
disadvantaged – and was a hurdle in their access to justice.
The Anglo–Saxon jurisprudence that presumed that the
accused was ‘innocent till proven guilty’ and based on the
dictum of ‘better a hundred guilty go free rather than one
innocent be convicted’ failed to take into account the acute

asymmetry of power and the total dependence of the
survivors (the plaintiffs) on the perpetrators (ironically the
‘defendants’) for their life and livelihoods.
 Rising indignation among the scheduled communities on
the increasing incidents of atrocities.
Therefore, separate legislation to curb the atrocities against the
2
scheduled communities was favoured, and the Scheduled Castes
and the Scheduled Tribes (Prevention of Atrocities) Act, 1989
was enacted.
Instead of tinkering with the Protection of Civil Rights Act,
1955, the parliament passed this new legislation with the explicit
purpose of preventing atrocities against the scheduled
communities by members of other communities. It would also
set up mechanisms for speedy justice, monitoring,
accountability, relief, and rehabilitation.
In passing the Act, the
The Act, 1989 parliament acknowledged
that existing laws, including
IPC 1860, were inadequate
Atrocities) Act, 1989 was enacted on 11 September 1989 (Act 33 to check the caste–based
of 1989) by the Parliament of India. The Act is popularly known as hate crimes perpetrated on
the SC/ST Act, POA, or the Atrocities Act. The Act was notified in the scheduled communities
by the non–scheduled
the Gazette of India, Extraordinary, Part II, sec. 3(ii), dated communities.
29 January 1990 (notification No. S.O. 106(E)) and came into
force on 30 January 1990. The 1989 Act underwent substantial
amendments in 2013, 2014, 2015, 2018, and 2019. As on
1 October 2023, the Act was last amended on 31 October 2019.
In passing the Act, the parliament acknowledged that existing
laws, including the Indian Penal Code 1860 (IPC), were
inadequate to check the caste–based indignities and hate crimes
(defined as ‘atrocities’ in Section 3 of the Act) perpetrated on the
scheduled communities by the non–scheduled communities.
The statement of objects and reasons appended to the Bill while
moving the same in the Parliament,
‘despite various measures to improve the socioeconomic
conditions of SCs & STs, they remain vulnerable. They are
denied a number of civil rights; they are subjected to various
offences, indignities, humiliations, and harassment. They
have, in several brutal incidents, been deprived of their life and
property. Serious atrocities are committed against them for
various historical, social, and economic reasons’.
The objectives of the Act clearly emphasise that the intention of

the Act is for the government to deliver justice to the scheduled
communities through preventive and proactive efforts. The
preamble of the Act states that the Act is
‘to prevent the commission of offences of atrocities against
the members of the Scheduled Castes and the Scheduled
Tribes, to provide for Special Courts and the Exclusive
Special Courts for the trial of such offences and for the relief
and rehabilitation of the victims of such offences and for
matters connected therewith or incidental thereto’.
The Act brings the crimes against the scheduled communities
directly to the notice of the highest political, civil, executive, and
judicial officers of the state and district. At the state level it
involves the chief minister directly monitoring implementation
of the Act every January and July, together with a state level high
power vigilance and monitoring committee (SVMC),
comprising the ministers and principal secretaries of social
The 2009 civil society
review of the POA found
welfare, home, the director general of police (DGP), head of the
that (a) most of the scheduled castes and the scheduled tribes protection cell
provisions of the Act and (normally the additional director general of police, ADGP),
Rules were not used
director of prosecutions (DOP), with specific roles, and specific
(b) several new crimes
needed to be added and tasks to be executed in specific timeframes.
(c) victims and witnesses
had to be protected. In 2009, on the twentieth anniversary of the Act, knowing the
gaps in implementation, armed with the evidence of multiple
studies and government datasets, several civil society
organisations and human rights defenders mobilised to rectify
the law. There were a series of multi–stakeholder consultations.
Civil society organisations and human rights defenders
undertook a countrywide review of the functioning of the Act
and Rules. The review found that (a) most of the provisions of
the Act and Rules were not used (b) several new crimes needed to
be added and (c) victims and witnesses had to be protected.
Atrocities) Amendment Bill, 2013, which comprehensively
overhauled the parent Act and Rules was introduced in
parliament on 12 December 2013, but could not be taken up for
discussion. Therefore, the Amendment Ordinance 2014 (1 of
2014) was promulgated by the president on 4 March 2014 – the
last day before the model code of conduct for parliamentary
elections came into force in view of the parliamentary elections –
and came into force immediately. Unsurprisingly, dominant
communities campaigned for the total repeal of the Act during

the parliamentary elections.
The virtually unchanged ordinance was reintroduced as an
amendment bill in parliament on 7 July 2014 and referred to the
standing committee on 17 July 2014 by the newly elected
National Democratic Alliance government. Since the ordinance
was not ratified by parliament within six months, it lapsed and
2
was referred back to the cabinet. Subsequently, it was passed by
the Lok Sabha on 4 August 2015 and by the Rajya Sabha in
December 2015. The amendments received presidential assent
on 31 December 2015, was notified as Act 1 of 2016 on 1 January
2016 in the Gazette of India Extraordinary and came into force
on 26 January 2016.
The Amendment Act, 2015 [1 of 2016] added several new
offences in Section 3 and (bizarrely) renumbered the entire
section, probably because the recognised crime almost doubled.
It added a schedule for Section 3(2)(va) clarifying the IPC A historical footnote: The
sections to be invoked under each subsection. Dereliction of parliamentary debate to
pass the bill had to be
duty by officials was more precisely defined in Section 4(2). postponed three times for
Section 14 was tweaked to ensure time bound trials, and want of quorum because
Section 14A was added for time bound appeals. The new non-Dalit MPs went to the
canteen. It forced Dalit MPs
Chapter IVA Section 15A defined the rights of victims and
to go out and persuade
witnesses (trailblazing in India), and the duty of the state and other MPs to attend so
state mechanisms to protect those rights starting with the right to there was quorum!
be treated with respect.
The Amendment Act, 2018 [27 of 2018] was triggered by the
verdict of a two–judge bench of Justices UU Lalit and AK Goel
of the Supreme Court of India in Subhash Kashinath Mahajan vs
State of Maharashtra & Anr. on 20 March 2018. Questioning
Section 18 of the Act, which prohibits grant of anticipatory bail
for offences committed under the Act, the court issued orders
that an investigating officer should conduct a preliminary
inquiry before registering an FIR, and in the case of government
officials, only after permission from the appointing authority.
They wilfully ignored provisions of the Act that an FIR could be
filed only after an inquiry by a subdivisional magistrate or a
deputy superintendent of police [Rule 6)] followed by a spot
inspection by the district magistrate (DM) and the
superintendent of police (SP) in the case of civilians [Rule 12(2)]
and only after an administrative enquiry in the case of public
servants [Section 4(2)].
If the steps for the investigation outlined above are followed,

there is virtually no scope for ‘false’ or ‘mistake of fact’ let alone
‘malicious’ cases being filed, much less being charge–sheeted
and brought before court. Instead of taking the officials to task
for not following the legally mandated procedure, the judges
held that the cases were false and the Act was being misused to
terrorise innocent citizens – in effect blaming the victim.
Unsurprisingly, the judgement was perceived to considerably
dilute the Act, impute scurrilous motives on the victims, and
thereby deny justice. It resulted in a furore which, in turn, led to a
stunned parliament voting to override the judgement.
In August 2018, the parliament passed the Amendment Act,
2018 removing the requirement for preliminary inquiry for
registering an FIR and removing the need for approval before
arrest of officials by inserting section 18A(1)(a) ‘preliminary
enquiry shall not be required for registration of an FIR against
any person’ and section 18A(1)(b), ‘the investigating officer
The 2018 amendments to
the Act, upheld by the shall not require approval for the arrest, if necessary, of any
Supreme Court of India, person against whom an accusation of having committed an
categorically rule out offence under this Act has been made and no procedure, other
anticipatory bail for any
than that provided under this Act or the Code, shall apply’.
person accused of atrocities
The 2018 amendments to the Act categorically rule out
communities,
notwithstanding anticipatory bail for any person accused of atrocities against
any court order. the scheduled communities, notwithstanding any court order.
The Amendment Act, 2018 (No. 27 of 2018), was notified in
the Gazette of India, Extraordinary on 17 August 2018 and
enforced on 20 August 2018. On 10 February 2020 the
Supreme Court of India upheld the constitutional validity of
Atrocities) Amendment Act, 2018.
On 31 October 2019, Section 1(2) was amended to extend the
Act to the whole of India.
The Rules, 1995

The Rules were notified on 31 March 1995 – some five and a half
years after the Act [G.S.R. 316(E), published in the Gazette of
India, Extra, Part II, Section 3(i), dated 31 March 1995]. As on
1 October 2023, the rules were last amended on 27 June 2018.
The rules underwent substantial amendments in 2013, 2014,
2015, and 2018. In addition, there were periodic amendments to
the rules (for instance by G.S.R 896(E) on 23 December 2011
and G.S.R 416(E) on 23 June 2014) to enhance relief and

rehabilitation.
The Amendment Rules, 2013 [G.S.R. 725 (E) dated
8 November 2013] inserted Rule 17A that added vigilance and
monitoring committees at the subdivisional level and provided
for nominees of the union government in the vigilance and
monitoring committees.
2
Atrocities) Amendment Rules 2016 (G.S.R. 424(E) dated 14
April 2016) broadly relate to:
 A comprehensive list of 47 offences.
 Rationalised payment of relief.
 Enhancement of the minimum relief amount to between
C85,000 to C8,25,000 depending upon the nature of the
offence.
 Payment of relief within seven days. Delink relief from the
 Linking pension to the dearness allowance of government stage of investigation or
employees. trial. Socioeconomic
rehabilitation should be
 Completion of investigation and filing of charge–sheet complete within three
within sixty days to enable timely commencement of months of the incident.
prosecution. The present system
further penalises the
 Periodic review of the scheme for the rights and entitlements victims for delays by the
of victims and witnesses in accessing justice, by the state, state mechanisms,
especially in investigation
district, and subdivisional vigilance and monitoring
and trial. Hold the district
committees in their respective meetings. magistrate accountable
for delays and/or
The Rules were further amended by G.S.R. 588(E) dated 27 June noncompliance.
2018 to:
 Clarify through amended Rule 12(5) that the relief provided
in the Rule 15(1) contingency plan and Rule 12(4) Schedule
Annexure I in case of death, injury, rape, gang rape,
unnatural offences, grievous hurt by throwing acid etc.,
damage to property, shall be in addition to any other right to
claim compensation in respect thereof under any other law.
 Remove the restriction of 25 members in the state vigilance
and monitoring committee [Rule 16(1)].
 Tweak the relief provisions in the Rule 12(4) Schedule
Annexure I to provide for relief to victims of unnatural
offences and grievous hurt by throwing acid.
The social context

The protection of the life and liberty of the weakest sections of
society is the prime duty of any government. Successive
governments have acknowledged that the plight of the
Scheduled Castes (SC) and the Scheduled Tribes (ST) is dismal.
Caste–based discrimination and violence is endemic in India.
The atrocities are committed when the scheduled communities
become less dependent on the others and break out of their
ascribed boundaries and start to wear slippers or trousers, get
better marks in schools, or sit in a bus. When discrimination, such
as making only Dalit girls clean school toilets, and atrocities are
committed close to exams, there is multi–generational impact
and opportunity costs being paid by the entire community. They
live about 10 years less, have higher incidence of maternal
mortality, school dropouts, and lower literacy rates.
Caste–based violence is to prevent the economic development of
Attempts by the Scheduled
Dalits and Adivasis, to prevent them from becoming less
Castes and Scheduled dependent on the dominant castes. Preventing atrocities and
Tribes to ... improve their lot ending impunity to the perpetrators thus becomes the first step in
and claim what is rightfully
the advancement of the Dalits and Adivasis. This is admitted
theirs, are often the
principal cause of the even by the government at the highest levels as the following
atrocities that are quotations show:
perpetrated on them. Despite various measures to improve the socioeconomic
The law enforcers themselves,
conditions of the SCs and STs, they remain vulnerable… They
in many cases, fail to act
promptly or collude
have, in several brutal incidents, been deprived of their life and
with the other side. property… Because of the awareness created… through the
~ PM PVN Rao, spread of education, etc., when they assert their rights and resist
4 October 1991 practices of untouchability against them or demand statutory
minimum wages or refuse to do any bonded and forced labour,
the vested interests try to cow them down and terrorise them.
Statement of the basic objective and purpose of the SCs and
STs (Prevention of Atrocities) Act when the Bill was introduced in
the Lok Sabha in 1988; Quoted from National Commission for
SCs, First Report 2004–05, New Delhi, 2006, pp.222–3
Attempts by the Scheduled Castes and Scheduled Tribes to

… improve their lot and claim what is rightfully theirs, are often
the principal cause of the atrocities that are perpetrated on
them. There is a lack of sensitivity on the part of the police and
the district administration. The law enforcers themselves, in
many cases, fail to act promptly or collude with the other side.
Prime Minister P V Narasimha Rao inaugural address,
meeting of chief ministers, 4 October 1991
‘The offences of atrocities are committed to humiliate and

subjugate the SCs and STs with a view to keep them in a state of
servitude. Hence, they constitute a separate class of offences and
cannot be compared with offences under the Indian Penal Code.’
The Supreme Court in State of Madhya Pradesh & Anr vs Ram
Krishna Balothia & Anr (1995 (2) SCC 221)
Untouchability has been abolished by the law but the shades

2
of it remain in the ingrained attitude nurtured by the caste
system. Though the provisions of reservation in educational
institutions and public services flow from our constitution, these
provisions remain unfulfilled through bureaucratic and
administrative deformation or by narrow interpretations of these
special provisions.
President K R Narayanan, 26 January 2000
Even after 60 years of constitutional legal protection and
support ... Dalits have faced a unique discrimination in our
society that is fundamentally different from the problems of
minority groups in general. The only parallel to the practice of The only parallel to the
untouchability was Apartheid. Untouchability is not just social practice of untouchability
discrimination, it is a blot on humanity’. was Apartheid.
Prime Minister Manmohan Singh, Dalit–minority ~ PM Manmohan Singh,
international conference, 27 December 2006 27 December 2006.
In fact, a part of the reason why atrocities are committed is

economic activity. It is because of the economic activity, because
of the enterprise, there are areas where the Scheduled Caste
people have also become prosperous. The Scheduled Caste
people are able to build brick and stone houses. The Scheduled
Caste people are able to acquire vehicles. The Scheduled Caste
people are able to dress better, send their children to better
schools. One of the reasons why atrocities take place in those
places is to cripple them economically. Every riot, every arson
case cripples them economically. Therefore, it is important that
the State must immediately rush in social and economic
measures for the rehabilitation of those who have suffered
through these atrocities.
Home Minister P Chidambaram in the Lok Sabha
on 30 August 2010
The practice has been to articulate lofty ideals but ensure that the
practice of these ideals does not happen. The government
admits its failure in implementing the law and protecting
scheduled communities from horrific atrocities committed
against them but simultaneously refrains from taking steps for
effective implementation of the law of the land. India does have
some of the most progressive legislation possible, but they
remain on paper due to weak political and bureaucratic will and
commitment to implement these protective legislations leading

to the unchecked, rising atrocities being committed on the
scheduled communities.
Wilful and conscious subversion of these laws by government
officials tasked with implementing the Act has more to do with
the caste consciousness and biased attitudes and perspectives of
officials, both police and revenue, than with lack of knowledge
about the laws. The experience of human rights defenders
(HRDs) in their effort to get the government to implement this
Act fairly, firmly, and decisively has been frustrating and a story
of betrayed trust. Implementation remains weak and faulty since
inception. The record of successful use of the Act against caste
Hindu perpetrators remains patchy, uneven, and restricted to
individual cases rather than addressing systemic issues of caste
discrimination.
The flagship annual publication Crime in India of the National
Crime Records Bureau data documents the increase in the
The data reveals not just an
increase in the number of
number and severity of recorded atrocities. Nationally, the
recorded atrocities but also number of recorded atrocities against the scheduled
a worrying increase in the communities has been rising from 29,228 (1992) to 32,588
commission of heinous (1997), 40,281 (2002), 35,563 (2007), 39,577 (2012), 51,712
crimes, increasing brutality
and newer forms of
(2017), to 67,646 (2022). The data reveals not just an increase in
caste–based violence. the number of recorded atrocities but also a worrying increase in
the commission of heinous crimes revealing increasing brutality
and newer forms of caste–based violence.
We cannot be happy about the fact that approximately
33,000 cases are being registered as atrocities against
Scheduled Castes in one year. What makes it doubly painful is
that there is a rise in atrocities, but when you try to prosecute and
convict, the conviction rate is only 30%. Not only are acquittals
very high; pendency is about 80%. Look at the kind of crimes that
are committed against these people! The worst kind of crimes…
murder, rape, kidnapping, abduction and arson. These are not
petty crimes. These are pre–meditated crimes ... among the worst
crimes in the Indian Penal Code. This shows how vulnerable the
Scheduled Castes and the Scheduled Tribes are.
Minister for Home Affairs P Chidambaram,
Lok Sabha, 30 Aug 2010
Since the above statement was made, registered cases have

more than doubled to 67,646, the conviction rate has barely
moved to 36%, pendency has increased to over 96%, and the
number of pending cases has increased by over 300% to
327,816 in 2022.
The SC/ST Act has been specifically enacted to deter acts of

indignity, humiliation and harassment against members of
Scheduled Castes and Scheduled Tribes. The Act is also a
recognition of the depressing reality that despite undertaking
several measures, the Scheduled Castes/Scheduled Tribes
continue to be subjected to various atrocities at the hands of
upper castes. The Courts have to be mindful of the fact that the
Act has been enacted keeping in view the express constitutional
2
safeguards enumerated in Articles 15, 17 and 21 of the
Constitution, with a twin fold objective of protecting the
members of these vulnerable communities as well as to provide
relief and rehabilitation to the victims of caste–based atrocities.
Chief Justice of India N.V. Ramana, Justice J Surya Kant and
Justice Hima Kohli, 25 October 2021, Criminal Appeal 1393 of
2011 Ramawatar vs State of Madhya Pradesh.
Though the scheduled tribes also face untouchability and stigma,

and this Act always mentions the scheduled castes and the
scheduled tribes together, this Act has not been used to record
The dominant castes are
atrocities against the scheduled tribes as much it has been for
emboldened to commit
atrocities against the scheduled castes. The focus of the tribal atrocities since the
communities was more on the forest rights and therefore on the conviction rates are
Indian Forest Act, 1927 and the Wild Life (Protection) Act, 1972, so low as to virtually
assure them impunity.
which denied them their homelands, and the Panchayats
(Extension to Scheduled Areas) Act, 1996 (PESA), and the
Scheduled Tribes and Other Traditional Forest Dwellers
(Recognition of Forest Rights) Act, 2006, (FRA) by which they
hoped to regain basic rights. The officials too make a false
identification of the Act with the scheduled castes and the FRA
with the scheduled tribes. Consequently, the recording and
convictions of atrocities against scheduled tribes under this Act are
relatively less. The amendments of 2015 brought the
much–needed integration of the interests of the scheduled tribes
into this Act – most notably Sections 3(1)(g) land and forest rights,
3(1)(w) sexual offenses against women, and 3(1)(x), 3(1)(y), and
3(1)(z) related to common resources and right of way.
The merging of the identity of the scheduled communities under
the unified ‘SCST’ moniker by the non–scheduled communities
and more social interaction has resulted in untouchability
practices, stigma, and atrocities which were only inflicted on the
scheduled castes earlier, now being extended to the scheduled
tribes. With more atrocities and more awareness, atrocities
against the scheduled tribes are being registered under this Act,
though there is a long way to go and impunity is still the norm per
data from the National Crime Records Bureau.
Official roles and responsibilities
The dominant castes are emboldened to commit atrocities since the

conviction rates are so low as to virtually assure them impunity. The
‘harsh’ and ‘draconian’ Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 and Rules, 1995 has just a single
digit or low double digit conviction rate in all but four states.
This impunity results in more and more gruesome cases of
violence and atrocities, with heinous crimes (murder, attempt to
commit murder, rape, attempt to commit rape, grievous injury)
showing a fast–paced increase, apart from the increase in
instances overall. Preventing atrocities and ensuring swift action
in accordance with the law thus becomes the first step – and a
prerequisite – in enabling the sustained social and economic
development of the scheduled communities. Ending impunity
will prevent, in large measure, repetition of caste–based
discrimination and violence.

A unique feature of the One of the unique features of the Act is the legislative duty cast
Act is the legislative duty on the executive to monitor and supervise the implementation of
of the executive to
the law by the police at every stage and also to ensure that the
monitor and supervise the
implementation of the law interest of the victims of atrocities are safeguarded, right from
by the police at every the stage of registration of the complaint till the end of the
stage and also to ensure prosecution process, viz., trial and eventual appeal stages. To
that the interest of the
ensure this, stage by stage monitoring duties have been assigned
victims of atrocities are
safeguarded at all stages. in the Act to various levels of police and administration, from the
deputy superintendent of police to the superintendent of police to
the director general of police, from the exclusive special public
prosecutor to the in–charge prosecutions to the director of
prosecutions, from the subdivisional magistrate to district
magistrate to the principal secretary and finally right up to the
chief minister and the union minister.
Responsibility for implementation

State
The responsibility for implementation of the Act primarily rests
with the respective state governments and the union territory
administrations and their subordinate authorities (police and
executive magistrates).2
Each state will (should) have a high power vigilance and
monitoring committee at the state level with the chief minister as
the chairperson that reviews implementation every January and
July. Its members are the home minister, finance minister and
2
This section is largely paraphrased from the union annual report for the calendar year 2021.
minister(s) in–charge of welfare and development of the

scheduled castes and the scheduled tribes, all elected members of
parliament and state legislative assembly and legislative council
from the state belonging to the scheduled castes and the
scheduled tribes, the chief secretary, the home secretary, the
director general of police, director/deputy director, the national
commission for the scheduled castes and the national 2
commission for the scheduled tribes.
The convenor is the secretary in–charge of the welfare and
development of the scheduled castes and the scheduled tribes.
There are similar vigilance and monitoring committees at the
district and subdivisional levels reviewing implementation
quarterly by the district magistrate and the subdivisional
magistrate respectively.
They are supported by the scheduled castes and the scheduled
tribes protection cell at the state level, and protection units at the
district level. There are special courts, exclusive special courts, The ‘harsh’ and
special public prosecutors, and exclusive special prosecutors for ‘draconian’ Act and
the timely administration of justice. Rules has just a single
digit or low double digit
In addition, in the identified (atrocity prone) areas, there are conviction rate in all
special police stations and special officers of rank additional but four states.
district magistrates or higher for coordination among the
different arms of the state.
Union
As per the Government of India (Allocation of Business) Rules,
1961, the responsibility to implement the Act at the union level is
split between the Ministry of Home Affairs (administration of
criminal justice), the Ministry of Social Justice and
Empowerment (insofar as it relates to scheduled castes,
excluding the administration of criminal justice) and the
Ministry of Tribal Affairs (insofar as it relates to the scheduled
tribes excluding the administration of criminal justice).
Constitutional bodies to monitor safeguards

The National Commission for Scheduled Castes (NCSC) and the
National Commission for Scheduled Tribes (NCST) are
constitutional bodies to monitor the safeguards provided to the
scheduled castes and the scheduled tribes.
National Commission for Scheduled Castes
The NCSC is established under Article 338 of the Constitution.
Article 338(5) lays down the duties of the commission, which
have a bearing on prevention of atrocities against the

scheduled castes:
(a) To investigate and monitor all matters relating to the
safeguards provided for the scheduled castes under the
Constitution of India or under any other law for the time
being in force or under any order of the government and to
evaluate the working of such safeguards;
(b) To inquire into specific complaints with respect to the
deprivation of rights and safeguards of the scheduled castes;
The NCSC has an Atrocities and Protection of Civil Rights
Wing, which deals with cases relating to Scheduled Castes under
Atrocities) Act, 1989 and the Protection of Civil Rights Act,
1955, either on receipt of complaints from individuals or
information from other sources (including the media).
Evaluation studies/surveys on these subjects are also conducted
by this Wing.
The National Commission
for Scheduled Castes
National Commission for Scheduled Tribes
(NCSC), the National The NCST is established under Article 338–A of the
Commission for Scheduled Constitution of India. Article 338–A(5) lays down certain duties
Tribes (NCST), the inter-
of the commission, which have a bearing on prevention of
ministerial Committee for
Effective Coordination, atrocities against the scheduled tribes:
and the Parliamentary (a) to investigate and monitor all matters relating to the
Committee on the Welfare safeguards provided for the scheduled tribes under the
of Scheduled Castes and
Scheduled Tribes are Constitution of India or under any other law for the time
bodies to monitor the being in force or under any order of the government and to
safeguards provided to the evaluate the working of such safeguards;
scheduled castes and the
scheduled tribes.
(b) to inquire into specific complaints with respect to the
deprivation of rights and safeguards of the scheduled tribes;
On receiving information about an incident of atrocity against a
person belonging to a scheduled tribe, the commission gets in
touch with the law enforcing and administrative machinery of
the concerned state and the district to ascertain the details of
incident and the action taken by the district administration.
The commission has six regional offices at Bhopal,
Bhubaneswar, Jaipur, Raipur, Ranchi, and Shillong with
specified jurisdiction to cover states and union territories.
Committee for effective coordination

The Parliamentary Committee on the Welfare of Scheduled
Castes and Scheduled Tribes in its fourth report recommended
that the Ministry of Social Justice and Empowerment, Ministry
of Home Affairs, National Commission for Scheduled Castes,

and National Commission for Scheduled Tribes should meet
regularly to devise ways and means to curb offences and ensure
effective administration of the Act.
In pursuance of this recommendation, a committee for effective
coordination to devise ways and means to curb offences of
untouchability and atrocities against the scheduled castes and
2
the scheduled tribes and effective implementation of the
Protection of Civil Rights Act, 1955 and the Scheduled Castes
and the Scheduled Tribes (Prevention of Atrocities) Act, 1989
with the union minister for social justice and empowerment as
the chairperson, was set up in March 2006.
The present composition of the committee is Minister for Social
Justice and Empowerment (Chairperson), Minister of Tribal
Affairs (Co–Chairperson), Minister for State for Social Justice and
Empowerment and Minister for State for Tribal affairs (Special
invitees); Secretaries from the Ministry of Social Justice and To ensure the rights of
Empowerment, Ministry of Home Affairs, Department of Justice, victims and witnesses,
stage by stage monitoring
Ministry of Law and Justice, Ministry of Tribal Affairs, National duties have been assigned
Commission for Scheduled Castes, National Commission for in the Act to various levels
Scheduled Tribes, Joint Secretary, Ministry of Home Affairs (In of police, administration,
legal services, judiciary, and
charge of National Crime Records Bureau), two non–official
finally right up to the chief
representatives from amongst the scheduled castes, one minister and the union
non–official representative from amongst the scheduled tribes minister.
(Members), and the Joint Secretary (SCD), Ministry of Social
Justice and Empowerment (Member– Secretary). The committee
has met 25 times from inception till end 2021.
The Parliamentary Committee on the Welfare of Scheduled Castes and
Scheduled Tribes
Castes and Scheduled Tribes consists of 30 members – 20 from
the Lok Sabha and 10 from the Rajya Sabha – elected from
amongst those in the respective houses of parliament. They have
a term of one year. They can consider the reports, report on the
action taken or to be taken, and examine any other matters it may
deem fit or are referred to it by the house or speaker.
Centrally sponsored schemes

The union government provides assistance to the respective state
governments and union territory administrations for effective
implementation of the Protection of Civil Rights Act, 1955 and

Atrocities) Act, 1989 mainly for following purposes:
(a) Functioning and strengthening of the scheduled castes and
the scheduled tribes protection cell and special police
stations.
(b) Setting up and functioning of exclusive special courts.
(c) Relief and rehabilitation of atrocity victims.
(d) Incentive for inter–caste marriages, where one of the
spouses is a member of scheduled caste.
(e) Awareness generation.
The funding pattern of the scheme is such that, over and above
the committed liability of respective state governments, the
expenditure is shared between the union and the states on a 50:50
basis, and the union territory administrations receive 100%
central assistance. Central assistance of C610.11 crores was
granted to 23 states, 5 union territories and the National Helpline
Against Atrocities (NHAA) during 2021–22.
The official report u/s
21(4) falls short due to National helpline against atrocities
several acts of omission
and commission, from
The Department of Social Justice and Empowerment has taken
the incomplete data to an initiative of launching the NHAA to ensure proper
deliberate distortions in implementation of the Scheduled Castes and the Scheduled
the analysis. Tribes (Prevention of Atrocities) Act, 1989. It is a toll–free
number 14566 across the country.
The objective is to build informed awareness about the
provisions of the law that are aimed at ending discrimination and
provide protection. It is an initiative for grievance redressal and
real time monitoring of registered grievances.
At present, nine states and union territories have established call
centres and their integration with the central call centre is in
progress. The department is coordinating with the other states to
set up call centres.
Key features of the Act

POA is a special legislation enacted with the following major
purposes:
 Definition of atrocities.
 Prevention of atrocities against the scheduled communities.


Constitution of special courts for trial of such offences.
Providing relief and rehabilitation of victims of such
2
atrocities.
The presumption of offences and the rights of victims provided
under POA makes it distinct from the general criminal law
framework. This Act has a distinct purpose. Hence, the provisions
of POA should be maximally utilised for progressive achievement
of the purpose. Any attempt to dilute the distinctness of POA must
be prevented. Unfortunately, the non–victim friendly and
caste–ridden Indian criminal justice system functions in such a
way that weakens this distinctness of the Act.
In this guide book you will learn: The provisions of this Act –
punishment, relief, and
 When the Act can be invoked. rehabilitation – are in
 The provisions that make it the Act special. addition to the punishment,
 Why the Act should be invoked for all crimes against the relief, and rehabilitation
under any other legislation
[Rule 12(5)].
When it can be invoked

This Act can be invoked only if three conditions are fulfilled:
(a) The action must be listed as an atrocity in Section 3 of the Act
and,
(b) The perpetrator must be from a non–scheduled community
and,
(c) The victim must be from a scheduled community (scheduled
caste or scheduled tribe).
All three conditions must be fulfilled for a case to be registered
under this Act. Even if the crime is mentioned in section 3 but is
committed by persons from the scheduled castes or tribes on each
other (including crimes by scheduled castes on scheduled tribes
and vice versa), they will only be registered under IPC and not
under this Act.
Definition of crimes
Unless an action (or inaction) is classified as a crime, it is not a
crime. If it is not defined as a crime in Section 3 of this Act, then it is
not an atrocity – though it may still be a crime recognised in other
statutes and can be punished under the Indian Penal Code, IPC.
As the Parliamentary Committee on the Welfare of the

Scheduled Castes and the Scheduled Tribes put it (4th Report
2004–05, para 1.1), in addition to being a ‘crime’ – which is an
act punishable by law by invoking just the IPC – atrocities are
shockingly cruel and inhumane.
This Act, for the first time, defined certain offences committed
against the scheduled communities as caste based hate crimes.
Until 1989, many of the crimes were not punishable because they
were not classified as crimes, and therefore the quantum of
punishment was not linked to it. A new category of offences
were included through the Amendment Act, 2015, after a push
from the civil society groups in the preceding years.
Additional punishment and relief

The provisions of this Act – punishment, relief, and
rehabilitation – are in addition to the punishment, relief, and
rehabilitation under any other legislation [Rule 12(5)]. So a
The Act provides for survivor–family of an atrocity (say death due to manual
mandatory registration of scavenging) can get instant monetary relief from Dr Ambedkar
FIR. There is no
requirement for a
National Relief (C500,000), relief, reimbursements, and
preliminary inquiry before rehabilitation under Rule 12(4) Schedule Annexure I of the Act
registering the FIR (C825,000; monthly pension of C5000+applicable dearness
according to Section 18A.
allowance, a government job, a house, and all–expense paid
It is the responsibility of the
SP to ensure that the FIR is residential education up to graduation for children), and the
registered [Rule 12(2)] Prohibition of Employment as Manual Scavengers and their
after a spot investigation. Rehabilitation Act, 2013 (PEMSRA) (C30 lakhs, $37,500). The
bail conditions and punishment will also be stricter. Similarly for
children under POCSO, where the survivors get the benefit of
trial under POSCO which is more child friendly, the
compensation under POCSO (up to C500,000), and the relief,
reimbursements, and rehabilitation under the Act.
Who can file a complaint

Any ‘informant’ can provide information to any police station
[Rule 5(1)]. It is not necessary that the informant be the victim or
an eyewitness. The victims, informants, or witnesses can also
make a complaint to the investigating officer against any kind of
intimidation, coercion or inducement or violence or threats of
violence. The investigating officer shall register an FIR on the
basis of this information [Section 18A]and take necessary action
[Section 15A(9)]. An application against harassment can also be
made by the victims before the special court which shall take
immediate action and pass appropriate orders.
Registration of FIR
The Act provides for mandatory registration of FIR. There is no
requirement for a preliminary inquiry before registering the FIR
according to Section 18A. It is the responsibility of the SP to
ensure that the FIR is registered [Rule 12(2)] after a spot
investigation.
2
The Act and Rules are very precise about who should do the
investigation, the sequence, and the procedure at every stage. On
receiving information, a (zero) FIR should be registered, the DSP
or SDM should go to the spot for an inquiry to verify whether the
incident comes under this Act [Rule 6(1)], and if so will inform the
SP. On intimation from the DSP or SDM, the SP and the DM will
then visit the spot for an inspection [Rule 12(1)], confirm the
incident and ensure that the FIR is registered [Rule 12(2)].
No anticipatory bail
Section 438 of CrPC which provides for anticipatory bail is noT
applicable to atrocity cases committed under the Act [Section It is the right of the victims,
dependents, informants,
18]. The accused can avail the benefit of section 438 of CrPC and witnesses and the duty
only if a prima facie case is not made out under the Act. of the special court to
provide them protection,
Time bound investigation relief, rehabilitation,
The Act provides for quality and speedy investigation. The and relocation
[Section 15A(6)(d)].
Investigating Officer (IO) must complete the investigation on top
priority and the officer–in–charge of the concerned police station
shall file the charge sheet within 60 days from the date of filing of
FIR [Rule 7(2)]. Any delay in investigation or filing of
charge–sheet must be explained in writing by the IO [Rule 7(2A)].
Since 50% of the relief is dependent on the charge–sheet being
filed, this is an important deadline.
The survivors, their dependents, accompaniers, witnesses, are
entitled to daily travel and maintenance expenses during the
investigation from the place of their residence even if they move
to another place of residence after the atrocity. It is the right of
the victims, dependents, informants, and witnesses and the duty
of the special court to provide them protection, relief,
rehabilitation, and relocation [Section 15A(6)(d)].
Time bound trial and appeals

Once the charge–sheet is filed, the trial should be conducted on a
day–to–day basis and completed within two months
[Section 14(3)]. Appeals must be filed with 90 days (or 180 days
in exceptional circumstances, with the permission of the High

Court), and be disposed off in three months.
So the maximum time for judgement at the High Court would be
nine months. From information to FIR to judgement, all cases
should be completed within 11 months.
This has additional bearing on the payment of relief. Relief is
paid in stages, depending on the progress of the case. For most of
the offences, payment of the final 25% of the relief depends on
the outcome of the judgement.
Precise, timely reporting

The Act does not just say ‘the district collector will send a
monthly report’. It is much more specific: ‘on or before the 20th
of the month…’
Statutory recording and reporting in this Act is of two types. The
first is the immediate horizontal reporting of the status of a case
Investigations should be at every stage from information [Rule 5] to inquiry [Rule 6] to
completed and
inspection [Rule 12(1)], investigation [Rule 7], and trial
charge–sheet filed within
60 days of filing the FIR [Section 14]. These reports are sent by the police to the district
[Rule 7(2)], if not a magistrate [Rule 6(2)], and by the district magistrate to the judge
written explanation should of the special court [Rule 12(7)]. They are done immediately at
be given [Rule 7(2A)].
each stage of compliance or delay in compliance (for instance a
Rule 7(2A) report must be submitted in writing to the
superintendent of police by the investigating officer when an
investigation has not been completed in 60 days).
Investigations should be completed and the charge–sheet filed
within 60 days of filing the FIR [Rule 7(2)], if not a written
explanation should be given [Rule 7(2A)]. The trial should be
conducted on a daily basis. If there is an adjournment beyond the
next day, the reason should be given in writing [Section 14(3)].
The second is periodic vertical reporting. The district magistrate
sends the periodic monthly reports to the scheduled castes and the
scheduled tribes protection cell and the director of prosecutions
on or before the 20th of every month [Rule 4(4)]. These reports
have the status of each case, what has been done, and what will be
done in the next month in each district with respect to immediate
relief, instant monetary relief, relief, socioeconomic rehabilitation,
allowances, investigation, trial, appeal, and parole.
The scheduled castes and the scheduled tribes protection cell
consolidates all the district reports and sends the consolidated
report to the state nodal officer on or before the 20th of every
month [Rule 8(1)(xi)]. The nodal officer, the director of

prosecutions, and the head of the scheduled castes and the
scheduled tribes protection cell review these reports every
quarter. The district and subdivisional vigilance and monitoring
committees also review their respective reports every quarter.
The nodal officer consolidates them for review at the state level
high power vigilance and monitoring committee (SVMC)
2
meeting, chaired by the chief minister every January and July
[Rule 16(2)].
The reports are consolidated into the State Annual Report and
sent to the union Ministry of Social Justice and Empowerment
(MoSJ&E) on or before 31 March every year [Rule 18].
The union Ministry of Social Justice and Empowerment tables a
report on the measures taken by the union government and by the
state governments (by consolidating the annual reports of all the
states) for the effective implementation of this Act in both houses
This provides for several
of parliament every year [Section 21(4)]. monitoring mechanisms at
the state, district, and
Precise vigilance and monitoring mechanisms sub–divisional levels such
This provides for several monitoring mechanisms at the state, as SVMC, DVMC, SdVMC,
district, and subdivisional levels such as SVMC, DVMC, SdVMC, and the Scheduled Castes
and the Scheduled Tribes
and the scheduled castes and the scheduled tribes protection cell. Protection Cell.
There are specific officials such as the state nodal officer, special
officer, exclusive special public prosecutors, with specific duties
and functions assigned to them under the Act.
The vigilance and monitoring committee meetings are an essential
part of ensuring compliance. Each has its own role. The SVMC
meetings are in January and July to be conducted before the
assembly sessions. The SVMC demonstrates the personal
commitment of the chief minister and the top administrative and
executive echelons of the state. The DVMC demonstrates the same
at the district level with more attention to execution and
performance of officials. The DVMC and SdVMC meetings are to
be once in three months, so that the socioeconomic rehabilitation is
done on time. The SdVMCs – with its composition of all the
scheduled castes and the scheduled tribes elected representatives
in local self–government (panchayat raj), MLAs, and MPs in the
jurisdiction – are uniquely positioned to follow up protection and
rehabilitation at the individual and household levels.
The performance review of the special public prosecutors and
the exclusive special public prosecutors are to be conducted by
the district magistrate and director of prosecutions at least twice

a year in January and July [Rule 4(2)].
Instant monetary relief

Instant monetary relief is provided to the victims of heinous
offences of atrocities (murder, rape, arson, complete and
permanent disability) under the Scheduled Castes and the
Scheduled Tribes (Prevention of Atrocities) Act, 1989 by the
‘Dr Ambedkar National Relief to the Scheduled Castes and
Scheduled Tribes Victims of Atrocities Scheme’. This relief
could be up to H5.00 lakhs and is in addition to any other relief or
compensation. This scheme was merged with the centrally
sponsored schemes from 1 April 2023.
TAME, relief, and socioeconomic rehabilitation

The Act provides relief for the victims of atrocities at different
stages in the criminal justice process. It is the responsibility of
the district magistrate / subdivisional magistrate / executive
For certain offences such
magistrate to provide relief in cash or in kind within seven days
as murder, death,
massacre, rape, gang rape, from the date of atrocity.
permanent incapacitation
and dacoity, the victims are For certain offences such as murder, death, massacre, rape, gang
also entitled to pension rape, permanent incapacitation and dacoity, the victims are also
(C5000 + applicable DA), entitled to pension (H5000 + applicable DA), house and
house and agricultural
land, government
agricultural land, government employment (within three
employment (within three months), complete all expenses paid residential educational for
months), complete all children up to graduation, provision of utensils, rice etc. for a
expenses paid residential
period of three months, construction of brick or stone masonry
educational for children up
to graduation, provision of house (within three months).
utensils, rice etc.
In addition to relief, the victims, dependants, and attendants are
entitled to diet expenses, travelling allowances, maintenance
expenses (TAME), during investigation, inquiry, and trial.
Maintenance expense should be at least the daily minimum wage
for rural agricultural workers, and is paid to both victims and
attendants. Every child, women, senior citizen, or person with
disability is entitled to an attender who is also entitled to diet
expenses, travelling allowances, and maintenance expenses.
The relief is given by the government (between the state and
union governments), which may or may not recover it from the
perpetrators. The delinking is to ensure that the survivors are
given relief and socioeconomic rehabilitation immediately, so
that they can rebuild their life without waiting for the amount to
be recovered from the perpetrators, who would litigate it up to
the highest courts, making for decades of delays in addition to

the decades of delays in the lower courts.
Arming scheduled communities

As an unparalleled measure to prevent atrocities against the
scheduled communities, Rule 3(iv) obligates the state
government to ‘seize all illegal firearms and prohibit any illegal 2
manufacture of firearms’. Rule 3(v) goes a step ahead and allows
the state government to ‘provide arms license to the members of
scheduled castes and the scheduled tribes’ to ensure their safety.
Externment of offenders
To prevent atrocities against the scheduled communities, the Act
provides for externment of potential offenders. The special court
may order a person who is likely to commit an atrocity in the
scheduled areas or tribal areas or in atrocity prone areas to
remove himself beyond the limits of such area and not to return
for a certain period not exceeding three years as may be specified
Since it is the duty and
in the order [Sections 10 and 11]. The court passes the order
responsibility of the state
based on a complaint from the aggrieved parties (victims, to make arrangements for
witnesses, or their dependents) or the police (normally the protection, any victim or
deputy superintendent of police, DSP). witness turning hostile
shall immediately result in
a case under Section 4(2)(g)
Duty of the state to protect witnesses
against the investigating
The Act provides for a strong victim and witness protection officer specifically and all
mechanism compared to the general Indian criminal law officers concerned with
framework. Chapter IVA, Section 15A, inserted via the the case for not providing
protection under
Amendment Act 2016, provides for the rights of victims and Section 15A(6)(a).
witnesses. If any of these are not done, then the officials
concerned can be prosecuted for dereliction of duty under
Section 4 [specifically Section 4(2)(g)] of the Act.
It is the duty of the state government to provide protection to the
victims, informants, witnesses, and their dependents, against
any kind of intimidation, coercion, inducement, or violence or
threats of violence [Section 15A(1)]. The state should inform the
concerned special court about the protection so provided, and the
court should periodically review the protection being offered
and pass appropriate orders [Section 15A(7)].
Since it is the duty and responsibility of the state to make
arrangements for protection, any victim or witness turning
hostile shall immediately result in a case under Section 4(2)(g)
against the investigating officer specifically and all officers
concerned with the case for not providing protection under
Section 15A(6)(a). So, it is important that the victims, witnesses,

informants, and their dependents immediately file for protection
under Section 15A(6)(a) along with filing the FIR.
All proceedings relating to offences under this Act shall be video
recorded [Section 15A(10)]. The duties of the state to ensure
implementation of the rights and entitlements of victims and
witnesses in accessing justice [Section 15A(11)] are elaborated
in the contingency plan (CP) drawn up as per the Rule 15(1).
Direct responsibility of highest political, civil, legal, and police

officials
It is the duty of the state government to ensure effective
implementation of POA [Sections 21 and 15A]. This Act makes
it explicit that the well–being of the scheduled communities is
the responsibility of the highest political, civil, legal, and police
officials at all levels.
The district magistrate plays At the state level, it through the SVMC includes the chief
a very important role in minister, ministers of home, finance, social welfare (Adi
preventing atrocities Dravidar and tribal welfare in Tamil Nadu), all elected members
communities, bringing the
of parliament and state legislative assembly/council belonging
perpetrators to justice, to the scheduled communities, chief secretary, home secretary,
providing relief to the principal secretary social welfare, director/deputy director of
victims and supervising the
NCSC / NCST, director of public prosecutions, director general
officials involved in the
implementation of the Act. of police, and the head of the scheduled castes and the scheduled
tribes protection cell.
At the district level, it similarly has the highest district level
officials (district magistrate, superintendent of police, in charge
of prosecutions). The district magistrate plays a very important
role in preventing atrocities against the scheduled communities,
bringing the perpetrators to justice, providing relief to the
victims and supervising the officials involved in the
implementation of the Act.
When an atrocity takes place, both the district magistrate (the
highest civilian authority in the district) and the superintendent
of police (the highest police official in the district) must conduct
a sport inspection [Rule 12(1)] within 24 hours (Tamil Nadu
Model Contingency Plan, TNCP), provide relief and protection,
and the SP must ensure that the FIR is filed [Rule 12(2)]. The
judge of the special court is sent a report of their findings and
actions after their spot inspection [Rule 12(7)].
Appointment of officials with the right aptitude only

Apart from the informant, all the processes in this Act are done
by the state officials. Therefore the officials tasked to implement
this Act are critical to its success. The success of prevention, the
timeliness of response, the convictions, and the accountability
are solely due to senior (sometimes the seniormost) officials in
the police, administration, and judiciary.
2
The state government is obliged to ensure that:
(a) officers having ‘right aptitude and understanding of the
problem of the Scheduled Castes and the Scheduled Tribes’
are appointed in areas prone to atrocity [Rule 13(1)] and
(b) members from SCs and STs are adequately represented in
the administrative and in the police force at all levels,
particularly at the level of police posts and police station
[Rule 13(2)].
The investigating officer should be appointed taking into
account his past experience, sense of ability and justice to Apart from the initial FIR,
complaints of victims,
perceive the implications of the case, and investigate it along
informants, or witnesses
with right lines within the shortest possible time [Rule 7(1)]. against any kind of
intimidation, coercion or
Rights of victims and witnesses inducement or violence or
This is the first Act in India to explicitly spell out the rights threats of violence,
whether given orally or in
of victims, informants, witnesses, and their dependents.
writing, must be recorded
The highlights of rights as enumerated in Chapter IVA, by the investigating officer
Section 15A are: or the station house
officer, and a photocopy
 Dignity: Be treated with fairness, respect, and dignity and
shall be immediately given
with due regard to any special need that arises because of the to them free of cost
victim’s age or gender or educational disadvantage or [Section 15A(9)].
poverty [Section 15A(2)].
 Information: Reasonable, accurate, and timely notice in
advance about the dates and place of investigation and of
any court proceeding including any bail proceeding
[Section 15A(3)], and about their rights, relief, and
rehabilitation schemes.
 Apply to the Special Court to summon parties for
production of any documents or material, witnesses or
examine the persons present [Section 15A(4)].
 Be heard at any proceeding under this Act in respect of bail,
discharge, release, parole, conviction or sentence of an
accused or any connected proceedings or arguments and file
written submission on conviction, acquittal or sentencing
[Section 15A(5)].
 All complaints to be recorded: Apart from the initial FIR,

complaints of victims, informants, or witnesses against any
kind of intimidation, coercion or inducement or violence or
threats of violence, whether given orally or in writing, must
be recorded by the investigating officer or the station house
officer, and a photocopy shall be immediately given to them
free of cost [Section 15A(9)].
 Advocate of choice [Rule 4(5)] who will be paid by the state
at a rate higher than the state panel of special public
prosecutors.
 Right to protection, reimbursement of expenses, relocation,
and rehabilitation [Section 15A(6)]. In addition, they are
entitled to relief and restoration of services [Rule 12(4)
Schedule Annexure I]. Reimbursement of expenses is
detailed in Rule 11 and socioeconomic rehabilitation is
detailed in Rule 12(4) Schedule Annexure I.
Consistent with the right to The special court or the exclusive special court should provide to
privacy, the victim, the victims, dependents, informants, and witnesses the following
dependent, informant, or [Section 15A(6)]:
witness can have their
names and addresses (a) Complete protection to secure the ends of justice;
concealed in orders or (b) Travelling and maintenance expenses during investigation,
judgments or in any records inquiry, and trial;
of the case accessible to the
public [Section 15A(8)(a)]
(c) Socioeconomic rehabilitation during investigation, inquiry,
and [Section 15A(8)(b)]. and trial; and
(d) Relocation.
In practice, it would be the special officer or the investigation
officer, but the special court must still monitor that these rights
are fulfilled since the special court comes into the picture right
from the time the FIR is filed when they get the report of the
district magistrate under Rule 12(7).
Consistent with the right to privacy, the victim, dependent,
informant, or witness can have their names and addresses
concealed in orders or judgments or in any records of the
case accessible to the public [Section 15A(8)(a) and
Section 15A(8)(b)].
In addition to immediate relief, maintenance, and protection, the
state must also provide victims, witnesses, informants, and their
dependants (and in some cases associated organisations or
individuals too):
 Information about their rights at the time of making
complaints and registering the FIR [Section 15A(11)(g)].
 Protection from intimidation and harassment

[Section 15A(11)(h)].
 Information on the status of investigation and charge
sheet and a copy of the charge sheet free of cost
[Section 15A(11)(i)].
 Necessary precautions at the time of medical examination
[Section 15A(11)(j)].
2
 Information regarding the relief amount [Section 15A(11)(k)].
 Information in advance about the dates and place of
investigation and trial [Section 15A(11)(l)].
 Adequate briefing on the case and preparation for trial
and to provide the legal aid for the said purpose
[Section 15A(11)(m)].
 Execute their rights at every stage of the proceedings under
this Act and to provide the necessary assistance for the
execution of the rights [Section 15A(11)(n)].
Victims and their dependents have a right to take assistance from Victims and their
the non government organisations, social workers or advocates dependents have a right
at all stages of the case [Section 15A(12)]. to take assistance from
the non government
If any of these are not done, then the officials concerned can be organisations, social
workers or advocates at
prosecuted for dereliction of duty under Section 4 of the Act all stages of the case
[Specifically under Section 4(2)(g)]. [Section 15A(12)].
Formal role for civil society organisations

The Act had a formal role for civil society organisations right
from the beginning, in spreading awareness about the Act
[Rule 3(ix)] and in monitoring at the district level, by being
mandatory members of the DVMC [Rule 17(2)]. In the
Amendment Act 2015, this was enlarged to include the right of
the survivors to get the assistance of NGOs, social workers, or
advocates [Section 15A (12)].
The expansion of the role of NGOs encompasses all the
stages of the investigation and trial, and the right to be
informed of the progress of the case, and relief provided. The
state must also promote and assist the NGO in executing its
rights [Section 15A(11)(n)].
It is the duty of the state to provide associated organisations
(NGOs) or associated individuals (DAHRDs):
 Status of investigation and charge sheet and to provide a
copy of the charge sheet free of cost [Section 15A(11)(i)].
 Information regarding the relief amount

[Section 15A(11)(k)].
 Information in advance about the dates and place of
investigation and trial [Section 15A(11)(l)].
 Adequate briefing on the case and preparation for
trial and to provide the legal aid for the said purpose
 Execute the rights at every stage of the proceedings under
this Act and to provide the necessary assistance for the
Convergence, anchored by social justice

The Act brings together functionally and administratively all
three branches of the government – the executive, judiciary, and
the civil service. Normally, each is semi–autonomous. Given the
gravity of the atrocities, this Act has a nodal officer of principal
secretary rank from the scheduled communities, to coordinate
Lapses by the senior the implementation. All reports – from the police to the
government officials –
directorate of prosecutions and finance – are to this nodal officer.
many from the IAS and IPS
cadres – have permanent, This is the bureaucratic equivalent to heading an empowered
irrevocable, adverse, group of ministers (EGOM).
multi–generational
consequences for the The Act defines and responds to atrocities (and their prevention)
scheduled communities. through a whole of society approach, much beyond a ‘law and
order’ or even a bureaucratic or whole of government approach.
It is an acknowledgement that atrocities are rooted in the caste
system of society, and that it is from there that its causes must be
rooted out. The Act therefore, is restricted to preventing
atrocities and to institutional response post atrocity.
3 MANDATORY MINIMUM STATE RESPONSE
Relief.......................................................................................................................................125
Socioeconomic rehabilitation ...................................................................................................126
Mandatory restoration of rights and services............................................................................126
Dr Ambedkar National Relief ....................................................................................................129
Annexure 3.1: Dr Ambedkar National Relief ..............................................................................131
Annexure 3.2: Merging DANR into CSS (13 January 2023 Circular)..........................................136
Contingency plan simplified .....................................................................................................138
POA Handbook for Justice – 2024 Mandatory minimum state response 123
Mandatory minimum state response 03
The objective of providing relief, allowances, and
socioeconomic rehabilitation is to ensure that the victims of
atrocities and their families are provided with full financial and
other support to become permanently economically self-reliant
without their having to seek wage employment from their very
oppressors and classes of oppressors.
– P.S. Krishnan
In this guide book you will find:
 The minimum relief amount for each crime.
 The stage of the case in which the minimum relief is released,
and how much.
 Other relief and socioeconomic rehabilitation, and how to
access it.
 Officials responsible to sanction relief and socioeconomic
All relief and
rehabilitation. socioeconomic
rehabilitation
In India, victims are entitled to restitution, reparations, and
provided for in this
compensation for loss or injury suffered by them under Article 21 Act and Rules are the
of the Indian Constitution which guarantees fundamental right to minimum, and in
life and liberty. addition to, relief and
rehabilitation
One of the objectives of the Act is to provide relief and rehabilitation provided under any
other Act or scheme
for victims and survivors from the scheduled communities. [Rule 12(5)].
Accordingly, the Act guarantees relief for the injury suffered and
reimburses the expenses incurred during the investigation, inquiry,
and trial. Victims should ensure that the case is registered under the
Act so that they can avail of these special protections, relief, and
socioeconomic rehabilitation. All relief and socioeconomic
rehabilitation provided for in this Act and Rules are the minimum,
and in addition to, relief and rehabilitation provided under any other
Act or scheme [Rule 12(5)].
Relief
The norms for minimum relief and socioeconomic rehabilitation
is given in Rule 12(4) Schedule, Annexure I read with Annexure II.
It has the total amount, the stages, and how much at each stage.
Relief is given to the survivors and dependents as the case moves
through different stages as detailed in the pullout. This is in
addition to other relief and rehabilitation measures. Not all cases
pass through all the stages (most notably stage 2). Stage 4 and 5
are at the end of the trial, though with different outcomes.
POA Handbook for Justice - 2024 Mandatory minimum state response 125
Mandatory minimum state response
Stage 1 : When the first information report (FIR) is filed.

Stage 2 : After the confirmatory medical report or post mortem
report.
Stage 3 : When the Police Final Report, the ‘charge–sheet’ in
popular parlance, is sent to court.
Stage 4 : On conclusion of trial, whether there is a conviction
or not (mainly for crimes of a sexual nature against
women [Section 3(2)(va)].
Stage 5 : On conviction by the lower court.
The relief amount is shared equally by the union and state
governments. The Government of Tamil Nadu gives an
additional amount as ex–gratia since 24 November 2021.
It is the duty of the state government to always provide
protection to the scheduled community to prevent atrocities, and
to restore the rights and services in case of an atrocity.
The socioeconomic Socioeconomic rehabilitation

rehabilitation in cases of The socioeconomic rehabilitation in cases of murder, rape,
murder, rape, arson, dacoity, arson, dacoity, and permanent incapacitation is in addition to
and permanent
incapacitation is in addition
relief amounts paid and should be arranged within three months
to relief amounts paid, and of date of atrocity. Socioeconomic rehabilitation is independent
should be arranged within of the progress of the case.
three months of date of
atrocity, independent of the It includes all of the following:
progress of the case.
(a) Basic Pension of C5,000 per month with admissible
dearness allowance as applicable to a government servant
of the concerned state government or union territory
administration, to the widow or other dependents of
deceased persons belonging to a scheduled caste or a
scheduled tribe.
(b) Employment to one member of the family of the deceased.
(c) Provision of agricultural land, if necessary by outright
purchase.
(d) Provision of house, if necessary by outright purchase.
(e) Full cost of residential education up to graduation level and
maintenance of the children of the victims, fully funded by
the government.
(f) Provision of utensils, rice, wheat, dals, pulses, etc., for a
period of three months.
Mandatory restoration of rights and services

It is mandatory for the government to restore assets, services,
rights – including rights of passage and access – and the
environment to be habitable so that a life with dignity is possible.
126 Mandatory minimum state response POA Handbook for Justice - 2024

Sections Offence Mandatory actions by the government
3(1)(f) Wrongful occupation or cultivation of land. The land or premises or water supply or irrigation
facility shall be restored where necessary at
3(1)(g) Wrongful dispossession of land or premises or
government cost by the concerned state
interfering with the rights, including forest rights.
government or union territory administration.
3(1)(p) Instituting false, malicious or vexatious legal Either the amount specified here (C85,000) or the
proceedings. actual legal expenses and damages, whichever is
lesser, should be paid/reimbursed.
3(1)(q) Giving false and frivolous information to a public
servant.
The state government or union territor y

3
3(2)(v) Voluntarily causing grievous hur t by use of
acid, etc., [Section 326A of the Indian Penal Code administration shall take full responsibility for the
(45 of 1860)]. treatment of the victim of acid attack.
3(2)(va) Voluntarily throwing or attempting to throw

acid. [Section 326B of the Indian Penal Code
(45 of 1860)].
3(1)(x) Fouling or corrupting of water. Full cost of restoration of normal facility, including
cleaning when the water is fouled, to be borne by
the concerned State government or union territory
administration. In addition, an amount of
H8,25,000 shall be deposited with the District
Magistrate for creating community assets of the
nature to be decided by the district authority in
consultation with the local body.
3(1)(y) Denial of customary right of passage to a place of Cost of restoration of right of passage by the
public resor t or obstruction from using or concerned state government or union territory
accessing public resort. administration.
3(1)(z) Forcing or causing to leave house, village, or place Restoration of the site or right to stay in house,
of residence. village or other place of residence by the
concerned state government or union territory
administration. Reconstruction of the house at
government cost, if destroyed.
3(1) Obstructing or preventing a member of a Restoration of the right by the concerned state
(za)(A) Scheduled Caste or a Scheduled Tribe in any government or union territory administration.
manner with regard to using common property
resources of an area, or burial or cremation
ground equally with others or using any river,
stream, spring, well, tank, cistern, water-tap or
other watering place, or any bathing ghat, any
public conveyance, any road, or passage.

(za)(B) Scheduled Caste or a Scheduled Tribe in any government or union territory administration.
manner with regard to mounting or riding bicycles
or motorcycles or wearing footwear or new
clothes in public places or taking out wedding
procession, or mounting a horse or any other
vehicle during wedding processions.
(za)(C) Scheduled Caste or a Scheduled Tribe in any government or union territory administration.
manner with regard to entering any place of
worship which is open to the public or other
persons professing the same religion or taking
part in, or taking out, any religious, social or
cultural processions including jatras.
(za)(D) Scheduled Caste or a Scheduled Tribe in any government or union territory administration.
manner with regard to entering any educational
institution, hospital, dispensary, primary health
centre, shop or place of public entertainment or any
other public place; or using any utensils or articles
meant for public use in any place open to the public.
(za)(E) Scheduled Caste or a Scheduled Tribe in any government/union territory administration.
manner with regard to practising any profession or
the carrying on of any occupation, trade or
business or employment in any job which other
members of the public, or any section thereof, have
a right to use or have access to.
3(1)(zb) Causing physical harm or mental agony on the Commensurate with the indignity, insult, injury,
allegation of being a witch or practising and defamation suffered by the victim.
witchcraft.
3(1)(zc) Imposing or threatening a social or economic Restoration of provision of all economic and
boycott. social services equally with other persons, by the
concerned state government or union territory
administration.
Additional relief to victims of murder, death, In addition to relief amounts paid under above
massacre, rape, gang rape, per manent items, relief may be arranged within three months
incapacitation, and dacoity. of date of atrocity as follows:
(a) Basic Pension to the widow or other
dependents of deceased persons belonging
to a Scheduled Caste or a Scheduled Tribe
amounting to five thousand rupees per
month, as applicable to a government
servant of the concerned state government

or union territory administration, with

admissible dear ness allowance and
employment to one member of the family of
the deceased, and provision of agricultural
land, and house, if necessary by outright
purchase;
(b) Full cost of the education up to graduation
level and maintenance of the children of the
victims. Children may be admitted to
Ashram schools or residential schools, fully
funded by the government;
3
(c) Provision of utensils, rice, wheat, dals,
pulses, etc., for a period of three months.
Complete destruction or burnt houses. Brick or stone masonry house to be constructed

or provided at government cost where it has been
burnt or destroyed.
Dr Ambedkar National Relief

‘Dr Ambedkar National Relief to The Scheduled Castes and
Scheduled Tribe Victims of Atrocities Scheme’ (revised scheme
February 2020) provides instant monetary relief to the victims of
heinous offences (murder, rape, arson, complete and permanent
disability) under the Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 in addition to the amount
granted by the state government.
The proposal for financial assistance to the victims of atrocities
must be prepared by the state or union territory government or
the district administration for the cases falling under the
categories of atrocities identified under the scheme in the
prescribed format and forward it to the union Ministry of Social
Justice and Empowerment for its consideration under the
sponsored schemes.
The eligibility criteria are the following:
(a) Victim should belong to a scheduled caste or scheduled tribe.
(b) Has suffered atrocities committed by other communities on
the grounds of caste, community or identity in the society.
(c) The atrocity should be murder, rape, arson, or permanent
disability.
(d) Rates of relief will be as indicated in the the Act and Rules as
amended from time to time.
This additional relief could be up to C5.00 lakhs.
Scale of relief amount

1. Murder/ Death
1.1 Earning member of a family – C5.00 lakhs.
1.2 Non-earning member of family – C2.00 lakhs.
2. Rape – C2.00 lakhs.
3. Arson leading to complete homelessness – C3.00 lakhs.
4. Disability (complete and permanent disability leading to
loss of earning capacity).
4.1 Earning member of a family – C3.00 lakhs.
4.2 Non-earning member of a family – C1.50 lakhs.
By notification DAF/1/2023-ADMIN-DAF EO-64933 of
Dr Ambedkar Foundation, Ministry of Social Justice &
Empowerment dated 13 January 2023, the Dr. Ambedkar
Scheme for Social Integration through Inter–Caste Marriages
and the Dr Ambedkar National Relief to the Scheduled Castes
And Scheduled Tribes Victims of Atrocities Schemes were
merged with the Centrally Sponsored Scheme for Implementation
‘Dr Ambedkar National
Relief to The Scheduled of the Protection of Civil Rights Act, 1955 and the Scheduled
Castes and Scheduled Tribe Castes and the Scheduled Tribes (Prevention of Atrocities) Act,
Victims of Atrocities 1989 respectively run by Ministry of Social Justice and
Scheme’ which provides
instant monetary relief to
Empowerment with effect from 01 April 2023.
the victims of heinous
In the ‘merger’ process, DANF has been silently eliminated, as
offences (murder, rape,
arson, complete and can be seen in the attached documents. DAHRDs could hold the
permanent disability) under respective state governments accountable for not applying for
the Act, 1989 in addition to the scheme when it was in force.
the amount granted by the
state government, has been From 01 April 2023 the application would be through the
quietly withdrawn by the
union government by
procedures of the social welfare department of the respective
'merging' it with the state government or union territory administration for the
centrally sponsored Scheduled Castes and the Scheduled Tribes (Prevention of
schemes.
Atrocities) Act, 1989 Scheme being run by the union
government, state government, or union territory administration.
Annexure 3.1: Dr Ambedkar National Relief
Annexure 3.2: Merging DANR into CSS (13 January 2023 Circular)
Annexure 3.2: Merging DANR into CSS (13 January 2023 Circular)
Contingency plan simplified

Timeline Officers Responsible Relief and Rehabilitation Facilities Departments Concerned Reference
(a) Inspector (a) Read out the contents of the FIR Home Prohibition and Section
(b) Sub-Inspector in to the complainant. Excise Department 15A
charge of the (b) Provide a copy of the recorded (11)(a)
Police Station First Information Report (FIR)
Immediately on registering
free of cost.
the FIR
Provide the victim, witness, Home Prohibition and Section

informant, or their dependents, or Excise Department 15A
associated organisation (NGO) or (11)(g)
individual (DAHRD):
(a) Information about their rights.
(b) Any additional information related
to the atrocity.
(c) Any assistance required.
Charge–Sheeting Provide information to atrocity victims Home Prohibition and Section

Authority (Inspector or or their dependents or associated Excise Department 15A
charge–sheet
Immediately
on filing of
Sub-Inspector of organisations or individuals: (11)(i)

Police) (a) Status of investigation.
(b) Status of charge–sheet.
(c) Copy of the charge–sheet free of cost.
Within (a) District Collectors The officers concerned shall visit the (a) Revenue Section
24 Hours (b) SP of District place of incident and make Department 15A
(c) Commissioners of arrangements of the safety and (b) Adi Dravidar and (11)(c)
Police in cities protection of the affected persons. Tribal Welfare Rule12(1)
Department
(c) Home Prohibition
and Excise
Department
Within (a) District Collectors In cases of death, injury to victims/ (a) Revenue Section
24 Hours (b) SP of District affected families and damage to their Department 15A
(c) Commissioners of property, necessary proposals for (b) Adi Dravidar and (11)(d)
Police in cities relief should be sent to the District Tribal Welfare
administration by the officers Department
responsible. (c) Home Prohibition
and Excise
Department
Within (a) District Collectors Food, clothing etc. Officers (a) Revenue Section
24 Hours (b) SP of District responsible should visit the place of Department 15A
(c) Commissioners of atrocity to assess the damages. Then, (b) Adi Dravidar and (11)(e)
Police in cities they should arrange for food, clothing, Tribal Welfare
and other facilities. Department
and Excise
Department

Within (a) District Collectors Maintenance expenses should be (a) Revenue Section
24 Hours (b) District Adi given to the victims and their Department 15A
Dravidar and Tribal dependents until they return to (b) Adi Dravidar and (11)(f)
Welfare Officers normal life. Tribal Welfare
Department
and Excise
Department
Within (a) District Collectors

24 Hours (b) SP of District
Victims, dependents, and witnesses
must be protected from intimidation
(a) Revenue
Department
Section
15A 3
(c) Commissioners of and harassment. Steps should be (b) Home Prohibition (11)(h)
Police in cities taken to provide protection to them and Excise
and also prevent any further Department
atrocities.
Within (a) District All the government hospitals in the (a) Health and Family Rule
24 Hours Collector/Joint state should provide medical relief/ Welfare 15(1)(i)
Director (Health) health care services including (b) Revenue and CP
(b) Deputy Director transport, medical treatment, Department
(Public Health) medicines etc. at free of cost to the
victims. A team of district surgeons
and a doctor (nominated by JDHS)
should coordinate with the District
authority in medical relief operations.
District surgeons should be instructed
to constitute comprehensive mobile
health care teams for providing
medical treatment.
Within (a) SP of District Necessary precautions should be Home Prohibition and Section
24 Hours (b) Commissioners of taken at the time of medical Excise Department 15A
Police in cities examination. Effective steps should (11)(j)
also be taken to provide assistance
and other required information to the
complainants.
Within (a) Inspector of Police To provide information to atrocity Home Prohibition and Section
24 Hours (b) Sub-Inspector of victims or their dependents or Excise Department 15A
Police associated organisations or (11)(k)
individuals, regarding the relief
amount. After registering the FIR, the
complainants shall be informed about
the amount of relief eligible to them.

Within (a) Assistant To provide information to atrocity Home Prohibition and Section
24 Hours Commissioner of victims or their dependents or Excise Department 15A
Police in cities associated organisations or (11)(l)
(b) DSP in Districts individuals, in advance about the
dates and place of investigation and
trial so as to ensure fair and proper
investigation.
Within 24 (a) District Collector To atrocity victims or their (a) Revenue Section
Hours (b) Charge Sheeting dependents or associated Department 15A
(periodic) Authority organisations or individuals give (b) Home Prohibition (11)(m)
(Inspector/Sub- adequate: and Excise
Inspector) (a) Briefing on the case and Department
(c) Investigating preparation for trial and to
Officer provide legal aid.
(d) Inspector of Police (b) Information about the case and
relevant materials for the
preparation of trial and also
required legal assistance in
support of the trial.
Within (a) Commissioner of (a) Execute the rights of atrocity (a) Revenue Section
24 Hours Police victims or their dependents or Department 15A
(b) SP associated organisations or (b) Adi Dravidar and (11)(n)
(c) Charge Sheeting individuals at every stage of the Tribal Welfare
Officer proceedings under this Act. Department
(d) Revenue Divisional (b) Provide the necessary (c) Home Prohibition
Officers assistance for the execution of and Excise
(e) District Adi the rights to atrocity victims or Department
Dravidar and Tribal their dependents or associated
Welfare Officers organisations or individuals.
Within (a) District Collectors The victims of atrocities shall be (a) Revenue CP
24 Hours (b) District Adi given essential commodities such as Department
Dravidar and Tribal Rice, Wheat, Sugar, Kerosene, (b) Cooperation, Food
Welfare Officers Pulses etc., for a period of 3 and Consumer
(c) District Supply months. Ration commodities should Protection
Officer be released from the Public Department
(d) Senior Regional Distribution System on Priority at
Manager of the BPL prices. The quantum of articles
Civil Supplies to be released shall depend on the
Corporation period for which atrocity victims /
(e) Taluk Supply dependents are to be taken care of.
officer The total quantity may be decided by
the District Collector.

Within 5 (a) District Collector To arrange the release of these (a) Co-operation, Food CP
days (b) District Supply Officer commodities from the nearest civil and Consumer
(c) Taluk Supply Officer supplies godown on credit basis and Protection
(d) District Adi Dravidar shall recoup the most of these items Department
and Tribal Welfare from the funds available under the Act. (b) Revenue
Officers Department
Within 7 (a) District Collectors In order to provide immediate relief (a) Revenue Rule
Days (b) Revenue Divisional in cash or in kind or both, the Department 15(1)(a)
Officers officers concerned shall visit the (b) Adi Dravidar and
(c) District Adi Dravidar
and Tribal Welfare
place or area of atrocity to assess
the damage to life and the property
Tribal Welfare
Department
3
Officers immediately and draw a list of (c) Home Prohibition
(d) Superintendents of victims, family members and and Excise
Police in the dependants entitled to relief Department
Districts [Rule 12(1)]. After assessing the
(e) Commissioners of damages, the relief measures have
Police in cities to be provided within seven days.
Such relief shall also include food,
water, clothing, shelter, medical aid,
transport facilities and other essential
items necessary for human beings
as stipulated in Rule 12(5) and
Rule 12(7).
Within 7 (a) District Collectors The victims of atrocities have to be (a) Revenue Section
Days (b) Revenue Divisional provided with immediate relief in cash Department 15A
Officers or in kind. Such relief shall also include (b) Adi Dravidar and (11)(b)
(c) District Adi Dravidar food, water, clothing, shelter, medical Tribal Welfare and CP
and Tribal Welfare aid, transport facilities, and other Department
Officers essential items necessary for human (c) Home Prohibition
(d) SP in the Districts beings as stipulated in Rules 12(5) and Excise
(e) Commissioners of and Rule 12(7). Department
Police in cities
Within 7 (a) District Collectors The immediate need of the victims of (a) Revenue Rule
Days (b) District Adi Dravidar atrocity / dependents are food, Department 15(1)(c)
and Tribal Welfare clothing, shelter etc., Shelters to be (b) Municipal and CP
Officers provided in schools, community halls Administration
(c) Tehsildars and any public buildings and and Water Supply
(d) Municipal Corporation immediate arrangement should be Department
Commissioners made to supply minimum cooking (c) Rural
(e) Municipal vessels, clothes required by the Development and
Commissioners/ victims of atrocities / dependents. If Panchayat Raj
Executive Officer of
adequate funds are not available with Department
Town Panchayat
the local bodies, the government (d) Co-operation Food
(f) Presidents of Village
shall provide funds. and Consumer
Panchayat
Protection Dept.
(g) Taluk Supply Officers

Within (a) District Collector To report the quantum of ration (a) Co-operation, CP
10 days (b) District Supply articles issued in all such cases Food and
Officer immediately to the Commissioner of Consumer
(c) Taluk Supply Officer Civil Supplies/ Managing Director, Protection
(d) District Adi Dravidar Civil Supplies Corporation who will Department
and Tribal Welfare replenish such stocks in the coming (b) Revenue
Officers months if need be. Department
Within (a) District Collectors Pension scheme for widows, Adi Dravidar and Rule
15 Days (b) District Adi handicapped or old age victims of Tribal Welfare 15(1)(e)
Dravidar and Tribal atrocity. Department and CP
Welfare Officers Sanction of eligible pension to the
(Relief Sanctioning victim as per Rule 12(4) of the
Authority) Amended Rules 2016, basic pension
amounting to C5000/- per month with
admissible Dearness Allowance as
applicable to a government Servant
Within (a) District Collectors Mandatory compensation for the (a) Revenue Rule
15 Days (b) District Adi victims. (Spot should be visited Department 15(1)(f)
Dravidar and Tribal immediately). (b) Home Prohibition and CP
Welfare Officers After assessing the damages, and Excise
(c) Inspector of Police compensation / relief measures shall Department
(d) Sub-Inspector of be given.
Police
Within (a) Project Directors Scheme for strengthening the (a) Adi Dravidar and Rule
15 days of District Rural socioeconomic conditions of the Tribal Welfare 15(1)(g)
Development victims. Department and CP
Agencies (a) The victims of atrocity may be (b) Labour and
(b) Managing Director, organised into self help groups Employment
TAHDCO, (SHGs), skill development training Department
TABCEDCO/ and assisted for viable activity for (c) Rural
TAMCO deriving sustainable income under Development and
(c) The District any of the schemes implemented Panchayat Raj
through TAHDCO.
Manager, TAHDCO/ Department
(b) They shall be provided with
District (d) Backward
necessary assistance/ guidance to
Employment Classes & Most
avail the benefits of economic
Officer/ Labour Backward
development schemes of
Officer/ Project Classes,
TAHDCO.
Officer (Magalir (c) They may be provided wage Minorities
Thittam) Rural employment scheme work for Welfare
Development immediate relief. Department
Department (d) For other caste affected persons due
to intercaste marriage, loans shall
be arranged through TABCEDCO
and TAMCO.
(e) Training (course duration of at least
six months).

Within (a) District Collector Allotment of Agricultural land and Revenue Department Rule
one (b) District Revenue House sites. 15(1)(b)
month Officer (a) Steps should be taken to allot and CP
(c) Revenue Divisional land subject to the guidelines to
Officer be issued from time to time and
(d) Tehsildar sites where necessary for the
purpose of rehabilitation.
(b) Pattas shall be distributed to the
victims’ families.
Within
one
(a) District Collectors
(b) Joint Director of
If the victims or dependents own
agricultural land they should be
Agriculture Department CP 3
month Agriculture supplied with seeds, fertilisers, etc.,
(c) Assistant Director under the existing schemes.
of Agriculture
(d) Agricultural Officer
(e) Horticulture Officer
Within (a) Respective local Electrification of the rehabilitated (a) Energy CP

one bodies colonies of victims of atrocities with Department
month (b) Corporations, local body funds. Even in cases where (b) Rural.
Municipalities, an individual becomes a victim of Development and
Town Panchayats, atrocities and if the government builds Panchayat Raj
Village and allots a house, such house shall Department
Panchayats and be given electrical connection if
their Offices necessary by extending the LT (Low
(c) TNEB Engineers Tension) line.
In case of total damage of electric lines
in the habitations due to community
clash, immediate restoration of
electricity is necessary. If temporary
shelters are provided to the victims of
atrocities, such shelters should be
provided with immediate electrical
connection.
Within (a) District Collectors Adequate drinking water facility shall be (a) Municipal CP
one (b) District Adi Dravidar provided on priority basis. Administration
month and Tribal Welfare and Water Supply
Officers Department
(c) Respective Local (b) Rural
bodies-Urban local Development and
body Panchayat Raj
(d) Commissioners and Department
Executive Officers of
Town Panchayat
(e) Block Development
Officers
(Panchayats)

Within 3 District Collectors and Schemes for employment in Any department where Rule
months all Department District government / government undertaking vacancy exists 15(1)(d)
level officers to the dependent or any of the family
members of the victim be considered
as per Rule 2(b) of Amended Rule 2016.
Within 3 (a) District Collectors Allot land for Burial/Cremation ground (a) Revenue CP
months (b) District Adi Dravidar for SCs/STs in the area and utilise the Department
and Tribal Welfare funds available under the scheme for (b) Adi Dravidar and
Officers provision of pathways and burial Tribal Welfare
grounds. Department
Within 3 (a) District Collectors Link Roads to be provided to the (a) Rural Development CP
months (b) Respective Local habitations affected by the community and Panchayat Raj
bodies and clashes/ atrocities. Department
Highways Engineer (b) Highways
(c) District Adi Department
Dravidar and Tribal (c) Municipal
Welfare Officers Administration and
Water Supply
Department
(d) AD&TWD
Within 6 Project Directors of Provision of brick / stone masonry (a) Rural Rule
months District Rural house to the victims. Development and 15(1)(h)
Development If the houses of the victims of atrocity Panchayat Raj and CP
Agency/District are damaged fully, they may be Department
Collector/ District provided funds under a housing (b) Revenue
Revenue Officer/ scheme for constructing new houses, Department
Revenue Divisional after giving pattas under PMAY. Green (c) Housing and
Officer/ Sub- Collector/ houses shall also be constructed. Urban
Tehsildars / District Development
For this purpose, the target for that
AD&TWD / Managing
particular area shall stand enhanced
Director of Tamil Nadu
automatically and funds shall be
Slum Clearance Board
provided separately.
Within 6 District Collectors/Project Where resettlement of victims of Any department where CP

months Director, District Rural atrocity becomes necessary, the sites vacancy exists
Development Agency/ for housing on the land allotted by the
District AD&TWD / District Collector shall be identified for
Managing Director, Tamil the construction of houses.
Nadu Slum Clearance
Board in urban areas
Legend: S: Section; R: Rule; CP: Contingency Plan; AD&TWD: Adi Dravidar and Tribal Welfare Department
Note: Since Tamil Nadu has the most detailed contingency plan, this table is based on that. The terminology would differ based on the
state. The Adi Dravidar and Tribal Welfare Department would be the Social Welfare Department or its equivalent in other states. Similarly,
the Adi Dravidar and Tribal Welfare Officer would be the District Welfare Officer or something similar. Readers are requested to ascertain
the usage in the respective states.
Mandatory minimum state response POA Handbook for Justice - 2024

4 MONITORING A CASE
Introduction .............................................................................................................................147
Before you start.......................................................................................................................147
Using RTI to monitor implementation .....................................................................................................147
Know the Acts and Rules.......................................................................................................................149
Get the latest notifications......................................................................................................................150
Know the duties of the state...................................................................................................................152
Know the state mechanisms..................................................................................................................153
Know the rights of the victims, witnesses, and their dependents.............................................................154
Know the rights of human rights organisations and defenders ................................................................154
Know the allowances.............................................................................................................................154
Know the relief and socioeconomic rehabilitation ...................................................................................155
Online resource .......................................................................................................................156
Choose a case to monitor ........................................................................................................157
Information: Filing a complaint .................................................................................................158
Procedure .............................................................................................................................................158
Inquiry: Spot assessment ........................................................................................................161
Procedure .............................................................................................................................................161
Inspection ...............................................................................................................................163
Procedure .............................................................................................................................................163
POA Handbook for Justice – 2024 Monitoring a case 145

Investigation ............................................................................................................................166
Procedure .............................................................................................................................................166
Monitoring mechanisms ........................................................................................................................167
Trial.. ......................................................................................................................................170
Procedure .............................................................................................................................................170
Judgement ..............................................................................................................................174
Procedure .............................................................................................................................................174
Appeal ....................................................................................................................................176
Procedure .............................................................................................................................................176
Jail and release........................................................................................................................178
Procedure .............................................................................................................................................178
Annexure 4.1: Checklist for inquiry, inspection, and investigation ..............................................180
6146
41 Monitoring a case POA Handbook for Justice – 2024
Monitoring a case 04
Introduction
Registering a First Information Report (FIR) that invokes sections
of the Scheduled Castes and the Scheduled Tribes (Prevention of
Atrocities) Act, 1989 and Rules, 1995 (POA, the Act) is only the
start of a long and winding path to justice. Though there are
specific provisions for support, relief, socioeconomic
rehabilitation, and protection in the Act and Rules, they are seldom
enforced. Human rights defenders who seek to accompany the
survivors in solidarity know that all too well.
This guide book will take you through the stages of a case where
Atrocities) Act, 1989 is invoked, and at each stage illuminates the:
 Statutory provisions to be followed.
 State mechanisms available. Registering a First
Information Report (FIR)
 Authorities responsible.
that invokes sections of
 Rights of victims, witnesses, and their dependents. the Scheduled Castes
 Rights of associated organisations and associated and the Scheduled Tribes
individuals. (Prevention of Atrocities)
Act, 1989 and Rules,
 Additional information to be tracked. 1995 is only the start of
a long and winding path
This guide book will help monitor the progress of a case to justice.
registered under the Act. It should be used in conjunction with
the latest provisions of the Act and Rules so that all provisions –
from protection, to relief, socioeconomic rehabilitation, and
state support – are accessed by the survivors so that they have
adequate access to justice. Only when their socioeconomic
rehabilitation is such that the circumstances and vulnerabilities
that made the atrocity possible no longer exist, can they start
their life anew with safety and security.
Before you start

Using RTI to monitor implementation
This guide book assumes a basic understanding of how to use the
Right to Information Act, 2005 (RTI). Most of the RTI requests
are to the district magistrate (collector) and a few to the state
nodal officer, and the director of the scheduled castes and the
scheduled tribes protection cell, since these are the key officials
monitoring the implementation of this Act in the state. There are
a few to the director general of police (DGP), and the director of
prosecutions (DOP) as well.

Atrocity case tracking
Ideally, and legally, all the information about the functioning of

the committees, its members, functioning of the officials and
agencies, and status of the cases, should be made available suo
moto – online or on the notice board of the district collectorate or
the district protection cell (SJ&HR Unit in Tamil Nadu). Most
officials do not know that RTI requests are supposed to be the
exception and suo moto declaration should be the norm [RTI,
2005 Section 4(2)]. If that is not done, then all the information
should be given in response to just one RTI request (RTI format
DQ01) for the briefing notes and minutes of the quarterly
subdivisional [Rule 17A(4)], and district [Rule 17(3)] vigilance
and monitoring committee meetings. If the meeting agenda is
comprehensive and all of it is discussed and recorded in the
minutes, the report would have all the information required.
In practice, this is rarely the case. Most of the required
information is seldom on the agenda of the review meetings,
rarely a part of the briefing notes, and even more rarely ever
Ideally, and legally, all the discussed. At best, the cases which the police close as ‘mistake of
information about the
fact’ are mentioned, and data informed discussions and
functioning of the
committees, its members, decisions are exceptions to the norm. Multiple requests may be
functioning of the officials required to get this basic information, even for the vigilance and
and agencies, and status of monitoring committee members.
the cases, should be made
available suo moto – All this information will (should) be given to the committee
online or on the notice members as a right since it is essential for them to fulfil their
board of the district
collectorate or the district responsibilities. For other citizens most of this should be
protection cell. available on the websites of the government, but that is seldom
the case. Therefore, some RTI request formats with the address
of the competent authority have been provided in this guide for
monitoring. They will need to be modified for the first and
second appeals if the information is not provided. The
modification will be state specific.
None of the requests can be denied, since the requests are only
for copies of existing reports (so no additional work is required in
collating the information), and in any case should be disclosed
suo moto by the departments on their websites. Denial of
information on the grounds of additional work is grounds for
invoking Section 4 of the Act on dereliction of duty since it is an
admission that they have not compiled the mandatory periodic
reports as required under the Act.
The confidentiality clause of the RTI Act cannot be invoked
since these are your rights as an associated organisation or
individual [Section 15A(11)(i), Section 15A(11)(k),
Section15A(11)(l), Section 15A(11)(m), Section 15A(11)(n),
148 Monitoring a case POA Handbook for Justice - 2024
and Section 15A(12)]. Therefore, any denial of information

should immediately be brought to the notice of the first appellate
authority, and then to the state information commission. At best
the authorities can say that they have not prepared the reports, in
which case Section 4 will apply, and they should be prosecuted
for dereliction of duty.
As a norm, ask for the information personally and encourage the
concerned department to put it up on their website which they are
supposed to do suo moto under RTI. If they do not comply, file a
request under RTI. Many of these documents are supposed to be
mandatorily shared through websites, press notifications, and
other mass media as per the RTI provisions. However, in
practice, most officials are ignorant. Asking directly and through
RTI is an effective mechanism to educate the officials whose
task it is to implement the the Act, and make them aware that
these mechanisms, provisions, and compliances exist, what the 4
rules are, and the penalties for non–implementation.
Asking directly and
Put up scanned copies of any information you get under RTI on through RTI is an effective
your own webpage or on a file sharing site (slideshare, dropbox, mechanism to educate the
google drive etc) in a dedicated channel with the appropriate tags. officials whose task it is to
implement the the Act,
Know the Acts and Rules and make them aware
that these mechanisms,
Knowing the correct legal position is the first step. Be conversant provisions, and compliances
with the Acts and the Rules as amended to date. Know the rights exist, what the rules are,
of victims, witnesses, and their dependants, the rights of and the penalties for
non–implementation.
associated organisations and individuals, the duties of the state
mechanisms, and the names and designations of the
implementing authorities. We need information on the existing
mechanisms of the state – the government orders appointing the
appropriate authorities, setting up the mechanisms, and the
details of the actual persons in these posts and their contact
details. Knowing the existing state mechanisms to implement
and monitor implementation is a prerequisite to monitoring.
Get this information as soon as possible or apply for them under
the Right to Information Act, 2005 (RTI). Identifying the case to
be monitored and the actual monitoring of the case can begin
simultaneously. You need not wait for all this information to be
in your hand before you start.
1. Get copies of the following documents, available online, in
bookstores, and government press outlets.
(a) The Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 and Rules, 1995
as amended to date.
(b) The latest relief amounts [Rule 12(4) Schedule

Annexure I]. There will be a copy of the schedule
annexed to the Act and Rules, but it might have been
updated after the latest amendment to the Act and
Rules by a government notification. So, it is always
good to check. (Annexure II, details the methodology
for calculating disability, is relatively constant).
(c) The Right to Information Act, 2005 and Rules. The
Rules are specific to each state, especially the mode of
payment, though in some states the fees are also
different. The fees for documents from the courts also
sometimes vary.
Get the latest notifications

There are a few more documents to be collected in addition to the
core Acts and Rules. Most of them are government orders and
notifications issued to set up the state, district, and subdivisional
Knowing the existing state level mechanisms required by the Act, preventive action, and
mechanisms to implement standard operating procedures when an atrocity takes place,
and monitor from inquiry, investigation, and trial up to socioeconomic
implementation is a
prerequisite to monitoring.
rehabilitation.
2. Get copies of the following from the ministry of social
welfare, or the social welfare department of your state.
(a) Notification of atrocity prone areas: ‘area where it has
reason to believe that atrocity may take place or
apprehension’ that an atrocity may take place
[Rule 3(I(RTI format).
(b) Gazette notification specifying a panel of public
prosecutors and panel of eminent senior advocates as
special public prosecutors for the purpose of conducting
cases under this Act and Rules [Rule 4(1B)] (RTI
format). The notification is valid for three years.
(c) The latest gazette notification or order for setting up
the Scheduled Castes and the Scheduled Tribes
Protection Cell [Rule 8] (RTI format).
(d) Government notification appointing the state nodal
officer for coordinating the officials responsible for
implementing the Act and reviewing their
performance (normally the Principal Secretary, Social
Welfare) [Rule 9] (RTI format).
(e) Name and designation of the special officer in the
identified (atrocity prone) area [Rule 10]. This officer
would typically be at the district level and will be a

‘special officer’ under this Act as an additional duty.

Ask for the relevant government notification. (In
Tamil Nadu, all district collectors are designated as
special officers by government notification G.O (Ms)
No.96 Adi Dravidar and Tribal Welfare (PA)
Department dated 10 August 2006) (RTI format).
(f) State contingency plan (SCP) as notified in the official
gazette of the state government [Rule 15(1)]. This can
be got from any district magistrate (DM),
subdivisional magistrate (SDM), inspector of police,
or superintendent of police (SP) since they will
(should) have a copy [Rule 15(2)]. It is a good practice
to ask this from the district level officials, so that the
district level mechanisms are activated. In case of
delay, ask the nodal officer who will have it, since they
send it to the union government every year along with
4
the state annual report (RTI format).
Know the rights of victims,
(g) Notification of the constitution of the state level high witnesses, and their
power vigilance and monitoring committee (SVMC) dependants, the rights of
associated organisations
[Rule 16(1)] (RTI format).
and individuals, the duties
(h) Notification of the constitution of the district level of the state mechanisms,
and the names and
vigilance and monitoring committee (DVMC)
designations of the
[Rule 17(1)] (RTI format). This should have the names implementing authorities.
of all the members and their designations [Rule 17(2)].
Note that some are ex–officio members, and their
names and designations will have to be mentioned.
Make a note of the MP and MLA of the constituency
who is a member of the DVMC.
(i) notification of the constitution of the subdivisional
level vigilance and monitoring committee (SdVMC)
[Rule 17A(1)] (RTI format). This should have the
names of all the members and their designations
[Rule 17A(2)]. Note that most are ex–officio
members, and this will have to be mentioned. In
particular, note the name of the jurisdictional elected
members of local government institutions, MPs,
MLAs, the deputy superintendent of police (who will
also be the investigating officer), and the subdivisional
magistrate who also has several important
responsibilities regarding the case.
(j) Gazette notification setting up special courts and
exclusive special courts to try cases under this Act

[Section 14] (RTI format). It is sufficient if you get this

notification for your district. This RTI request should be
to the registrar of the high court of your state.
(k) Copy of the ‘Dr Ambedkar National Relief to the
Scheduled Castes and Scheduled Tribes Victims of
Atrocities Scheme’ that provides instant monetary relief
to the victims of heinous offences under the Act in
addition to the relief provided by the state government
(up to 31 March 2023).
Know the duties of the state

Every case of caste–based violence (atrocity) is a failure of the
state – in particular of the officials tasked with the prevention of
atrocities. In effect, this means the DM, the special officer, and
the SP have failed in their duty to prevent the atrocity. It is this
failure at the top level of the district administration and, as we
shall see later, at the state level as well, that results in atrocities.
Every case of caste–based Therefore, they have to personally monitor the consequences of
violence (atrocity) is a their failure – the ‘case’ – to ensure that restitution is done. It is to
failure of the state – in
particular of the officials
remedy the guilt (and culpability) of the state, that the state
tasked with the prevention provides relief and socioeconomic rehabilitation.
of atrocities.
The DM at the district level, and the SDM at the subdivisional
level, monitor implementation monthly, as also the chief of the
scheduled castes and the scheduled tribes protection cell (usually
an officer of rank additional director general of police, ADGP)
and the state nodal officer (usually an officer of rank secretary or
principal secretary to government) at the state level.
It is the duty of the state to ensure that the victims, witnesses,
informants, and their dependents can exercise their rights
[Section 15A]. In practice, insofar as it relates to the everyday
handling of the case, ‘the state’ means the investigating officer.
The government is dutybound to assist the associated
organisations and individuals to execute the rights of victims and
witnesses under this Act [Section 15A(11)(n)]. The right of the
victims and witnesses to receive assistance from CSOs – defined
as associated individuals, associated organisations, non
government organisations, and social workers in the Act – is an
important right that has to be supported and ensured by the state
[Section 15A(11)(n), Section 15A(12)].
It is the duty of the state to fix responsibility for every case that
ends in acquittal on the investigating officer (the deputy
superintendent of police, DSP) or the prosecutor (the special

public prosecutor, SPP) through the standing committee set up

on the orders of the Supreme Court of India in the State of
Gujarat vs Kishanbhai etc. [Criminal Appeal 1485 of 2008 of 7
January 2014].
Know the state mechanisms

There are government mechanisms to monitor implementation
of the Act at the state, district, and subdivisional levels. The state
level mechanism is the state level high power vigilance and
monitoring committee, SVMC [Rule 16], the DVMC at the
district level [Rule 17] and the SdVMC at the subdivisional level
[Rule 17A]. The state is required to take preventive action, and
when an atrocity takes place, provide protection [Rule 12(2)],
relief [Rule 15(1)], and rehabilitation to the communities
(victims, witnesses, informants, their dependents, and families)
[Rule 12(4)], and provide allowances to them and their attendants
for travel [Rule 11(1), 11(2), 11(3)], maintenance [Rule 11(4)], 4
and diet expenses [Rule 11(5)] during investigation and trial.
It is the duty of the state to
The Scheduled Castes and the Scheduled Tribes Protection Cell ensure that the victims,
at the state headquarters (the Social Justice and Human Rights witnesses, informants, and
their dependents can
SJ&HR Wing in Tamil Nadu, the Directorate of Civil Rights exercise their rights
Enforcement, DCRE in Karnataka), oversees the implementation [Section 15A].
of the Act and supervises the functioning of the district units
consisting of a DSP and support staff. For collection of statistical
information under the Act, a statistical unit consisting of one
statistical inspector is attached to each district unit in Tamil
Nadu, or that role is fulfilled by the district crime records bureau.
In the State of Gujarat vs Kishanbhai etc. [Criminal Appeal
1485 of 2008 of 7 January 2014, paragraphs 20 and 21], the
Supreme Court of India ordered the home departments of all
states to constitute a standing committee comprising of senior
officials of the police and prosecution departments. These
standing committees review all cases of acquittal and fix
responsibility for the acquittal – on the investigating officer for
negligent investigation, or the prosecutor for negligent
prosecution. This order and standing committee are applicable
for all cases, not just for those booked under the Act. The data in
their quarterly report contains the performance of the
investigating officer and the special public prosecutor, which
should be culled out and made available to the DVMC. Though
this standing committee is not a part of the Act, it is a critical
state mechanism that provides essential information for
implementing this Act.

The Government of Tamil Nadu set up the standing committees

at the district and city levels consisting of the SP, Addl. SP
(Hqrs) and Asst. Director/ Deputy Director of Prosecution in the
districts; Commissioner of Police, Deputy Commissioner of
Police (Crime) and Asst. Director/ Deputy Director of
Prosecution in case of cities. The district and city level reviews
are held monthly, with reports being sent to the state every
quarter. [Ref: Circular Memorandum from DGP office, TN,
Rc.No.053884/ Crime. 4(3)/2014 Dated: 26.04.2016]. Most
states will have similar mechanisms.
These state mechanisms need to be monitored at every stage for
the administration of justice, as an integral part of monitoring
cases registered under the Act.
Know the rights of the victims, witnesses, and their dependents

There are specific rights for victims, witnesses, and their
dependents. ‘Victims, witnesses, and their dependents’ includes
The right of the victims their family, informants, and attendants. It is the duty of the state
and witnesses to receive
assistance from CSOs –
to ensure that the victims, witnesses, and their dependents can
defined as associated freely execute these rights [Section 15A(11)(n)].
individuals, associated
organisations, non Know the rights of human rights organisations and defenders
government organisations, It is the right of victims and their dependents to get assistance of
and social workers in the
Act – is an important right
NGOs, social workers, and advocates [Section 15A(12)].
that has to be supported Human rights organisations (associated organisations) and
and ensured by the state defenders (associated individuals) [Section 15A(11)] have the
[Section 15A(11)(n),
right to certain information to support the victims, witnesses,
Section 15A(12)].
informants, and their dependents to exercise their rights.
The rights of these associated organisations and individuals
include getting information on the status of investigation and
charge–sheet free of cost [Section 15A(11)(Ielief amount [Section
15A(11)(k)], dates and places of investigation and trial in advance
[Section 15A(11)(l)], briefing on the case and preparation for trial
[Section 15A(11)(m)], and assistance for execution of rights of
victims and witnesses [Section 15A(11)(n)].
All the above are the rights of the associated organisations and
individuals. If you or your organisation are identified as an
associated individual or organisation (by the victims, witnesses,
government, or judiciary), these are your rights.
Know the allowances

The victims, dependents, witnesses, and attendants are entitled to a
travelling allowance, daily allowance, maintenance expenses, and

transport facilities during investigation, and trial from the place of

residence or place of stay to the place of investigation or hearing of
trial, hospitalisation, and hospital visits.
These remain the same regardless of the section invoked and
must be paid immediately or within three days at the latest
[Rule 11(6)]. It is the responsibility of the district magistrate or
the subdivisional magistrate or any executive magistrate to make
the necessary arrangements for providing transport facilities or
reimbursement of full payment [Rule 11(2), 11(6)].
Every woman witness, victim or dependent, a minor, a person
more than sixty years of age, and a person having 40 per cent or
more disability are entitled to an attendant of their choice. The
attendant is entitled to all allowances and expenses – travelling
allowance, daily allowance, diet expenses, maintenance
expenses – as applicable to the victim [Rule 11(3)]. 4
Travel allowance is calculated as to and fro rail fare by second
Human rights
class train or actual bus or taxi fare from place of residence or organisations (associated
place of stay to the place of investigation or hearing of trial organisations), and
[Rule 11(1)]. defenders (associated
individuals)
Daily maintenance expenses are paid for the days away from the [Section 15A(11)]
have the right to
place of residence or stay during investigation and hearing of
certain information to
trial. It is paid at a rate not less than the minimum wages for the support the victims,
agricultural labourers in the state [Rule 11(4)]. Diet expenses are witnesses, informants, and
paid at a rate fixed by the state government. This payment is in their dependents to
exercise their rights.
addition to TAME [Rule 11(5)].
Hospitalisation expenses includes reimbursement for
medicines, special medical consultation, blood transfusion,
replacement of essential clothing, meals, and fruits provided to
the victim(s) of atrocity [Rule 11(7)].
Know the relief and socioeconomic rehabilitation

The victims and their dependents are entitled to relief and
socioeconomic rehabilitation depending on the severity of the
crime and the sections invoked. This dependence of entitlements
on the section invoked is an additional reason to ensure that the
right sections are mentioned in the FIR.
In cases of murder, rape, permanent disability, or arson, the
victims are entitled to ‘instant monetary relief’ [Rule 15(1)(a)]
from the Dr Ambedkar National Relief scheme for crimes up to
31 March 2023, after which the scheme is merged with the
centrally sponsored scheme. The proposal for financial

assistance for the scheduled caste and scheduled tribe victim of

atrocities may be forwarded by the state / UT government or
district magistrate or district collector in the prescribed format
along with the copy of the FIR, inquiry report, post–mortem
report, medical or disability certificate.
Relief is generally paid in three tranches – about 25% when the
FIR is registered, 50% when the charge–sheet is filed, and 25%
on conviction. Depending on the sections invoked, some of the
relief is released on receipt of the medical certificate (for acid
attacks, crimes under IPC 326B, 376B, 376C and BNS 122, 67
and 68, disability or incapacitation, rape or gangrape) or
post–mortem report (murder or death).
In cases of murder, rape, permanent disability, or dacoity, the
victims are entitled to all the following for socioeconomic
rehabilitation – pensions (C5000+DA), and a government job, and
a house, and agricultural land, fully supported residential
The victims and their
education for children up to graduation, and emergency relief for
dependents are entitled to three months [Rule 12(4) Schedule Annexure I #46].
relief and socioeconomic
rehabilitation depending Online resource
on the severity of the crime
The online resource at
and the sections invoked.
https://www.cvmc.in/relief/#socioeconomicrehabilitation is
a quick reference for the instant relief, relief, and socioeconomic
rehabilitation due at each stage of the process. These entitlements
are dependent on the sections invoked. Oftentimes, only the IPC
sections are invoked (and in all probability only BNS in future),
and the corresponding sections of this Act are not, or vice versa.
Both are required for the proper administration of justice.
This online resource brings together Section 3, Rule 12(4)
Schedule Annexure I, Rule 12(5), Rule 15(1)(a) – the
Dr Ambedkar National Relief norms for instant monetary relief
– and the IPC/BNS sections for ready reference. It can be sorted
by column so that concerned organisations and individuals can
verify and ensure that the FIR and charge–sheet have both the
POA and IPC/BNS sections, and the emergency relief, instant
monetary relief, relief, and socioeconomic rehabilitation are
fulfilled as per law and on schedule.
Familiarity with the resource will be helpful in ensuring all
the entitlements are secured. You don’t need to know all of it –
just know that it is there, what is in it, and how to search it for
the relevant results. Then you can use it as a ready reckoner
when you need to.

Choose a case to monitor

3. Monitoring should ideally take place before an atrocity
since this Act is the Prevention of Atrocities Act. Few
atrocities happen on the spur of the moment. Often there is
a long build up. Sometimes the buildup is below the
threshold of cognisance i.e., too minor to be noticed.
Many a time the aggravation is constant but low
intensity, and the police (and sometimes we too!) tend to
brush off each of them as ‘a’ minor incident. The
escalation in intensity or frequency in ‘minor incidents’
should serve as a warning.
4. Choose a case where the organisation has strong presence
either as a civil society organisation (CSO) or community
organisation (CBO). This is an essential requirement to
protect the witnesses and survivors. Cases where
protection cannot be ensured should not be pursued since
4
that would lead to adverse consequences for the survivors The escalation in intensity
and witnesses. or frequency in ‘minor
incidents’ should serve
5. Strong CSO presence is also required for systematic as a warning.
monitoring of the cases – something that is difficult for
individuals. Ideally, an organisation would need three
persons to monitor one case.
6. If this is your first case, chose one in which you think there
is a reasonable chance of meeting the survivors and
witnesses at least once a week for the duration of the case
(often three years or more). Choose one in which you have
a reasonable chance of winning.
7. Be prepared for delays. Witnesses (after six months) and
victims (after a year) often ‘turn hostile’. Accompany them
and give them moral strength to the extent possible.
Victims and witnesses must be visited at least once a week,
and more often depending on the circumstances. Local
support structures are critical for the victims and witnesses.
8. Constant follow up with the state mechanisms is important
to ensure that the victims and witnesses do not turn hostile
due to social pressure, state apathy, or delays. Do this by
regular visits, ensuring victims and witnesses rights
[Section 15A], that the charge–sheet is filed within 60 days
[Rule 7(2)], and the trial is completed within two months of
filing the charge–sheet [Section 14(3)].

9. Once you choose the case, get yourself and your

organisation recognised by the state as an ‘associated
individual’ and an ‘associated organisation’ referred to in
Section 15A(11)(n) or a nongovernment organisation,
social worker, or advocate referred to in Section 15A(12)
so that you are kept informed as per Section 15A(11) sub
Sections (i), (k), (l), (m), and (n). Associated organisations
do not have to be registered, though it helps, but
nongovernment organisations need to be. This recognition
considerably eases the flow of information, as the
information can then be claimed as a right by the human
rights organisation and defender also.
10. It is best to have a lawyers’ collective in each district so that
one can immediately be assigned to the case. A lawyers’
collective has the added benefits of a lawyer being on call
so that there will be a lawyer present right from the time of
Constant follow up with
complaint, that they will specialise in the Act thereby
the state mechanisms is acquiring domain expertise, and the uplifting power of
important to ensure that solidarity. Always have a lawyer in your team, so that they
the victims and witnesses
can help with the process even before you make a
do not turn hostile due to
social pressure, state complaint. If you include them with their role in the
apathy, or delays. complaint [Section 15A(12)], the government will pay
them. Assert the right to an advocate of choice from the
time of filing the complaint [Rule 4(5)].
Information: Filing a complaint

Procedure
11. All proceedings under this Act – from filing a complaint, to
FIR, to inquiry, investigation, trial, and beyond, and
everything in between – must be video recorded
[Section 15A(10)].
12. Any ‘informant’ can file a complaint in any police station
[Rule 5(1), and Section 39 of CrPC.]. It is not necessary that
the informant be the victim or an eyewitness. Oral
complaints by survivors and witnesses are permissible. Use
format PS01(page no. 311) to file the complaint.
13. The police officer will register an FIR immediately
without conducting any preliminary inquiry
[Section 15A(9), Section 18A].
14. If the atrocity did not take place in the jurisdiction of that
police station, then they will record a ‘Zero FIR’ (an FIR
without a serial number) and transfer it to the correct
police station.
15. The station house officer (SHO, usually an inspector or

sub–inspector), immediately after registering the FIR [The
Code of Criminal Procedure, 1973 (CrPC) Section 154],
will read it out to the complainant before getting the
signature [Section 4(2)(a)], and provide a copy of the FIR
free of cost to the victims [Section 4(2)(b), Section 4(2)(c)
and Section 5(2)].
16. The officer will inform the victims, witnesses, and their
dependents of their rights, including relief amount due,
protection, and the dates of investigation and trial
[Section 15A(11)].
17. If the complaint is not accepted, or if the FIR is not
registered, send it in writing by registered post to the SP
along with a covering note mentioning the date, time,
name, and designation of the police officer, and the police 4
station in which the original complaint has been refused
[Rule 5(3)] (use format SP01). The victim, witness, A lawyers’ collective has
the added benefits of a
concerned individual, concerned organisation, or advocate lawyer being on call so
can complain to the superior officer [Rule 5(3)]. that there will be a lawyer
present right from the
18. Victims and their dependents have a right to take the time of complaint, that
assistance from NGOs, social workers, and advocates at all they will specialise in the
stages of a case [Section 15A(12)] – meaning the informant Act thereby acquiring
domain expertise, and the
can go with an individual or advocate of choice to file the uplifting power of
complaint, and the state will pay the advocate [Rule 4(5)]. solidarity.
Allowances, relief, and socioeconomic rehabilitation

19. Once the FIR is filed, several entitlements are due
immediately or, at the latest, within seven days. In practice,
most times, it takes more time. Even in cases of heinous
crime, it awaits the greenlight from the DM and SP.
20. The victims, their dependents, and witnesses
Sections 15A(11)(e) and 15A(11)(f) are entitled to
relief and assistance including medical aid, food, clothing,
shelter etc. [Rule 12(4)], depending on the severity of the
crime and the sections invoked. Use the online resource as
a quick reference.
21. In cases of murder, rape, permanent disability, or arson, the
victims are entitled to ‘instant monetary relief’ [Rule 15(1)(a)]
from the Dr Ambedkar National Relief. The proposal must
be forwarded by the state / UT government or district
magistrate or district collector along with the copy of the

FIR, inquiry report, post–mortem report, medical or

disability certificate. This scheme is for crimes up to 31
March 2023, after which the scheme is merged with the
centrally sponsored scheme.
22. One part of the monetary relief will be due at the time of
filing the FIR, and some more (depending on the sections
invoked) on receipt of the medical certificate (for acid
attacks, crimes under IPC 326B, 376B, 376C and BNS 122,
67 and 68, disability or incapacitation, rape or gang rape) or
post–mortem report (murder or death). Ensure it reaches
the victims and their dependents.
23. In cases of murder, rape, gang rape, permanent
incapacitation, or dacoity, the victims, dependents, and their
families are entitled to all the following for socioeconomic
rehabilitation – emergency relief for three months, pension
(H5000+DA), a government job, a house, agricultural land,
Any ‘informant’ can file a and fully supported education for children up to graduation
complaint in any police
[Rule 12(4) Schedule Annexure I, #46].
station [Rule 5(1), and
Section 39 of CrPC.]. It is
24. The relief due at the FIR stage should be paid immediately,
not necessary that the
informant be the victim or within seven days. In practice, it is included in the
or an eyewitness. Oral monthly monetary proposal only after the SP gives the
complaints by survivors greenlight after the inspection visit, and released to the
and witnesses are
permissible. Use format victims and eligible others only after it is sanctioned and
PS01 to file the credited to the district administration’s account.
complaint.
25. Make sure that the relief due at the FIR stage and, where
required, for the medical report and post–mortem stages as
well, are included in the monthly monetary proposals sent
by the district administration to the nodal officer (format).
This ‘advance notice’ is to ensure that there is no delay at
any subsequent stage of the case since the mechanisms
have been informed well in advance about the sums needed
for relief at every stage, the time periods for each stage is
well–known, and therefore the amounts are easy to forecast
and keep in reserve. Monitor when it is sanctioned (RTI
format). Ensure the relief due at the FIR stage reaches the
victims and dependents immediately after it reaches the
account of the district administration.

26. The complaints are followed up by an officer not below
the rank of DSP or SDM or any executive magistrate
[Rule 6(1)].
27. Once a complaint is received, an FIR must be filed. After a

spot visit for inquiry, an inquiry report [Rule 6(2)] is sent to
the state government which, in practice, means the local SP.
Additional tracking
28. Always file written complaints – even before an atrocity
‘takes place’ – and get a signed acknowledgement with the
official stamp. The complainants are entitled to a free copy
of their complaint [Rule 5(2)].
29. Ensure that you are included in the complaint as an
associated organisation and individual. This step is critical
for you to be kept informed officially at all stages of the
case [Section 15A(11), Section 15A(12)].
30. If at any time there is apprehension of threat to life or body
or intimidation to the victims or witnesses, accompany
them to any magistrate and ask to record their statements
4
under Section 164 of the CrPC. The magistrate who When there is information
recorded the statement should be produced as a witness in (from any source) that an
atrocity may be, or may
court. Generally, the statement of Section 164 of the CrPC
have been committed, an
should be made only in extremely exceptional cases officer not below the rank
because the importance of the statement of Section 164 of of DSP or SDM or any
the CrPC is in no way greater than the statement under executive magistrate must
visit the spot and conduct
Section 161 of the CrPC, though the statement before the an inquiry to assess the
judge will have more weightage. This is some backup if the extent of atrocity, loss of
victims and witnesses turn hostile later (though it does life, loss and damage to
the property [Rule 6(1)],
mean that we were not strong enough to support them, and
and submit a report to the
therefore it was a wrong choice of a case). state government
[Rule 6(2)].
Inquiry: Spot assessment
Procedure
31. When there is information (from any source) that an
atrocity may be, or may have been committed, an officer
not below the rank of DSP or SDM or any executive
magistrate must visit the spot and conduct an inquiry to
assess the extent of atrocity, loss of life, loss and damage to
the property [Rule 6(1)], and submit a report to the state
government [Rule 6(2)].
32. If they confirm that an atrocity has taken place, they must
(i) draw up a list of victims, their family members and
dependents entitled for relief; (ii) prepare a detailed report
of the extent of atrocity, loss and damage to the property of
the victims; (iii) order for intensive police patrolling in the

area; (iv) take effective steps to provide protection to the

witnesses and other sympathisers of the victims; (v) provide
immediate relief to the victims [Rule 6(2)], and inform
their superior officer – the SP or DM.

33. The inquiring officer must provide immediate protection,
relief, and assistance to the victims, their dependents, and
witnesses [Section 15A(1), Rule 6(2), Rule 12(4), SCP].
Where necessary, it includes medical aid, food, clothing,
shelter, utensils, rice, wheat, dals, pulses, etc. [Rule 12(4)
Schedule Annexure I #46, and SCP].
34. If you haven’t done so already, make sure that the relief due
at the FIR stage and, where required, for the medical report
and post–mortem stages as well, are included in the
monthly monetary proposals sent by the district
administration to the nodal officer (format). Monitor when
Ensure that all it is sanctioned (RTI format). Ensure it reaches the victims
proceedings under this
Act from the information and dependents immediately after it reaches the district
stage (including inquiry, administration.
inspection, investigation,
trial, and autopsies) are Atrocity case tracking
video recorded.
35. The inquiry report [Rule 6(2)], is sent to the state
[Section 15A(10)].
government – the protection cell and, through it, the SP,
DM, and the nodal officer.
36. These officials will make a spot visit of their own if the
report confirms that an atrocity has been committed.
Additional tracking
37. Ensure that all proceedings under this Act (including spot
investigations) are video recorded [Section 15A(10)].
38. Ask for the inquiry report filed under Rule 6(2) (RTI
format).
39. Check if all the victims are mentioned in the Rule 6(2) report,
and if they have got all the relief that they are entitled to
[Rule 12(4)], and the state contingency plan [Rule 15(1)].
40. If not, bring it to the notice of the special court (format)
which is empowered to order relief according to the
Schedule 1 of Rule 12(4) or even increase it [Rule 12(7)]
right from the time of inquiry [Section 15A(6)].

Inspection
Procedure
41. On receiving information from their subordinate that an
atrocity has taken place (through the Rule 6(2) report), both the
SP and the DM will visit the area within 24 hours and conduct a
spot inspection to access the extent of damage, loss of life and
property and identify the victims, witnesses, and their
dependents entitled to relief [Rule12(1)], and the accused.
42. On confirmation, the SP will ensure that the FIR is
registered, effective measures for apprehending the
accused are taken [Rule 12(2)], and necessary protection is
provided [Rule 12(3)]. Immediately [Rule 6(1)] or latest
within 24 hours [Rule 15(1), state contingency plan]. Get
the name of the SP (RTI format).
43. The SP will appoint an investigating officer (of DSP rank or
higher) to continue the investigation [Rule 12(3)].
4
According to Rule 7(1), investigation of an offence In cases of unnatural
committed under this Act must be investigated by an officer death do not cremate the
not below the rank of DSP. body till the final verdict,
since cremation will
Allowances, relief, and socioeconomic rehabilitation destroy vital evidence. An
autopsy report is essential
44. The DM will provide relief and assistance including medical
for relief, rehabilitation,
aid, food, clothing, shelter etc. [Rule 12(4)] to the victims, and the trial.
their dependents, and witnesses.
45. In cases of murder, rape, permanent disability, or arson (for
crimes up to 31 March 2023), the victims are entitled to
‘instant monetary relief’ [Section 15(1)(a)] from the
Dr Ambedkar National Relief.
46. One part of the monetary relief will be due at the time of
filing the FIR, and some more (depending on the sections
invoked) on receipt of the medical certificate (for acid
attacks, crimes under IPC 326B, 376B, 376C and BNS 122,
67 and 68, disability or incapacitation, rape or gangrape) or
post–mortem report (in case of murder or death).
47. If it hasn’t been done already, make sure that the relief due
at the FIR and the charge–sheet stages and, where required,
for the medical report and post–mortem stages as well, are
included in the monthly monetary proposals sent by the
district administration to the nodal officer (format).
Monitor when it is sanctioned (RTI format). Ensure it
reaches the victims and dependents immediately after it
reaches the district administration.

48. In cases of murder, rape, permanent disability, or dacoity, the

victims are entitled to all the following for socioeconomic
rehabilitation – emergency relief for three months, pensions
(H5000+DA), and government job, and house, and
agricultural land, and fully supported education for children
up to graduation [Rule 12(4) Schedule Annexure I, #46].

49. The report of the relief and socioeconomic rehabilitation
provided to the victims, their families, and their
dependents, will be sent to the judge of the special court by
the district magistrate [Rule 12(7)].
50. It is the duty of the judge of the special court to provide
protection, travel allowance and maintenance expenses,
relief, socioeconomic rehabilitation, and relocation during
inquiry, investigation, and trial [Section 15A(6)] at the
appropriate time as required. In practice, however, it will
Ensure that the case is
be done by the line departments, and monitored by the DM.
discussed at the quarterly
SdVMC [Rule 17A(4)] Even so, it is good practice to bring this duty to the attention
and DVMC meeting of the judge of the special court.
[Rule 17(3)] by sending a
letter to the district social 51. Ensure that the case is discussed at the quarterly SdVMC
welfare officer, the [Rule 17A(4)] and DVMC meeting [Rule 17(3)] by
member–secretary
[Rule 17(2)] asking for
sending a letter to the district social welfare officer, the
the case to be discussed. member–secretary [Rule 17(2)] asking for the case to be
After the meeting ask for discussed (format). After the meeting ask for a copy of the
a copy of the minutes.
minutes (RTI format).
52. Similarly, ask for the case to be discussed at the January
and July SVMC meetings [Rule 16(2)] by sending a letter
(format) to the Principal Secretary (Social Welfare), who is
the convenor of the SVMC. Your letter should contain the
bare facts of the case at this point, including the names of
the officials involved. Ask for the spot inspection reports
[Rule 6(2) and Rule 12(7)] be discussed. Attach a copy if
you have one.
Additional tracking
53. Ensure that all proceedings under this Act (including spot
inspections) are video recorded [Section 15A(10)].
54. Ask for a copy of the report sent under Rule 12(7) from the
Special Court (RTI format). If such a report has not been
filed, ask for permission to prosecute the concerned official
under Section 4 (format).

55. Ask for a copy of the final FIR since filing the FIR
(presumably with the correct sections) is ensured by the SP
[Rule 12(2)] after he makes a spot inspection [Rule 12(1)].
This will be given free to the informant, victims and their
families [Rule 5(2)], and to associated individuals and
organisations [Section 15A(9)] (RTI format). The FIR
should contain all the names mentioned in the spot
inspection reports [Rule 6(2), Rule 12(1)]. If not, request
that a supplementary FIR be filed to include the specific
names. Use your fact–finding reports as a backup/
secondary reference.
56. Check if the correct sections of the Act are invoked in the
FIR. The online tool at https://www.cvmc.in/relief/ can
be used to match the relevant sections of the Act vis a vis
the Indian Penal Code (IPC) and other Acts. Usually, the 4
police only invoke the IPC section, so check whether the
corresponding the Acts’ sections are mentioned. If not, Stages of a case:
request that a supplementary FIR be filed (format).  Information.
 Inquiry by DSP or SDM.
57. Every month: Ask for a copy of the monthly report sent to  Inspection by SP and DM.
 Investigation by DSP.
the state government by the district collector [Rule 4(4)]
 Charge–sheet filed by the
(RTI format), the monthly monetary proposal and abstract, officer–in– charge of the
and the monthly report sent by the protection cell to the concerned police station
state nodal officer [Rule 8(1)(xi)] (RTI format). The Rule 4(4) within 60 days of the FIR.
 Judgement by judge of
and Rule 8(1)(xi) compliance reports should have the ESC or DSC within two
‘action taken and proposed to be taken’. Ensure that the months of the
case details are mentioned correctly. charge–sheet.
58. If not, write to the district collector, with a copy to the state
nodal officer, mentioning that the information is
missing/incorrect and that it must be corrected (format).
Follow it up monthly till rectified. Ensure that this report is
sent to the director of prosecutions also so that the progress
is tracked at the highest levels right from the outset.
59. Ask for copies of the minutes after the SdVMC, DVMC,
and the SVMC meetings (RTI format). Check the status of
your case and ensure that it has not been disposed of as
‘false’ or ‘mistake of fact’.
60. Check if all the eligible victims have got the instant monetary
relief from the Dr Ambedkar National Relief, and all the
relief they are entitled to [Rule 12(4) to Rule 12(7), and the
state contingency plan Rule 15(1)]. If not, bring it to the

notice of the special court (format) which is empowered

to order relief according to the norms prescribed under
Rule 12(4) Schedule Annexure I or even increase it
[Rule 12(7)].
Investigation
Procedure
61. A case where this Act is invoked should be investigated by
an officer of minimum DSP rank appointed by the
government for each case [Rule 7, Rule 12(3)]. Usually,
this would be the DSP from the district unit of the
Scheduled Castes and the Scheduled Tribes Protection
Cell. In Tamil Nadu, it would be the DSP from the SJ&HR
unit, in Karnataka from the DCRE.
62. Dates, places, and the status of investigation should be
informed to the victims or their dependents or
associated organisations or individuals [Section
Ask for copies of the
minutes after the 15A(11)(Iection 15A(11)(l), SCP].
SdVMC, DVMC, and the
SVMC meetings (RTI 63. The victims, witnesses, dependents, attendants are entitled to
format). Check the travel and daily allowances, and maintenance and diet
status of your case and expenses during investigation. They should get this
ensure that it has not
been disposed of as
immediately or at the latest within three days [Rule 11(6)].
‘false’ or ‘mistake of fact’.
64. After completing the investigation on top priority, the
charge–sheet should be filed in the special court by the
investigating officers within 60 days from the date of
registering the FIR [Rule 7(2)].
65. Any delay in the investigation or filing of the charge–sheet
must be explained in writing by the investigating officer
[Rule 7(2A)]. If the written explanation is not filed, the
investigating officer is liable for prosecution under
Section 4 for violation of Section 4(2)(e).
66. If, in the opinion of the judge of the special court, the
investigation is unsatisfactory, further investigation can be
ordered [CrPC 173(8)].
67. A copy of the charge–sheet should be given to the victims,
their dependents, associated organisations, or associated
individuals free of cost [Section 15A(11)(i), Rule 5(2)].
68. Once the charge–sheet is filed, the victims are entitled to a
part of the relief as stipulated in Rule 12(4) Schedule
Annexure I. Check the online tool for details.

69. Victims, dependents, and witnesses [Rule 11] are entitled to
taxi or second–class train fare from their place of stay to the
place of investigation [Rule 11(1)] or visiting officials
concerning the investigation [Rule 11(2)]. The district
magistrate or executive magistrate will make arrangements
for the travel in an equivalent mode of transport [Rule 11(2)].
70. They are entitled to daily maintenance allowance, diet
allowance etc for the days away from place of residence during
investigation [Rule 11(4)]. Victims, witnesses, and dependents
being a woman, minor, over 60 years of age, or with over 40%
disability are entitled to an attendant of their choice. The
attendant is entitled to the same allowances [Rule 11(3)]. All
allowances and reimbursements must be paid to the victims,
dependents, witnesses, and attendants [Rule 11] immediately
or within three days at the latest [Rule 11(6)].
4
71. Some part of the monetary relief (usually 50%) will be due If, in the opinion of the
judge of the special
at the time of filing the charge–sheet [Rule 12(4)]. The
court, the investigation
relief due at the charge–sheet stage should be paid is unsatisfactory,
immediately, or within seven days, especially if we had further investigation
reminded them earlier. Ensure it reaches the victims, can be ordered
[CrPC 173(8)].
dependents, and others who are eligible immediately after
it reaches the district administration.
72. Now make sure that the relief due at the end of trial or
conviction stages are included in the monthly monetary
proposals sent by the district administration to the nodal
officer (RTI format). Monitor when it is sanctioned
(format) to ensure that those eligible get it immediately.
73. Follow up on the instant monetary relief [Rule 15(1)(a)]
due from the Dr Ambedkar National Relief (for crimes up
to 31 March 2023) to ensure that it reaches those eligible. It
should have been credited to the bank account by now. If
not, verify with the nodal officer when the application was
sent (RTI format), and when it was received (RTI format).
Monitoring mechanisms
74. It is the duty of the judge of the special court to provide
protection, travel allowance and maintenance expenses,
relief, socioeconomic rehabilitation, and relocation during
inquiry, investigation, and trial [Section 15A(6)] at the
appropriate time as required. Bring any lapses to the
attention of the judge of the special court.
75. Ensure that the case is discussed at the quarterly SdVMC

[Rule 17A(4)] and DVMC [Rule 17(3)] meetings by
sending a letter to the social welfare officer who is the
member–secretary of the SdVMC [Rule 17A(3)] and
DVMC [Rule 17(2)] asking for the case to be discussed
(format).
76. Similarly, ask for the case to be discussed at the January and
July SVMC meetings [Rule 16(2)] by sending a letter to the
Principal Secretary (Social Welfare), who is the convenor
of the SVMC (format). Your letter should contain the bare
facts of the case at this point and lapses of any. It should
include the names of the officials involved.
77. If the investigating officer is found to be unsatisfactory,
ask for that to be specifically noted at the SdVMC,
DVMC, and SVMC meeting. Give the statistics that you
got using RTI (RTI format).
Socioeconomic
rehabilitation: 78. Ask for a copy of the minutes after the meeting
 Pension [H5000 + DA]. (RTI format).
 Government land.
 Fully paid residential Additional tracking
education up to
graduation. 79. Ensure that all proceedings under this Act (including spot
 House (including assessment and investigation) are video recorded
relocation). [Section 15A(10)].
 Agricultural land.
 Emergency relief for 80. Ask for the name and rank of the investigating officer
three months
(provisions, utensils etc).
appointed by the SP [Rule 12(3)] (RTI format). Ask for the
 Restoration of access following details about the investigating officer for five
and services. years (RTI format) – the number of:
(a) Cases investigated.
(b) Cases for which investigation is completed within 60
days [Rule 7(2)].
(c) Cases for which charge–sheet has been filed.
(d) Cases for which charge–sheet has not been filed
(disposed of or closed by the police).
(e) Accused in FIR.
(f) Accused in charge–sheet.
(g) Cases ending in conviction.
(h) Number of accused acquitted (including in the cases
for which there is conviction).
(i) details of cases from the standing committee set up on
the orders of the Supreme Court of India in the State of
Gujarat vs Kishanbhai etc. in which this officer was
involved for the past five years at least.

These are not explicitly mentioned in the Act or Rules, but a

review of the experience [Rule 7(1)], quarterly review of
cases [Rule 7(3)] and role of the investigating officer
[Rule 16(2), Rule 17(1), Rule 17A(1)], would entail this at
the very minimum. If the number of charge–sheets filed is
low, or the number of acquitted is high these are danger
signals. Check the judgements and the reports of the standing
committee to ascertain the cause of the acquittals. If a pattern
of shoddy investigation becomes apparent, then ask for
another investigating officer with better credentials. That is
clear under Rule 7(1). The lapses will be recorded in the
January and July review reports [Rule 14(2)] (RTI format),
and the reports of the standing committee (RTI format).
81. If the charge–sheet is not filed within 60 days of the FIR
being registered, ask for the report filed under Rule 7(2A)
which will have reasons for the delay. If the Rule 7(2A)
4
report has not been filed, immediately ask for prosecution
It is the duty of the
of the investigating officer for dereliction of duty under judge of the special
Section 4 for violation of Section 4(2)(e). court to provide
protection, travel
82. After the SdVMC, DVMC, and SVMC meetings ask for allowance and
copies of the briefing notes and minutes (RTI format). maintenance expenses,
relief, socioeconomic
83. If there is reasonable concern that the investigation could be rehabilitation, and
relocation during
compromised for any reason (is not impartial or dilutes the inquiry, investigation,
case by not recording the right sections, weak or irrelevant and trial [Section 15A(6)]
charges, or some of the accused are not mentioned) petition at the appropriate time
as required. Bring any
the magistrate at the district court for a judicial inquiry or lapses to the attention
petition the high court to request a CBI inquiry (format). of the judge of the
special court.
84. Providing protection is a duty of the state [Section 15A(1)]
and the protection provided has to be periodically reported
to, and reviewed by, the special court [Section 15A(7)]. It is
good practice to request protection (format), since one of
the frequent reasons for acquittal is victim/ witness ‘turn
hostile’. They ‘turn hostile’ because they are threatened.
They are threatened because they are inadequately
protected by the state (meaning the police, specifically the
investigating officer). Requesting protection – which the
state is bound to provide under Section 15A(11)(h) –
should be a norm repeated frequently at every stage of the
administration of justice, so that the authorities are kept
aware of the threats and can be held accountable.

85. The officer directly responsible for protection is the

investigating officer. If a victim or witness turns hostile, file
a case of dereliction of duty against the investigating officer
(and senior officers as well, if you have informed them in
writing) for not providing adequate protection.
Trial
Procedure
86. Once the charge–sheet is filed, the case is handed over to the
courts. At that point the government assigns a special
public prosecutor (SPP) to the case. (If we have our own
lawyer with the requisite experience, and have informed
the district magistrate, then this step will not be necessary).
87. The cases should be disposed of within two months as far as
possible [Section 14(2)]. Proceedings should be conducted
daily until all witnesses in attendance have been examined
[Section 14(2)]. There should be no unnecessary
If a pattern of shoddy
investigation becomes
adjournments. Reasons for any adjournment beyond the
apparent, then ask for following day must be recorded in writing by the judge of
another investigating the special court [Section 14(3)].
officer with better
credentials. That is clear 88. It is the duty of the special public prosecutor to give
under Rule 7(1). adequate briefing on the case and preparation for
trial including cross questioning to the victims,
witnesses, associated individuals and organisations
89. It is the responsibility of the DMs, SPs, and commissioners
to protect the witnesses from intimidation and harassment
[Section 15A(11)(h), SCP]. If they face any such
harassment, a complaint can be made before the special
court which will pass appropriate orders for their
protection [Section 15A(8)] (format).
90. Victims and their dependents have a right to be heard in
respect of bail, discharge, release, parole, conviction, or
sentence of an accused [Section 15A(5)]. Notice for such
hearings must be given to them well in advance.

91. Ensure that the allowances are paid to the victims,
dependents, witnesses, and attendants [Rule 11]
immediately or within three days [Rule 11(6)].
92. They are entitled to and fro rail fare by second class in
express / mail/ passenger train or actual bus or taxi fare

from his / her place of residence or place of stay to the place

of investigation or hearing of trial [Rule 11(1)]. The district
magistrate or any other executive magistrate shall make
arrangements for the same in an equivalent mode of
transport [Rule 11(2)].
93. The victims, dependents, witnesses, and attendants are
entitled to daily maintenance allowance, diet allowance etc
for the days away from place of residence during trial
[Rule 11(4)]. Victims, witnesses, and dependents being a
woman, minor, over 60 years of age or over 40% disability
have the right to an attendant of their choice. The attendant
is entitled to the same allowances [Rule 11(3)].
94. If it is not done already, make sure that the relief due at the
end of trial or conviction stages are included in the monthly
monetary proposals sent by the district administration to 4
the nodal officer (RTI format). Monitor when it is
sanctioned (format). Ensure it reaches the victims and If a victim or witness
turns hostile, file a case
dependents immediately after it reaches the district
of dereliction of duty
administration. against the
investigating officer
Atrocity case tracking (and senior officers as
95. Ensure that the case is discussed at the quarterly SdVMC well, if you have
informed them in
[Rule 17A(2)] and DVMC [Rule 17(3)] meetings by writing) for not
sending a letter to the subdivisional and district social providing adequate
welfare officer, the member–secretary, asking for the case protection.
to be discussed (format). After the meeting ask for a copy of
the briefing notes and minutes (RTI format).
96. Similarly, ask for the case to be discussed at the January and
July SVMC meeting [Rule 16(2)] by sending a letter
(format) to the Principal Secretary (Social Welfare) who is
the convenor of the SVMC. Ask for a copy of the briefing
notes (including the performance appriasals and the action
taken reports of the previous meeting) and the meeting
minutes (RTI format) after the meeting.
97. Your letter should contain the facts of the case up to this
point, detailing the lapses. Include the names of the officials
involved. If the SPP’s record or performance is found to be
unsatisfactory (high number of acquittals), ask for that to be
specifically noted at the SdVMC, DVMC, and SVMC
meetings. Give them the statistics that you got using RTI.

Additional tracking
98. Ensure that all proceedings under this Act are video
recorded [Section 15A(10)].
99. If you are providing support for any case (new or old)
always insist that the victim has a private advocate of
choice, paid for by the state (format) right from the
complaint stage. That is their right under Rule 4(5). This
advocate will be paid higher than the panel advocates
[Rule 4(6)], who are paid more than the SPPs. There will be
reluctance by the state. Use the steps below to get the
performance of the SPPs and panel advocates to bolster
your case to have an advocate of choice.
100. Not all SPPs are equal. We will need to evaluate them based
on their track record, which will have a paper trail at least
seven years long [Rule 4(1)]. For every SPP and panel
advocate, ask for number of (RTI format) [Rule 4(2)]:
Victims and their
(a) Cases argued.
dependents have a right (b) Cases ending in conviction.
to be heard in respect of (c) Accused in charge–sheet.
bail, discharge, release, (d) Accused who are acquitted (including in the cases for
parole, conviction, or
sentence of an accused
which there is conviction).
[Section 15A(5)]. Notice (e) Reports of the standing committee set up on the orders
for such hearings must of the Supreme Court of India in the State of Gujarat vs
be given to them well in Kishanbhai etc. regarding cases in which this SPP was
advance.
involved in, at least for the previous five years.
The report submitted to the state government on the
performance of the SPPs in January and July [Rule 4(2)],
will (should) contain this information. The lapses will be
mentioned in the January and July review reports
[Rule 14(2)] (RTI format) and in the reports of the standing
committee (RTI format). If the performance of the SPP or
panel advocate is unsatisfactory, ask for a senior advocate
of choice at the expense of the state, which is a right of the
victims and survivors [Rule 4(5)].
101. For every judge hearing cases under this Act (whether
designated special court or exclusive special court) review
the number of:
(a) Cases listed.
(b) Cases heard.
(c) Cases ending in conviction.
(d) Accused in charge–sheet.
(e) Accused who are acquitted (including in the cases for

This is not explicitly mentioned in the Act, but a review of the

role of the judge [Rule 16(2), Rule 17(1), Rule 17A(1)]
would entail this at the very minimum. This review has to be
done by getting information from the court registry using
RTI (RTI format), some judges have a 100% acquittal rate,
and they need to be removed from the special courts. Some of
this information can be taken from the annual report of the
state crime records bureau, by consolidating and analysing
the district crime data for the Act.
102. Track both the number of cases ending in conviction and
the number of accused convicted since even in the cases
ending in conviction 9 out of 10 accused may be acquitted
(i.e. 90% acquittal) for the (a) investigating officer (b) SPP
and (c) judge. Reports of the standing committee will help
in this (RTI format), though some more research will be
required.
4
103. Ensure that the spot visit reports of the DSP [Rule 6(2)], SP If you are providing
support for any case
[Rule 12(1)] and DM [Rule 12(7)], SdVMC minutes
(new or old) always
[Rule 17A(4)], DVMC minutes [Rule 17(3)], and the SVMC insist that the victim
minutes [Rule 16(2)], are introduced as evidence, as also the has a private advocate
medical reports and other material evidence (in some cases of choice, paid for by
the state right from the
even the post–mortem report has not been introduced as complaint stage.
evidence). Work closely with the SPP to do so.
104. If the trial is not conducted on a daily basis, the judge will
record in writing the reasons for the longer adjournments.
Get copies of the reasons. Analyse them and, if required,
make the analysis available to the nodal officer, DOP, the
chief justice of the state, and the vigilance and monitoring
committees, with a request to take action as required. Let
them know that delay means that the relief is also being
delayed (format).
105. Collect interim orders and take a review of the case
proceedings (RTI format) which will be handy to gauge the
development over each case.
106. If the victims or witnesses turn hostile, file cases against the
investigating officer and the DM for dereliction of duty
(format) since it is likely that they were coerced into
withdrawing the case, indicating insufficient protection, or
because they were not rehabilitated in time – both of which
are the duties of the state [Section 15A].

107. If the allowances are not paid within three days at the latest
[Rule 11(6)] or if there are any pending, lodge a complaint
with the judge at the next hearing. Ask for the amount to be
paid before the court ends hearing on that day, and for
specific action to be taken against the district /executive
magistrate under Section 4 for not doing their duty under
this Act. Give it as a written submission in court (format). It
is the duty of the court to ensure complete protection, the
travelling and maintenance expenses, the socioeconomic
rehabilitation, and relocation for them [Section 15A(6)].
108. A part of the relief, stipulated in Rule 12(4) and detailed in
Annexure I of the Schedule, will be due at the conclusion of
the trial for some crimes against women irrespective of
conviction, in particular those booked under
Section 3(1)(w) and some under Section 3(2)(va). Ensure
it reaches the victims and dependents.
Ensure that the case is 109. Ensure that those eligible have received the instant
discussed at the monetary relief [Rule 15(1)(a)] due from the Dr Ambedkar
quarterly SdVMC National Relief.
[Rule 17A(2)] and DVMC
[Rule 17(3)] meetings by 110. All the socioeconomic rehabilitation should be completed
sending a letter to the
within three months of the FIR being registered. File RTI
subdivisional and
district social welfare requests and memos to the responsible officers and
officer, the member– competent authorities to ensure that they are on track
secretary, asking for the (format).
case to be discussed.
Judgement
Procedure
111. The judgement is delivered by the special court at the
conclusion of the trial. The cases under this Act should be
disposed of within two months as far as possible
[Section 14(2)].
112. Victims and their dependents have a right to be heard in
respect of bail, discharge, release, parole, conviction, or
sentence of an accused [Section 15A(5)]. Notice for such
hearings must be given to them well in advance.
113. If the case ends in conviction, the victims are entitled to a
part of the relief stipulated in Rule 12(4) and detailed in the
Schedule Annexure I.

114. Ensure that the travel allowance, daily maintenance
allowance, and diet allowance for the days away from place

of residence during hearing of trial are paid to the victims,

dependents, witnesses, and attendants immediately or
within three days [Rule 11(6)].
115. They are entitled to taxi fare from place of stay to court for
hearing and trial [Rule 11(1)]. The district magistrate or
executive magistrate will arrange for the same in an
equivalent mode of transport [Rule 11(2)].
116. Victims, witnesses, and dependents being a woman, minor,
persons over 60 years of age or over 40% disability have
the right to an attendant of their choice. The attendant is
entitled to the same allowances [Rule 11(3)].
117. Some part of the relief will be due at conviction. Ensure
it reaches the victims and dependents. [Rule 12(4)
Schedule Annexure I].
118. Socioeconomic rehabilitation – emergency relief for three
4
months, a pension, a government job, agricultural land If the allowances are not
sufficient for a life with dignity, a house, and enrolment of paid within three days at
children in residential schools within three months of the the latest [Rule 11(6)] or
if there are any pending,
FIR being filed, should be complete by now. If not, bring it lodge a complaint with
to the notice of the judge in court, with a request for court the judge at the next
monitored, timebound implementation and fulfilment, so hearing.
that the judge can order it to be done and will monitor

compliance [Section 15A(7), Rule 12(7)] (format).
[Rule 12(4) Schedule Annexure I #46].
119. The relief due at the FIR and charge–sheet stages should
have been paid by now. The remaining part should be paid
immediately, or within seven days, especially if we had
reminded them earlier. Monitor when it is sanctioned
(format). Ensure it reaches the victims and dependents
immediately after it reaches the district administration.

120. The monthly report [Rule 4(4)], the protection cell, nodal
officer, director of prosecutions, special officers, and the
vigilance and monitoring committees at the subdivisional,
district, and state levels should be keenly monitoring the
cases at this stage since all their credibility is at stake in case
of an acquittal or adverse judicial comments.
Additional tracking

122. Get a copy of the judgement. If acquitted, check if the state

plans for appeal (RTI format). If not, request an appeal
(format). Appeals need to be made within 90 days of
the order (180 days at the discretion of the judge)
[Section 14A(3)] and be disposed of within three months of
admission of appeal [Section 14A(4)]. Be even more
particular about the choice of advocates at this stage.
Choose the best possible [Rule 4(5)].
123. If the judgement mentions anything adverse about any
official, immediately send copies of the judgement with a
covering note on who the official is and what the court has
said about them on to (a) district collector (b) district social
welfare officer (c) The scheduled castes and the scheduled
tribes protection cell (d) state nodal officer (e) director of
prosecutions (f) principal secretary (Home) asking them to
take action against the particular officer(s) under Section 4
(format).
All the socioeconomic
rehabilitation should be
124. Get the report of the standing committee (RTI format) and
completed within three
months of the FIR being disseminate it to the same officials with the request to
registered. Bring any ensure that the investigating officer or the SPP be barred
delays to the attention from future cases due to the lapses identified in this one.
of the special court,
reminding her that she 125. Ask for continuing protection if required (format).
is responsible to provide
protection,
reimbursements, relief,
Appeal
rehabilitation, and Procedure
relocation to the victims
126. Those convicted will appeal against conviction. Appeals
u/s 15A(6).
against the judgement of the special court are made before
the high court within 90 days [Rule 14A(3)] or 180 days at
the discretion of the judge. Both issues of fact and law can
be appealed.
127. Appeals against acquittal can be made either by the
government or the victims, their dependents, or family. They
have an independent right to appeal against an order passed
by the special court acquitting the accused or convicting
them for lesser offences (Section 372 of CrPC; Mallikarjun
Kodagali vs State of Karnataka & Ors., Criminal Appeal
Nos. 1281–82 of 2018). These appeals should be disposed of
within three months [Section 14A(4)].
Appeal is not limited to just conviction or acquittal. Every
order of the special court is an appealable order. For
example an order allowing or rejecting the bail also is

appealable order. Unlike other offences under IPC, which

are appealable only against judgment of conviction or
acquittal, under this Act, even interim orders can be
appealed, for instance, as in an order to release the property
involved in a crime, or any such orders under any
circumstances.
128. Victims, their dependents, and families have all the rights
under Section 15A in the appellate stage, especially right to
be heard [Section 15A(5)]. Notice for such hearings must
be given to them well in advance.

129. Ensure that the travel, maintenance, and dietary allowances
are paid to the victims, dependents, witnesses, and attendants
[Rule 11] immediately or within three days at the latest
[Rule 11(6)]. 4
130. They are entitled to taxi fare from place of stay to court for The monthly report
hearing and trial [Rule 11(1)]. The district magistrate or [Rule 4(4)], the protection
executive magistrate will arrange for the same in an cell, nodal officer, director
of prosecutions, special
equivalent mode of transport [Rule 11(2)]. officers, and the
vigilance and monitoring
131. Victims, witnesses, and dependents being a woman, minor, committees at the
over 60 years of age or over 40% disability have the right to subdivisional, district,
an attendant of their choice. The attendant is entitled to the and state levels should
be keenly monitoring the
same allowances [Rule 11(3)]. cases at this stage since
all their credibility is at
132. All the relief due should have been paid by now stake in case of an
[Rule 12(4) Schedule Annexure I], if not make sure the acquittal or adverse
entire amount is in the monthly monetary proposals sent judicial comments.
by the district administration to the nodal officer
(RTI format), monitor when it is sanctioned (format), and
ensure it reaches the victims and dependents immediately
after it reaches the district administration. Bring all
lapses and delays to the notice of the judge of the special
court (format).
133. Socioeconomic rehabilitation – emergency relief for three
months, a pension, a government job, agricultural land
sufficient for a life with dignity, a house, and enrolment of
children in schools, with a deadline of three months of the
FIR being filed, should be complete by now [Rule 12(4)
Schedule Annexure I #46]. If not, bring it to the notice of the
judge in court, with a request for court monitored, timebound
implementation and fulfilment, so that the judge can order it

to be done and will monitor compliance [Section 15A(7),

Rule 12(7)] (format).

134. Given that very few cases are actually appealed in superior
courts by the government, the very fact that one has come
up for appeal will draw the attention at the highest levels of
the administration and police, in addition to the director of
prosecutions. Rest assured that they will be monitoring it.
135. Even so, it is best to inform the nodal officer, protection
cell, the DOP and the vigilance and monitoring committees
at all levels.
Additional tracking
137. If you have not chosen your own advocate, now is the time.
Get the report of the
standing committee Choose the best possible [Rule 4(5)].
and disseminate it to
the same officials with
138. If the judgement mentioned anything adverse about any
the request to ensure official, make that a part of the appeal, as also the report of
that the investigating the standing committee.
officer or the SPP be
barred from future cases 139. Ask for continuing the protection if required.
due to the lapses
identified in this one.
Jail and release
Procedure
140. Given that caste–based crimes have high emotional
investment, it is important that the convicts are kept behind
bars until they, their families, or their castes cannot cause
additional harm to the victims, witnesses, their dependents,
and their families, individually or collectively.
141. Even after decades of incarceration, it is likely that the
tendency for revenge remains high (by the convicts and
their castes), and the chances of retaliation due to the
imbibed sense of privilege (‘how dare they complain and
put me in jail, I will show them the power of my caste’) are
real. Jail is thus a period of healing justice – for corrections,
for passions to cool, lives to be rebuilt, and to ensure
security for the whole community.
142. Release can be temporary (parole) or permanent – due to
reduction of sentence (remission or reduction due to ‘good
behaviour’), pardon, or on completing the sentence.

143. During the sentence, convicts can be released on parole

to attend family functions and rituals and on other
specified grounds.
144. The victims, witnesses, concerned organisations, and
individuals have the right to be heard before any parole or
remission of sentence and be given a chance to challenge it
[Section 15A(5)].

145. The victims, witnesses, their families, dependents, and
their attendants are entitled to the same allowances at the
same rates and conditions to attend the hearings.

146. The village (atrocity spot) is kept on a watchlist by the
police as an ‘identified area’ (in popular parlance ‘atrocity 4
prone area’). Different states use different methodologies.
Check the method in your state (RTI format) and ensure Victims, witnesses, and
that the particular spot is included (format). dependents being a
woman, minor, over 60
147. The convict is monitored within the jail, and ‘good years of age or over 40%
disability have the right
behaviour’ informs decisions regarding parole and to an attendant of their
remission. Though it is time consuming and requires choice. The attendant is
stamina, especially for long sentences, it is worthwhile to entitled to the same
allowances [Rule 11(3)].
monitor the reports of the prison officials.
Additional tracking
148. Keep track of the appeals against conviction, parole, and
whenever the convicts are allowed out of jail. It is the right
of victims, witnesses, dependents, families, and associated
individuals and organisations to get this information
[Section 15A(5)].
149. If the convicts commit another crime, ensure that the previous
crime(s) under this Act are a part of the complaint FIR,
evidence, and sentencing for that as well (which means that
the punishment and incarceration will be longer).
150. Maintain vigilance right through the sentence, and for a
period after release too, to ensure that the survivors are safe.

Annexure 4.1: Checklist for inquiry, inspection, and investigation
Checklist for inquiry, inspection, and investigation

This checklist will be useful to conduct an impartial and
thorough probe during inquiry, inspection, investigation,
collection of evidence, and preparation of the charge–sheet.
Information (FIR stage)

1. It is the duty of the investigating officer to protect the
innocent, and arresting and charge–sheeting the innocent
(accused in this case or victim in a ‘counter’ case) is a
serious misconduct.
2. There would be a time lag between information, inquiry,
inspection, investigation, arrest, preparation of
memorandum after interrogation, issuing notice for the
presence of witnesses, presence of witnesses in the police
station, accompanying the witnesses to the incident
spot/other places for investigation, and making the seizure.
However, prolonged delays are not appreciated by the
The statement of the court. If the court feels that the time lag is unusual then
accused should be taken
and the facts stated by him
there will be distrust in the proceedings.
should be verified. If he has 3. Has the FIR been sent to the concerned court on time?
been arrested, then in his
bail application has the
Arrest and bail
defence studied whether the
falsity of the arguments, 4. Although there is no provision for anticipatory bail
facts, and defence points [Section 18, 18A of the Act], the latest legal position and
were verified by the status of the case should be kept in mind. Therefore, before
investigating officer?
anticipatory bail for the accused can be considered, the
following need to be addressed: has the FIR been filed,
have all the elements related to the crime been included in
the investigation, has the investigation been completed,
and has the evidence been collected? Simply by writing the
section in the FIR, Section 18 of the Act will not be
implemented. The caste of the accused and the victims
should also be included. Community certificates should be
obtained. Only the SDM can issue caste certificates. They
should be kept in the evidence list.
5. The statement of the accused should be taken and the facts
stated by him should be verified. If he has been arrested,
then in his bail application has the defence studied whether
the falsity of the arguments, facts, and defence points were
verified by the investigating officer?
6. Ensure compliance with the mandatory provisions of the
CrPC regarding the arrest of the female accused.

Inquiry
7. Has the deputy superintendent of police (DSP) or
subdivisional magistrate (SDM) visited the spot for an
inquiry and filed a report under Rule 6 of the Scheduled
Castes and the Scheduled Tribes (Prevention of Atrocities)
Act, 1989 (POA, ‘the Act’)?
8. It should be examined which actions come under the
Indian Penal Code, 1860 (IPC), which violate the
Atrocities) Act, 1989 and which come under both. The
DSP should take all the proceedings into consideration to
prove that the offense comes under the ambit of the Act,
and that invoking the Act is justified.
Inspection
9. On getting the confirmation report under Rule 6, have both 4
the superintendent of police (SP) and the district
magistrate (DM) conducted the spot inspection and filed a Has the deputy
superintendent of police
report under Rule 12(7) of the Act?
(DSP) or subdivisional
10. After the spot inspection, has an investigating officer (IO) magistrate (SDM)
of not less that DSP rank been appointed by the SP or not visited the spot for an
inquiry and filed a
[Rule 12(3)]? Has the investigation been done by an officer report under Rule 6
of DSP rank or higher with previous experience and a good of the Act?
track record [Rule 7(1)]?
11. Was the order issued by the SP appointing an investigating
officer under the Scheduled Castes and the Scheduled
Tribes (Prevention of Atrocities) Rule 7, received?
Investigation
12. Are the sections invoked in the case correct? Was it
confirmed by the SP on spot inspection [Rule 12(2)]?
13. Section 3(1)(r) and 3(1)(s): In cases where the Act is
invoked, (a) intention of the accused (mens rea) (b) the
incident taking place in a publicly visible place, (c) the
knowledge of the accused about the complainant being
from a scheduled community, (d) the intention to insult (e)
the incident being done intentionally. If there is no
evidence to prove all five points, then the case that an
atrocity that falls under Section(1)(r) or 3(1)(s) has been
committed is not made.
14. If the FIR has been registered under sections of the IPC and
later, during the investigation, sections of the Scheduled
Castes and the Scheduled Tribes (Prevention of Atrocities)
POA Handbook for Justice - 2024 Monitoring a case 181
Act, 1989 have been included, write down clearly the

reasons for inclusion of the same and collect evidence. If the
FIR does not identify and record an offense under a section
of the Act and later if it is found that a crime under the Act is
committed on the basis of a statement, then there should be
more reliable evidence for it. An impression should not be
given that Section 3(1)(r) or 3(1)(s) has been extended
merely on the basis of caste to make bailable offenses
non–bailable. (Satvir Singh vs State of Delhi through CBI,
Criminal Appeal 920 of 2011 and Daya Bhatnagar and
others vs State of Delhi, 2004, Delhi High Court).
Witness statements
15. Have the statements of all the witnesses mentioned in the
FIR been taken? The complainant should be interrogated
in detail and the FIR should not be copied exactly as it is.
16. Have all the witnesses under Section 160 of the CrPC been
If the FIR has been
called or not for recording their statement? Have all the
registered under sections of independent witnesses present at the scene of the incident
the IPC and later, during the and those having knowledge of the incident been
investigation, sections of the
interrogated?
Act, have been included,
write down clearly the 17. In the statements of all the witnesses, have their names, full
reasons for inclusion of the addresses, mobile numbers etc. been recorded?
same and collect evidence.
18. Have signatures of two independent witnesses been taken
on the bond papers?
19. In case the accused has a previous criminal record,
conviction etc., were copies of the records obtained?
Identification
20. If the identification of the accused is to be done, has it been
mentioned in the case diary and other documents about
keeping him under wraps after the arrest? He should not be
exposed even while presenting him in the court.
21. Has the jail superintendent been informed about the
accused being sent from jail on police custody to the
Honourable Court before the Honourable Court?
22. Before identification, has it been ensured that the photo of
the accused has not been published or circulated in the
media or any other medium?
Confessions and statements

23. According to the circumstances of the case, where
statements are to be made under Section 164 of the CrPC,
have copies of the confession and other related papers been
obtained by the court and included in the evidence? The

magistrate who recorded the statement should be produced
as a witness. Generally, the statement of Section 164 of the
CrPC should be made only in extremely exceptional cases
because the importance of the statement of Section 164 of
the CrPC is in no way greater than the statement under
Section 161 of the CrPC.
24. Since the statements under Section 161 of the CrPC are
always before the statements under Section 164 of the
CrPC, hence, being ‘first in time’, the statements under
Section 161 of the CrPC have more credibility. Moreover,
the statement under Section 161 of the CrPC is written
after questioning and is more thorough. The second
examination of the witness – the court statement – is as per
the statement of the witness, without interrogation.
Therefore, there is a possibility of it being incomplete. 4
25. If the reason for the incident is past enmity, then have the
According to the
details of previous reports and actions taken on them been circumstances of the
included in the case diary? The fact that the false report has case, where statements
not been made due to prior enmity should also be are to be made under
established in the investigation. Section 164 of the
CrPC, have copies of the
Absconding accused confession and other
related papers been
26. If the accused is absconding, was absconding panchnama obtained by the court
prepared on every search? In this regard, follow the and included in the
provisions of Police Regulation PR 789 (MP Police evidence?
Regulations). The accused/criminal should be declared
absconding only when adequate investigation has been
done and prima facie prosecutable evidence is available. If,
even after receiving the notice under Section 41–A, the
accused does not appear on his own initiative, he can be
arrested. As soon as the panchnama of absconding is made,
a warrant should be sought from the court under Section 73
of the CrPC. If the warrant under Section 73 of the CrPC
remains unserved, an application should be filed to declare
him absconding under Section 82 of the CrPC.
27. Was information about the movable and immovable
property of the abs conding accus ed obtained
immediately?
28. In case of the accused absconding, have proper steps
proclaiming Section 82 of the CrPC been taken? Even after
the proclamation of Section 82 of the CrPC, if the accused
does not appear within the prescribed period, the police

should request separate proceedings under Section 174–A

of the IPC / 207 of the BNS against the accused and write to
the competent court under Section 195 of the CrPC to take
cognizance.
29. If a charge–sheet is to be filed against a proclaimed
offender (ferrari), has permission been obtained from the
Superintendent of Police by taking action under Police
Regulation Para 789–790 (M.P. Police Regulations), in
this regard? Along with presenting the charge–sheet
against the absconding accused, an application under
Section 299 of the CrPC should be filed in the court. There
is a provision in this that the court can record prosecution
evidence against the accused only in his absence. If the
accused does not appear in the court and even after
presenting the charge–sheet, the court is not taking
cognizance or starting the trial, then the charge–sheet
becomes useless as soon as it is presented. Therefore, by
If the accused does not filing an application, the work of recording the testimony
appear in the court and in the absence of the accused should be started.
even after presenting the
charge–sheet, the court is
Time and place
not taking cognizance or
starting the trial, then the 30. Has the investigating officer prepared the map(s) of the
charge–sheet becomes place(s) of occurrence(s)?
useless as soon as it is
presented. Therefore, by
31. If the incident took place after sunset, then has this fact
filing an application, the been established in the investigation as to which source of
work of recording the light the complainant or witnesses saw the incident and
testimony in the absence of
whether the accused were identified?
the accused should be
started. 32. If the source of light is a streetlight or a bulb burning
outside the house, has it been marked on the map?
33. After taking the statements of all the witnesses, compare
them with the Naksha Mauka and see if there is any fact in
the statements of the witnesses that would help in
confirming the details of the Naksha Mauka. If yes, then
see whether the details are available on the map or not and
if not, whether its position is clear?
Evidence recovery and weapons seizure

34. If any weapon was recovered from the accused at the time of
arrest, was it mentioned in the arrest memorandum / memo?
If a section of the Arms Act has already been imposed, were
the relevant sections added during the arrest itself?
35. Does the [arrest, recovery…] memo record that during the
seizure photographs of the investigating officer, accused,
and witnesses were taken at the place of seizure?
36. Whether the item to be seized was photographed at the

same place? During the seizure, were photographs of the
sealing proceedings taken at the spot itself?
37. Were all these photographs included in the case diary?
Have all the photographs of the incident spot been included
in the evidence? Was the certificate under Section 65–B
Indian Evidence Act included? (It is mandatory for the
certificate in support of any electronic documentary
evidence to be included in the file).
38. Is the photographer’s statement documented? In this
statement, the make, model, and serial number of his
camera, and whether it is digital/photo reel etc. should be
clearly described.
39. Has the action of each accused been made clear in the
investigation, including which injured person was injured
by which accused and with which weapon? Has evidence
4
of this been collected? Have all the
40. Where sections of Arms Act or explosives etc. are also photographs of the
incident spot been
involved in the case, was prosecution approval obtained included in the
from the District Magistrate /District Collector in relation evidence? Was the
to the seized articles? certificate under
Section 65–B Indian
41. If firearms were recovered, did the armorer test them? Evidence Act included?
Were they in working condition? It is mandatory for the
certificate in support of
Mobile call details any electronic
documentary evidence
42. Where necessary, was the call detail record (CDR) of the
to be included in the file.
accused’s mobile obtained and analysed? Take call
details from the cyber cell. Include the cyber cell officer's
name and address in the prescribed proforma certificate
in the case diary. Was the certificate included under
Section 65–B Indian Evidence Act? (It is mandatory to
include the said certificate in support of any electronic
documentary evidence in the file). Appropriate documents
should be attached to the charge–sheet.
43. If mobile call details are important evidence in the case, then
has its analysis been done? Was the report prepared and
included in the diary? What to prove in CDR? What ‘will be
proved’ and ‘by whom’ should be clearly mentioned in the
case diary and charge–sheet. The state police circular will be
useful in this matter, follow it. Is the certificate included
under Section 65–B Indian Evidence Act? This certificate in
support of any electronic documentary evidence is
mandatory to be included in the file.
Specific cases
44. Section 3(1)(a): Obnoxious substance. In cases of offences
under Section 3(1)(a), the record regarding whether the
disputed place is in the ownership or premises of the victim
or not, at the place where it is alleged that the obnoxious
substance was put with the intention of annoying been
received? In such cases of pouring obnoxious substances
on the common path in front of the house, the evidence
should be of very high standard.
45. In such cases, was the fact revealed (or not) in the
investigation that the said garbage or other obnoxious
substances were not thrown there naturally by other people
of the locality but were thrown there deliberately by the
accused with the intention of causing harm or upsetting?
46. Section 3(1)(f) and Section 3(1)(g): Have leases provided
by the government, documents related to land ownership
(loan book, Khasra B–1) etc., been received? Only having a
If mobile call details are
important evidence in the
name in the records or having an allotment is not enough. It
case, then has its analysis is also necessary to have actual possession of the spot. If
been done? Was the report there is any civil dispute going on regarding the possession,
prepared and included in
then its records should also be collected in the investigation.
the diary? What to prove
in CDR? What ‘will be If the complainant did not have possession before the
proved’ and ‘by whom’ allotment of the lease and there was a dispute over the
should be clearly possession along with the allotment of the lease, then it
mentioned in the case
should be seen when the revenue authorities took possession.
diary and charge–sheet.
Was possession taken on ground or was it only on paper?
For Section 3(1)(f) and Section 3(1)(g), the complainant
will have to prove actual possession of the spot.
47. In such cases, the site inspection report and statements
from the patwari and revenue officers should be taken after
obtaining the report of possession. Those who did the site
inspection should be called as witnesses.
48. If the revenue officers have taken possession and the
accused has retaken possession, which continues for one or
two crops and then a dispute is reported again, the date of
commencement of the offense should be fixed from the
date of first eviction, not from the date of complaint. In
such a situation, the reason for delay in reporting should
also be explained
49. If the land was forcibly ploughed by the accused with a
tractor or cattle, was the ownership of the tractor or cattle
determined and confiscated?

50. In land related disputes, was the panchnama of the spot

prepared and statements of independent witnesses taken?
If help of laborers was taken for ploughing or harvesting,
were their statements recorded?
51. If the crime has been established on the basis of the written
report given by the victim, has the statement of the writer
been taken? MP Police Regulation Para 711 should also be
followed in this matter.
Kidnap
52. For offence under sections 303 or 366 of the IPC / 102 or 106
of the BNS and Section 3(2)(v) of the Act, have all the facts
mentioned in the statement recorded by the kidnapped
person after his recovery been verified? If, in the past, a
missing person has been registered on the complaint of
parents/guardians, then it should be verified if there is any
contradiction between the facts in the complaint and the facts
4
found in the investigation after the crime is established. Have If the crime has been
proper steps for interrogation been taken? established on the basis
of the written report
53. If the kidnapping took place in a public place and the given by the victim, has
hostage was taken away by public transport or any other the statement of the
vehicle, was the circumstances of the kidnapped hostage writer been taken? MP
not being able to tell others about the incident clearly Police Regulation Para
711 should also be
disclosed in the statement or case diary? followed in this matter.
Case diary
54. In some situations, the informant reports to the nearest
police station, instead of to the jurisdictional police station.
The reason for this should be clarified by interrogating the
complainant. Has the clarification been got from the
informant, and were the circumstances disclosed in the
case diary?
55. Have all the acknowledgments of the notice been included
in the case diary? Have particulars of the police staff who
serve the witness, been mentioned in the case diary? Has a
copy of the gazette notification or list showing the
scheduled caste or tribe of the complainant been included
in the case diary?
56. In case a suicide note is recovered, include the handwriting
expert’s test report in the diary.
57. Has the acknowledgment of sending the seizure
information to the concerned court been included in the
diary?

58. Has the court’s acknowledgment receipt for the FIR been
included in the diary?
59. For the arrest of the accused in cases under Section 3(1) of
the Act, as per the provisions of Section 41 of the CrPC
Amendment Acts 2008 and 2010, have the reasons for
arrest been clearly mentioned in the case diary?
60. To arrest the accused, was his house searched? Was the
accused at home or not? During this time, was it searched
for blood, dirty clothes, documentary evidence etc? If
found locked, was it clearly mentioned in the diary?
61. Has information of the arrest of the accused been given and
has the acknowledgment been recorded in the case diary?
62. If the DNA is being collected, is it clearly mentioned in the
form and diary? Is the query for the desired opinion a clear
text? If the query is wrong or incomplete/unclear then the
answer will also be wrong.
Have all the
63. Was the time of the proceedings recorded in the case diary?
acknowledgments of the
notice been included in the On whose orders, when, and where was the diary received
case diary? Have particulars for analysis, and whether each document attached to the
of the police staff who serve diary was studied?
the witness, been mentioned
in the case diary? Has a copy 64. If the statements and other documents are not written by
of the gazette notification the investigating officer in his own handwriting but have
or list showing the SC or ST
of the complainant been
been transcribed by a subordinate, then has the name and
included in the case diary? signature of the scribe been marked on the document and
the reasons been recorded in the case diary? In the case of
typing, the name of the typist should be mentioned. These
should also be kept on the witness list.
Medical
65. After arresting the accused, it is mandatory to conduct
MLC examination. Was the doctor instructed to preserve
injuries, scratches, and other physical evidence on the
body, clothes, body fluids etc.?
66. After reviewing the medico–legal case (MLC) report of the
injured, whether X–ray or other required test has been
completed by the specialist to whom he has been referred?
67. If not, has the clear reason for this been mentioned in the
case diary?
68. Do the findings of the medical report and the investigation
match with the FIR and the statements, type of injuries,
weapon, and distance of the injured/accused, direction and

angle of fire etc.? Does the period of injuries match the

time of the incident?
69. In case of contradictory MLC evidence, were law /
prosecution officers (SPP) consulted?
70. Have the documents been signed?
71. Was the doctor queried regarding the nature of the injuries
regarding the seized weapon, and whether the injuries were
made by the seized weapon? If a query has been made, has
the opinion been obtained and included in the diary?
72. Has the doctor doing MLC confirmed that the injuries were
caused due to assault only and it is not possible due to fall?
73. Ask the doctor whether he has made any inquiry about the
victim and mentioned it on the treatment prescription or
MLC form. If not, why not? If he has written it, make him
clarify whether he has done so only to determine the
4
direction of treatment.
Do the findings of the
74. Have the injured persons’ X–ray report, X–ray plates, CT medical report and the
scan report, MRI report, USG report, bed head ticket, investigation match
with the FIR and the
discharge ticket etc. been obtained? Through their
statements, type of
examination, are the injuries and weapons mentioned in injuries, weapon, and
the FIR and are the statements matching? distance of the
injured/accused,
75. If the injured has been sent by the police to the government direction and angle of
hospital for MLC, then a copy of the journal diary and the fire etc.? Does the
record of the hospital should be obtained. period of injuries match
the time of the incident?
76. If the statements of the injured and witnesses have been
taken by the police (in the police station, police post, or
hospital or any other place), have the statements of all been
included in the case diary? If statements etc. have been
taken before the FIR has been registered or before the
crime has been established, then these should be treated as
MLC investigation.
Dying declaration
77. Has the injured been declared dying? If yes, has the dying
declaration, the complaint, and acknowledgment been sent
to the executive magistrate and have been put in the case
diary? If the dying declaration is not required, then its
justification/reason should be written in the diary.
78. Before recording the dying declaration, the executive
magistrate, tehsildar, or naib tehsildar should obtain a
certificate from the doctor that the patient is in a position to
give a statement. After the statement, it should be written
down by the doctor that the patient was in a position to give

the statement, was understanding the questions, and
answering naturally.
79. If the answer was given by gestures, record the gestures
made. (Note that Section 15A(10) of the Act, and the
police manuals of several states, require that all
proceedings under this Act be video recorded).
Rape
80. The interrogation of female victims should be done only by
a female police officer, with empathy and trust. If a female
DSP is not available, the investigating officer should
always have a woman police officer (of the highest rank
possible) present during the investigation.
81. Section 376 of the IPC / 64 of the BNS and Section 3(1)(w) of
the Act: If a woman has been beaten and raped in a field or a
bushy place then the victim will have to undergo medical
Before recording the dying examination regarding abrasions and other injuries on her
declaration, the executive back. Has it been done? MLC should be done for injuries on
magistrate, tehsildar, or
naib tehsildar should obtain
the back of the victim's body. If there are no injuries, then this
a certificate from the doctor should be disclosed in the statement.
that the patient is in a
position to give a statement.
82. DNA testing of the woman is done in some cases,
especially when rape is alledged. The sample for DNA
should be taken at the first available opportunity at the time
of the first MLC. According to the provisions of the CrPC,
medical examination of the woman within 24 hours is
mandatory. Before taking a sample for DNA testing, it
should be ensured that there is a possibility of finding male
DNA in the female body. If the woman has taken a bath or
washed or destroyed her clothes or has had sex
subsequently with another, then the chances of finding the
accused man's DNA from her vaginal swab are slim.
83. If the woman has become pregnant as a result of rape, and if
the report is made several months after conception, then
the DNA of the foetus should be taken to determine the
paternity of the child to determine rape. If it is not safe, then
one should wait for the child to be born.
84. Similarly, at the time of arrest of the accused man, the
purpose the man’s DNA being taken should be clear – to
match the male DNA obtained from the woman’s body or
to find the woman’s DNA from the man’s body? If the
accused is not caught immediately, if he has taken a bath,
or changed his clothes, then no trace of female DNA will
be found on him.
85. For a DNA test, only a vaginal swab or male semen is not
necessary. DNA can also be found in blood, bile, phlegm,
hair roots etc. Therefore, in each case it should be seen
what type of samples should be taken.
86. The above circumstances should be reviewed in detail
before considering the accused man innocent on the basis
of a negative DNA test alone. Other evidence should also
be considered.
Drowning
87. In the case of drowning, was the femur seized for diatom
test? If so, was a doctor consulted to preserve it safely and
intactly?
88. If the femur is received in a broken state, it is returned by
the medico legal institute with a note that testing is not
possible. Hence the bone should be kept safely from the 4
time it is seized till it is sent for testing.
Have the seized goods,
Suicide samples, and articles been
89. In the case of suicide, was the suicide note searched and sent to FSL for testing on
seized after carefully inspecting the incident site? time? The seized items
should be sent to FSL at the
90. Was the suicide note sent to FSL for handwriting testing? first available opportunity.
Include the handwriting expert’s test report in the diary. Unnecessary delay affects
the credibility of evidence.
FSL procedures
91. Have the seized goods, samples, and articles been sent to
FSL for testing on time? The seized items should be sent to
FSL at the first available opportunity. Unnecessary delay
affects the credibility of evidence. The protocols to
provide evidence of uninterrupted chain of possession
should be meticulously followed. Is the FSL
acknowledgment slip included in the case diary?
92. Generally, the charge–sheet should not be filed without
receiving the FSL report. Since investigations for crimes
recorded under the Act must be completed and
charge–sheets filed within 60 days of the FIR being
registered [Rule 7(2)], while sending the evidence for
testing, the investigating officer should make it clear that
the FSL should give the report immediately. If, due to
unavoidable circumstances, the charge–sheet must be
presented without the FSL report, then the FSL report
should be submitted to the court and included in the case
record as soon as it is received.

93. Has the blood group of the injured or deceased been

determined? If yes, then has the blood group of the injured
or deceased been matched with the blood group of the
seized weapon and the clothes of the accused?
94. Where DNA testing is required, identification forms are
required. Have the forms been filled in properly? If
samples were taken or sent to the FSL, was the ‘chain of
custody’ of each article/seized material sent for testing
maintained? Was the seal of the seized sample/material
intact from the time of seizure till it was opened in the FSL?
95. Satisfy yourself by studying the FSL report when you
receive it. This caution should be taken in case of every
sample sent to FSL, because in many cases the accused
have got the benefit of doubt and been acquitted since the
seal of the material arriving at FSL did not match the seal at
the time of seizure or was received in a broken condition.
The interrogation of Proof of age

female victims should 96. The birth certificate is the best evidence regarding the age
be done only by a
female police officer,
of the victim. Get it if possible. Has the ossification test
with empathy and trust. report, copies of the school marksheet, and scholar
If a female DSP is not registers been obtained, and statements of the concerned
available, the principal and clerk taken? The age estimated based on the
investigating officer
should always have a ossification test could have a variation of up to two years.
woman police officer (of Similarly, the age estimated based on tooth development is
the highest rank also approximate. Age at the time of admission in school
possible) present during
and date of birth in school records is also often written as an
the investigation.
estimate. Therefore, the statement of parents should be
taken carefully. Marksheet, being secondary evidence, is
acceptable only when primary evidence i.e. admission
register is unavailable. The extract from the admission
register should be displayed and the principal's statement
should be made during trial.
97. Have the facts regarding the age and date of birth of the
victim been mentioned in the statements given by the
parents? Ensure that there is no contradiction in the
statements regarding the age of the victim in the missing
person information, investigation, FIR, or Section 161 of
the CrPC. If so, it should be clarified.
98. All the investigating officers should be conversant with the
Juvenile Justice (Care and Protection of Children) Rule 12
and the Protection of Children from Sexual Offences Act
(POCSO), Rules, 2016 and ensure the benefits of relief and

special provisions available for the protection of children

(both victims and perpetrators) are enforced.
Reconfirmation
99. Under the Act, after the case has been established by the
Deputy Superintendent of Police (DSP) or Subdivisional
Magistrate (SDM) [Rule 6], further investigation must be
done only by an officer of DSP rank or higher [Rule 7(1)].
If statements were taken by any inspector or subordinate,
then while the DSP is taking the statement, have the
contradictions in the previous statements been made clear
to the witness? Has it been clarified or not based on which
evidence the section has been increased or added, whereas
the FIR did not invoke the Act nor include the sections? In
case of contradiction, whether clear disclosure has been
made in the case diary? 4
100. If the statement has been recorded by an officer of rank
below DSP, then has the statement been rerecorded by the Where DNA testing is
DSP? Mere ‘verification’ is not enough. Any action that required, identification
forms are required.
can be taken again should be done again. Regarding what
Have the forms been
cannot be repeated, examine whether it is necessary from filled in properly? If
the evidentiary point of view to prove that the Act can be samples were taken or
invoked for the offense or whether this action will only sent to the FSL, was the
‘chain of custody’ of
prove the offense of the IPC. For example, the seizure of each article/seized
an assault weapon proves only a crime under IPC 323, material sent for testing
324, 325, 307, or 302 and BNS 113, 116, 115, 107, or 101. maintained?
Seizure of the weapon alone does not prove an
offense under Sections 3(1)(r), 3(1)(s), or 3(2)(v) has been
committed. Therefore, even if an inspector has seized the
weapon, the investigating officer should write this in the
case diary/charge–sheet. The defence team should also
draw the prosecutor’s attention to this during arguments
and the prosecution should prove this in the oral argument.
Filing the charge–sheet

101. Was legal opinion regarding all the evidence obtained
from the district prosecution officer or the SPP before
preparing the charge–sheet?
102. In case the accused is detained in jail after his arrest, has the
time limit of 60 days for presentation of the charge–sheet
been kept in mind?
103. If the charge–sheet is filed without community (caste or
tribe) certificates or without the FSL report due to
unavoidable circumstances or ignorance, these documents
should be acquired promptly, a supplementary charge–sheet

for final analysis under Section 173(8) of the CrPC should
be presented, and the documents should be included in the
court record.
104. Has a brief description of the incident, every action taken
during the investigation, and a detailed description of the
evidence found against each accused, been written in the
charge–sheet? Keep in mind that the use of Section 34 of the
IPC and BNS 3 is very limited. It should be made clear that
each accused has committed a separate crime under the Act.
105. Prepare A and B list of witnesses with clear addresses,
mobile numbers etc. of each. Have entries been made in the
charge–sheet? Which witness will give what type of
evidence and which document will prove what? Is it
clearly mentioned?
106. In column number 11 (MP Police Regulations), have the
If statements were taken complete details of the seized goods, when it was sent to
by any inspector or FSL for investigation, etc., been mentioned?
subordinate, then while
the DSP is taking
107. In case sections of Arms Act are invoked, have column
the statement, have number 11–A (MP Police Regulations), along with all the
the contradictions in the documents, FIR acknowledgment receipt, FSL goods
previous statements been
deposit receipt, bond issued under section 170 of the CrPC,
made clear to the witness?
query related to MLC, caste certificate of the complainant
and the accused been acquired and filed?
108. In case of notification related to arms where Section 353 of
the IPC and BNS 130 is invoked, ensure that the
charge–sheet records the evidence regarding discharge of
duty by a public servant during the incident, absconding
panchnama of the accused etc. (These details are often
omitted by mistake while preparing the charge–sheet).
109. Are the certified copies of the previous judgement orders
and previous conviction record of the accused attached
with the charge–sheet?
In court
110. Previous criminal records: In case the accused has been
previously convicted under the Act, has a copy of the
police record been collected and all necessary evidence
brought to the notice of the court for punishment for
subsequent conviction under Section 5 of the Act?
111. At the trial, the seized articles should be presented to the
court and identified by witnesses and investigators.

5 MONITORING AT THE UNION LEVEL
Introduction .............................................................................................................................197
Constitutional bodies to monitor safeguards .............................................................................198
The parliament ......................................................................................................................................198
The Parliamentary Committee on the Welfare of Scheduled Castes and Scheduled Tribes........................199
National Commission for Scheduled Castes ...........................................................................................199
National Commission for Scheduled Tribes ............................................................................................199
National human rights institutions ..........................................................................................................200
Committee for effective coordination......................................................................................................201
Monitoring...............................................................................................................................202
The parliament ......................................................................................................................................202
Other periodic reports............................................................................................................................204
Meeting minutes ...................................................................................................................................204
Annexure 5.1: Centrally sponsored scheme for PCRA and POA Guidelines................................205
Appendix – A:..........................................................................................................................214
Appendix – B: ..........................................................................................................................215
Appendix – C:..........................................................................................................................217
Appendix – D:..........................................................................................................................219
Appendix – E: ..........................................................................................................................220
POA Handbook for Justice – 2024 Monitoring at the union level 195
Monitoring at the union level 5
Introduction
It is the duty of the union government to coordinate the measures
taken by the state governments, and to place on the table of each
house of parliament, every year, a report on the measures taken
by itself and by the state governments for the effective
implementation of the Scheduled Castes and the Scheduled
Tribes (Prevention of Atrocities) Act, 1989 [Section 21].
The responsibility for implementation of the Act primarily rests
with the respective state governments and the union territory
administrations and their subordinate authorities (police and
executive magistrates).
There are monitoring mechanisms under this Act at the union
[Section 21(4)], state [Rule 16(2)], district [Rule 17(3)], and
subdivisional [Rule 17A(4)] levels. There are some
As per the system designed
constitutional mechanisms such as the national commissions, in the Act, each link builds
parliamentary committees, and other national mechanisms. on, and mutually
reinforces, the others with
As per the system designed in the Act, each link builds on, and interlocking harmony in
mutually reinforces, the others with interlocking harmony in execution, reporting, and
review.
execution, reporting, and review.
If the officials do the work they are supposed to do at the
mandated time, monitoring the implementation of this Act at the
union level can be done by getting just the following
information:
 Union annual reports submitted to parliament u/s 21(4).
 Parliamentary questions will help to fill in the gaps, if any.
 Annual reports, union Ministry of Social Justice and
Empowerment.
If you are feeling particularly ambitious, you could also include
the annual report of the:
 National Crime Records Bureau.
 National Commission for the Scheduled Castes.
 National Commission for the Scheduled Tribes.
and the
 Judgements of the Supreme Court of India.
In this guide book you will learn of the

 Constitutional bodies monitoring implementation of the Act.
 Other official procedures that will help.
 How to get the information required.
POA Handbook for Justice - 2024 Monitoring at the union level 197
Monitoring at the union level
One caveat though. Though there are constitutional and

administrative mechanisms to monitor this Act at the union
level, accountability mechanisms are practically non–existent.
Union ministers routinely get away with some variation of this
answer to Lok Sabha unstarred question 2562:
'Police' and 'Public Order' are State subjects under the
Seventh Schedule of the Constitution of India. The
responsibility of maintaining law and order, protection of
life and property of the citizens including SCs/STs rest with
the respective State Governments and Union Territory
Administrations. The State Governments are competent to
deal with such offences under the extant provisions of laws.
However, the Government of India is committed to ensure
protection of Scheduled Castes and Scheduled Tribes.
Bureau of Police Research & Development (BPR&D)
conducts training, courses and webinars from time to time
for police personnel sensitizing them for effective
The National Commission implementation of the Scheduled Castes and the Scheduled
for Scheduled Castes
(NCSC) and the National
Tribes (Prevention of Atrocities) Act, 1989. In addition,
Commission for Scheduled Government of India has issued advisories from time to
Tribes (NCST) are time to implement the provisions of the PoA Act and Rules
constitutional bodies to
in letter and spirit.
monitor the safeguards
provided to the However, getting the information is shining light on their
SCs and the STs. functioning and efficiency, and is a welcome step towards
accountability.
Constitutional bodies to monitor safeguards

The National Commission for Scheduled Castes (NCSC) and the
National Commission for Scheduled Tribes (NCST) are
constitutional bodies to monitor the safeguards provided to the
scheduled castes and the scheduled tribes.
The parliament
The union Ministry of Social Justice and Empowerment tables
an annual report on the measures taken by the union government
and by the state governments (by consolidating the annual
reports of all the states) for the effective implementation of the
Atrocities) Act, 1989 in both houses of parliament every year
[Section 21(4)].
The members of both houses of parliament can also ask specific
questions during the sessions regarding the implementation
status, findings, or any data.
198 Monitoring at the union level POA Handbook for Justice - 2024

Castes and Scheduled Tribes
Castes and Scheduled Tribes consists of 30 members – 20 from
the Lok Sabha and 10 from the Rajya Sabha – elected from
amongst those in the respective houses of parliament. They have
a term of one year. They can consider the reports, report on the
action taken or to be taken, and examine any other matters it may
deem fit or are referred to it by the house or speaker. Though they
can monitor the implementation of this Act (especially the
information from the annual report under Section 21(4)) they are
often focused only on the reserved quota for the scheduled castes
and the scheduled tribes in government employment.
National Commission for Scheduled Castes

The NCSC is established under Article 338 of the Constitution.
Article 338(5) lays down the duties of the commission, which have
a bearing on prevention of atrocities against the scheduled castes: Though there are
(a) To investigate and monitor all matters relating to the constitutional and
safeguards provided for the scheduled castes under the administrative

mechanisms to monitor
this Act at the union level,
5
being in force or under any order of the government and to accountability
evaluate the working of such safeguards; mechanisms are practically
non–existent.
(b) To inquire into specific complaints with respect to the
deprivation of rights and safeguards of the scheduled castes;
The NCSC has an Atrocities and Protection of Civil Rights
Wing, which deals with cases relating to Scheduled Castes
under the Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 and the Protection of
Civil Rights Act, 1955, either on receipt of complaints from
individuals or information from other sources (including the
media). Evaluation studies/surveys on these subjects are
also conducted by this Wing.
National Commission for Scheduled Tribes

The NCST is established under Article 338–A of the
Constitution of India. Article 338–A(5) lays down certain duties
of the commission, which have a bearing on prevention of
atrocities against the scheduled tribes:
(a) to investigate and monitor all matters relating to the
safeguards provided for the scheduled tribes under the
being in force or under any order of the government and to
evaluate the working of such safeguards;
(b) to inquire into specific complaints with respect to the

deprivation of rights and safeguards of the scheduled tribes;
On receiving information about an incident of atrocity
against a person belonging to a scheduled tribe, the
commission gets in touch with the law enforcing and
administrative machinery of the concerned state and the
district to ascertain the details of incident and the action
taken by the district administration.
The commission has six regional offices at Bhopal,
Bhubaneswar, Jaipur, Raipur, Ranchi, and Shillong with
specified jurisdiction to cover states and union territories.
National human rights Institutions

Several human rights institutions were established in India for
the purpose of protecting and promoting human rights.
 The Protection of Human Rights Act, 1993 defines human
rights and provides for the creation of the National Human
On receiving information Rights Commissions (NHRC), and State Human Rights
about an incident of Commissions (SHRC), setting out their powers, functions,
atrocity against a person and procedures.
belonging to a scheduled
tribe, the NCST gets
 National Commission for Women established under the
in touch with the law National Commission for Women Act in 1990.
enforcing and  The National Commission for Minorities established under
administrative machinery
of the concerned state and
the National Commission for Minorities Act in 1992.
the district to ascertain  The National Commission for Protection of Child Rights
the details of incident and established under the Commissions for Protection of Child
the action taken by the
Rights Act, 2005.
district administration.
The reports of most of these human rights institutions do not
cover this Act, though the NHRC has a mixed record. The NHRC
does work on this Act periodically. Some of its reports cover the
implementation of this Act. It has commissioned specific studies
on implementation, but the action taken on its reports and
recommendations leaves much to be desired. Depending on the
resources available (time and people), these institutions can also
be monitored.
Union ministries
As per the Government of India (Allocation of Business)
Rules, 1961, the responsibility with regard to implementation of
the Act at the union level is split between the Ministry of
Home Affairs (administration of criminal justice), the Ministry
of Social Justice and Empowerment (Implementation of the Act,
insofar as it relates to scheduled castes, excluding the
administration of criminal justice) and the Ministry of Tribal
Affairs (implementation of the Act, insofar as it relates to the

scheduled tribes excluding the administration of criminal justice).
Committee for effective coordination

Castes and Scheduled Tribes in its fourth report recommended
that the Ministry of Social Justice and Empowerment, Ministry
of Home Affairs, National Commission for Scheduled Castes,
and National Commission for Scheduled Tribes should meet
regularly to devise ways and means to curb offences and ensure
effective administration of the Act.
In pursuance of this recommendation, a committee for effective
coordination to devise ways and means to curb offences of
untouchability and atrocities against the scheduled castes and the
scheduled tribes and effective implementation of the Protection
of Civil Rights Act, 1955 and the Scheduled Castes and the
Scheduled Tribes (Prevention of Atrocities) Act, 1989 with the
union minister for social justice and empowerment as the The objective is to build
chairperson, was set up in March 2006. informed awareness about
the provisions of the law
The present composition of the committee is Minister for Social
Justice and Empowerment (Chairperson), Minister of Tribal
that are aimed at ending
discrimination and provide
5
protection.
Affairs (Co–Chairperson), Minister for State for Social Justice
and Empowerment and Minister for State for Tribal affairs
(Special invitees); Secretaries from the Ministry of Social Justice
and Empowerment, Ministry of Home Affairs, Department of
Justice, Ministry of Law and Justice, Ministry of Tribal Affairs,
National Commission for Scheduled Castes, National
Commission for Scheduled Tribes, Joint Secretary, Ministry of
Home Affairs (In charge of National Crime Records Bureau), two
non–official representatives from amongst the scheduled castes,
one non–official representative from amongst the scheduled tribes
(Members), and the Joint Secretary (SCD), Ministry of Social
Justice and Empowerment (Member – Secretary). The committee
has met 25 times from inception till end 2021.
The union government provides assistance to the respective state
governments and union territory administrations for effective
implementation of the Protection of Civil Rights Act, 1955 and
Atrocities) Act, 1989 mainly for following purposes:
(a) Functioning and strengthening of the scheduled castes and
the scheduled tribes protection cell and special police
stations.
(b) Setting up and functioning of exclusive special courts.

(c) Relief and rehabilitation of atrocity victims.
(d) Incentive for inter–caste marriages, where one of the
spouses is a member of the scheduled caste.
(e) Awareness generation.
The funding pattern of the scheme is such that, over and above
the committed liability of respective state governments, the
expenditure is shared between the union and the states on a 50:50
basis, and the union territory administrations receive 100%
central assistance. Central assistance of C610.11 crores was
granted to 23 states, 5 union territories and the national helpline
against atrocities (NHAA) during 2021–22.
National helpline against atrocities

The department of Social Justice and Empowerment has taken
an initiative of launching the NHAA to ensure proper
implementation of the Scheduled Castes and the Scheduled
The Department of Social
Justice and Empowerment
Tribes (Prevention of Atrocities) Act, 1989. It is a toll–free
has taken an initiative of number 14566 across the country.
launching the NHAA to
The objective is to build informed awareness about the
WITH has launched the
National Helpline Against provisions of the law that are aimed at ending discrimination and
Atrocities to ensure proper provide protection. It is an initiative for grievance redressal and
implementation of the real time monitoring of registered grievances.
Scheduled Castes and the
Scheduled Tribes At present, nine states and union territories have established call
(Prevention of Atrocities) centres and their integration with the central call centre is in
Act, 1989.
progress. The department is coordinating with the other states to
set up call centres.
Monitoring
Monitoring implementation of the Scheduled Castes and the
Scheduled Tribes (Prevention of Atrocities) Act, 1989 can be
done by collecting information in the public domain. The
primary sources of information are the annual union report
u/s 21(4) and the state annual reports u/r 18. These can be
supplemented by information from parliament, and the annual
Crime In India report of the National Crime Records Bureau.
The parliament
The union Ministry of Social Justice and Empowerment tables a
report on the measures taken by the union government and by the
state governments for the effective implementation of the Act in
both houses of parliament every year [Section 21(4)].
The members of both houses of parliament can also ask specific

questions during the sessions regarding the implementation
status, findings, or any data.
Parliamentary questions and their replies can be accessed online
on the websites of the Lok Sabha and the Rajya Sabha.
Lok sabha:
https://sansad.in/ls/questions/questions-and-answers
Rajya sabha:
https://sansad.in/rs/questions/questions-and-answers
Filter the search by Ministry of Social Justice and Empowerment
to get more relevant information and save time.
Union ministries
The comprehensive report on the measures taken by the union
government and by the state governments for the effective
implementation of the Act is prepared by the MoSJ&E every Each year the Ministry of
year [Section 21(4)] and has summaries of the state annual Social Justice and
reports as well. Union reports of the past few years are on the Empowerment prepares a
website of the national helpline

comprehensive report on
the measures taken by the
5
(https://nhapoa.gov.in/en/cms/annual-reports-poa, last accessed union and state
20 March 2024). governments for the
effective implementation
All available annual union reports from 1990 to date have been of the Act and tables it in
uploaded to https://www.cvmc.in/india/. The available annual both houses of parliament
[Section 21(4)].
reports of states and union territories can be found at
https://www.cvmc.in/states/. There is often some delay in
uploading the latest reports on both websites. If you want the
union report earlier, file an RTI request online or by mail to the
MoSJ&E but you will get it only after it is tabled in parliament.
For the state reports, an RTI request to the particular state nodal
office may be necessary.
The annual reports of the Ministry of Tribal Affairs (MoTA) and
the MoSJ&E are sources of some information. The MoSJ&E
annual report can be accessed from https://socialjustice.gov.in/
under publications.
The Section 21(4) report has only some basic information about
the centrally sponsored schemes. More information is available
in the MoSJ&E annual report which can be accessed from their
website https://socialjustice.gov.in/ under publications, and
supplemented with parliamentary questions.
Each state sends the proposal for release of central assistance by

the end of April along with the audited utilisation certificate for
the previous year. Ask for all those (or that of a particular state)
from MoSJE through RTIs. The prescribed guidelines and
performa are in the following annexure.
Other periodic reports

 Crime In India, the annual report of the National Crime
Records Bureau https://ncrb.gov.in/crime-in-india.html.
 Annual report of the National Commission for the Scheduled
Castes (https://ncsc.nic.in/).
 Annual report of the National Commission for the Scheduled
Tribes (https://ncst.nic.in/).
 Judgements of the Supreme Court of India
(https://main.sci.gov.in/judgments).
 Annual reports and newsletters of the national human rights
institutions.
The comprehensive report
on the measures taken by Meeting minutes
the union government and The minutes of the meetings of the following bodies would have
by the state governments some relevant information:
(by consolidating the
annual reports of all the  The Parliamentary Committee on the Welfare of Scheduled
states) for the effective Castes and Scheduled Tribes.
implementation of the  The Committee for Effective Coordination to devise ways
Scheduled Castes and the
Scheduled Tribes
and means to curb offences of untouchability and atrocities
(Prevention of Atrocities) against the scheduled castes and the scheduled tribes and
Act, 1989 is prepared by effective implementation of the Protection of Civil Rights
the Ministry of Social
Act, 1955 and the Scheduled Castes and the Scheduled
Justice and Empowerment
every year [Section 21(4)]. Tribes (Prevention of Atrocities) Act, 1989.
 National Commission for Scheduled Castes.
 National Commission for Scheduled Tribes.
 National human rights institutions.
Annexure 5.1: Centrally Sponsored Scheme for PCRA and POA Guidelines
Appendix – E
Appendix – A
Appendix – D
Appendix – E
RTI Format 1: Request for union annual report u/s 21(4)
Our Ref: S21(4) /PoA/RTI/20__/U001

Date: __/__/20__
Dear Sir/Madam,
Subject: Request for information under the Right to Information Act 2005
Ref: Section 21(4) of the Scheduled Castes and the Scheduled Tribes (Prevention of
Atrocities) Act, 1989 as amended to date.
For the calendar years 1990 to 20__.
Kindly furnish the annual reports placed by the Government of India on the table of both
houses of parliament.
Affixed the prescribed fee under the Right to Information Rules.
Thank you,
[Signature]
5
[Name]
To
The Public Information Officer
Ministry of Social Justice and Empowerment
RTI Format 2: Request for state annual report u/r 18
Our Ref: R18/PoA/RTI/20__/U002

Date: ____/ ____/ ____
Dear Sir/Madam,
Ref: Rule 18 of the Scheduled Castes and the Scheduled Tribes (Prevention of
Atrocities) Rules, 1995 as amended to date.
For the calendar years 1990 to 20___.

For the state of ______________.
Kindly furnish the following:

1. The date on which the state annual report was received by the union government.
2. Copies of the report received by the union government.
If this does not pertain to, or is not available with, your department, kindly transfer to the
appropriate authority under section 6(3) of the aforementioned Right to Information Act.
Affixed is the prescribed fee under the Right to Information Rules.
Thank you,
[Signature]
[Name]
To
RTI Format 3: Request for state contingency plan u/r 15
Our Ref: R15/PoA/RTI/20__/U003

Date: ____/ ____/ ____
Dear Sir/Madam,
Ref: Rule 15(1) of the Scheduled Castes and the Scheduled Tribes (Prevention of
For the state of ______________
Kindly furnish a copies of the latest State Contingency Plan under Rule 15(1) of the
Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 received
by the union government.
If this does not pertain to, or is not available with, your department, kindly transfer to the
Affixed is the prescribed fee under the Right to Information Rules. 5

Thank you,
[Signature]
[Name]
To
6 MONITORING AT THE STATE LEVEL
Citizens’ monitoring .................................................................................................................227
Using RTI to monitor implementation........................................................................................228
A note on style ........................................................................................................................229
The short cut...........................................................................................................................229
Before you start.......................................................................................................................230
State level: Responsibilities and mechanisms ...........................................................................231
State level: Officials ...............................................................................................................................234
Sequencing: Implementation road map ..................................................................................................236
Reporting: The information ow.............................................................................................................237
Mandatory notifications ...........................................................................................................238
Preventive action .....................................................................................................................241
Monthly reports .......................................................................................................................242
Quarterly reviews.....................................................................................................................244
Half yearly reviews ..................................................................................................................247
Monitoring the SVMC ..............................................................................................................248
Setting up the SVMC [Rule 16(1)]..........................................................................................................249
Members of the SVMC [Rule 16(1)].......................................................................................................249
Meetings [Rule 16(2)] ...........................................................................................................................250
Briefing documents to be provided to the SVMC members .....................................................................250
Meeting agenda and role of the SVMC [Rule 16(2)]................................................................................253
Annual report ..........................................................................................................................254
Annexure 6.1: Contact details: state nodal officers....................................................................261
Annexure 6.2: Contact details: NCSC .......................................................................................266
Annexure 6.3: Contact details: NCST........................................................................................268
POA Handbook for Justice – 2024 Monitoring at the state level 225
Monitoring at the state level 6
Citizens’ Monitoring
The Scheduled Castes and the Scheduled Tribes (Prevention
of Atrocities) Act, 1989 and Rules, 1995 (‘the Act’) has
government mechanisms to monitor its implementation at the
union, state, district, and subdivisional levels.
This Act can be monitored by citizens using two laws and one
landmark judgement of the Supreme Court of India. There are
internal mechanisms provided within the Act itself, the Right to
Information Act, 2005 (RTI), and the reports of the high powered
standing committee on fixing responsibility for acquittals set up
in each state on the orders of the Supreme Court of India
(paragraphs 20 and 21) in the State of Gujarat vs Kishanbhai etc.
[Criminal Appeal 1485 of 2008] of 7 January 2014.
The prerequisite is domain expertise, so master these laws. The Scheduled Castes and
the Scheduled Tribes
Equally important is to get yourself and your organisation (Prevention of Atrocities)
recognised by the state as an ‘associated individual’ and an Act, 1989 and Rules 1995
‘associated organisation’ referred to in Section 15A(11) of the (‘the Act’) has government
Act (Associated organisations do not have to be registered, mechanisms to monitor its
implementation at the
though non governmental organisations need to be). This union, state, district, and
recognition considerably eases the flow of information, as the subdivisional levels.
information can then be claimed as a right by the human rights
organisation and defender.
This guidance note is only to monitor the mechanisms under this
Act at the state level. There are other formats (and manuals) for
citizens’ monitoring at the district and subdivisional levels, for
monitoring a case, and for different mechanisms.
In this first stage of citizens’ monitoring at the state level, we will
only ensure that the planned events or tasks are being done at the
mandated times by the mandated authorities. The quality is not
monitored at this stage. Once the state of inertia is transformed to
momentum, we will move on to quality issues.
The process is iterative, and repetitive (monthly, quarterly, half
yearly, and annual) by design, since citizens’ monitoring is
based on the official calendar and mechanisms enshrined in the
Act, and closely mirrors it. It is a gentle nudge so that the entire
state monitoring mechanism is activated, which consequently
will prevent atrocities, and if committed they will be promptly
redressed and perpetrators will be brought to book.
POA Handbook for Justice - 2024 Monitoring at the state level 227
Monitoring at the state level
The objective is to ensure that all the provisions of the Act and
Rules are fulfilled, assisting the victims and survivors, assisting
the police, assisting the special public prosecutor, and assisting
the judge of the special court – thus benefiting the victims, the
law enforcement (police and judiciary), and society at large –
ensuring that justice is done.
Using RTI to monitor implementation

This guidance note assumes a basic understanding of how to use
the RTI. Most of the requests are to the nodal officer and a few to
the director of the scheduled castes and the scheduled tribes
protection cell, and naturally so, since these are the two key
officials for monitoring the implementation of this Act in the state.
There are a few to the director general of police, and one each to the
director of prosecutions, the chief minister and the Ministry of
Social Justice and Empowerment, Government of India.
None of the requests can be denied, since the requests are only
The objective is to ensure
for copies of existing reports (so no additional work is required in
that all the provisions of
the Act and Rules are collating the information), and for aggregated information that is
fulfilled, assisting the (should be) in the state annual report which is a public document.
victims and survivors, Denial of information on the grounds of additional work is
assisting the police,
assisting the special public
grounds for invoking Section 4 of the Act on dereliction of duty
prosecutor, and assisting since it is an admission that they have not compiled the
the judge of the special mandatory periodic reports as required under the Act.
court – thus benefiting the
victims, the law The confidentiality clause of the RTI Act cannot be invoked
enforcement (police and
since all the data points requested are published in the annual
judiciary), and society at
large – ensuring that state and national reports of the crime records bureaus or other
justice is done. authorities. Therefore, any denial should immediately be
brought to the notice of the first appellate authority (first appeal),
and then to the state information commission (second appeal).
At best, the authorities can only say that they have not prepared
the reports (from 1995 onwards), in which case Section 4 will
apply, and they should be prosecuted for dereliction of duty.
As a norm, ask for the information personally and encourage the
concerned department to put it up on their website suo moto
under RTI. If they do not comply, file a request under RTI. Many
of these documents are supposed to be mandatorily shared
through websites, press notifications, as per the good governance
and transparency guidelines. However, in practice, most are
ignorant. Asking directly and through RTI is an effective
mechanism to educate the officials whose task it is to implement
this Act, and make them aware that these mechanisms,
228 Monitoring at the state level POA Handbook for Justice - 2024
provisions, and compliances exist, what the rules are, and the
penalties for non–implementation.
Put up scanned copies of any information you get under RTI on
your own webpage or on a file sharing site (slideshare, dropbox
etc) in a dedicated channel with the appropriate tags.
A note on style
All the RTI requisition formats are alphanumerically coded.
The first alphabet ‘S’ is for state, since these formats are for
state level monitoring. The second alphabet is for periodicity.
A = Annual; H = Half–yearly; Q = Quarterly; M = Monthly;
O = Once (or occasional). So SA01 is a state (S) level annual (A)
information request format (01). Some notifications (exclusive
special courts, nodal officer, protection cell) are done only once,
and therefore the ‘SO’ formats are used for those. Since the
requirements vary from state to state, they are not included in this
handbook, but can be made available on request.
The rights of victims,
For brevity, special public prosecutors (SPP) includes exclusive witnesses, informers, and
special public prosecutors (ESPP), and special courts includes their dependents, family
members and attenders
both designated special courts and exclusive special courts. The often overlap
generic ‘survivor’ is used to include several legal terms used in (information, relief,
the Act and Rules: victims, witnesses, informers, and their socioeconomic
rehabilitation), some
dependents, family members and attenders. Their rights often provisions are similar
overlap (information, relief, socioeconomic rehabilitation),
some provisions are similar (protection), and some are the same
(protection), and some are
the same (travel allowance
6
and maintenance
(travel allowance and maintenance expenses). Familiarity with
expenses).
the specific context is advised, and the reader could refer to the
section or rule for the specifics.
The short cut

The easiest, and the most efficient, way to monitor the
implementation of this Act in a state is to get a copy of the annual
report prepared under Rule 18. That will be available for the
previous year on or before 1 July of the subsequent year –
meaning the report for 2020 will be ready by 1 July 2021 – since
that is the last date by which each state has to send it to the union
government [Rule 18] (RTI format SA17).
The government state annual report format is comprehensive. If
diligently filled it will have all details of the performance of
officials, the functioning of state mechanisms and the timely
fulfilment of the rights of victims, survivors, witnesses,
informants and their dependents, including protection,
relocation, relief, reimbursements, and socioeconomic

rehabilitation with disaggregated data.
It is virtually a systems audit of the implementation of the Act in
the state at all levels in multiple domains for the preceding
calendar year. Together with the data from the state crime
records bureau (SCRB), the annual report will have sufficient
information for analysis, rectification, and accountability.
Of course, if it were so easy, even the government would do it –
and civil society would not need to expend scarce resources on it.
Most states do not prepare these reports, and virtually none have
all the data. None have the names of the officials and their
performance (Rule 7(3) for the investigating officers, and
Rule 14(2) for the special public prosecutors), which are
mandatory. The purpose of the citizens’ monitoring is to compile
all the relevant data in one place, so that they can be analysed and
used for accountability.
The purpose of the
citizens’ monitoring is to
The responsibilities, calendar, and schedule of reporting
compile all the relevant mandated within this Act is used in tandem with RTI to request
data in one place, so that existing, or should be existing, reports. Therefore, the
they can be analysed and
used for accountability.
information requested should be given without delay or excuse
that it entails a lot of additional work. The most frequent excuse
is that ‘confidential’ information cannot be given, since it will
interfere with the investigation. As will be obvious, none of the
information requested falls into this category. Even if by some
stretch of imagination, the reports are confidential, the meta data
– the dates on which they got the reports, the number of reports
received, the quantum of relief – cannot be denied.
The process outlined below is to make sure that the information
in the report is comprehensive, and therefore sufficient for action
and accountability. Only this will ensure that the purpose of this
Act – the prevention of atrocities – is fulfilled.
Before you start

1. Being informed is the first step. Be conversant with the Act
and Rules. Know who the implementing authorities are.
Knowing the existing state mechanisms to implement and
monitor implementation is a prerequisite to monitoring. We
need information on the existing mechanisms of the
state–the government orders appointing the appropriate
authorities, setting up the mechanisms, and the details of the
actual persons in these posts and their contact details.
Get this information as soon as possible or apply for them using

RTI. You need not wait for all this information to be in your hand
before you start. The citizens’ monitoring of the implementation
can begin simultaneously.
2. Get copies of the following documents (available in
bookstores and the government press):
(a) The Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 and Rules, 1995 as
amended to date.
(b) The Right to Information Act 2005 and Rules (the rules
are specific to each state).
(c) Updated copy of the relief amounts and provisions
for socioeconomic rehabilitation [Rule 12(4)
Schedule Annexure I].
(d) Past three annual state crime records bureau reports.
(e) Past three annual ‘Crime in India’ reports of the national
crime records bureau (NCRB). https://ncrb.gov.in/
The state is required to set
State level: Responsibilities and mechanisms
up the mechanisms for
The responsibility for implementation of the Act primarily rests implementing the Act, for
with the respective state governments and the union territory monitoring
administrations and their subordinate authorities (police and implementation, and to
provide adequate
executive magistrates). 1 However, there are monitoring
infrastructure, personnel,
mechanisms under this Act at the union [Section 21(4)], and finance for the
state [Rule 16(2)], district [Rule 17(3)], and subdivisional effective implementation.
[Rule 17A(4)] levels. 6
The state is required to set up the mechanisms for implementing
the Act, for monitoring implementation, and to provide adequate
infrastructure, personnel, and finance for the effective
implementation.
The state level mechanism is the state level vigilance and
monitoring committee, SVMC [Rule 16], the DVMC at the
district [Rule 17] and the SdVMC at the subdivisional level
[Rule 17A]. In addition, the state is required to issue certain
notifications and take preventive action, and when an atrocity
takes place, provide protection [Rule 6(2)(iv), 12(2)], immediate
relief [Rule 15(1)], relief, and socioeconomic rehabilitation to
the communities (victims, survivors, witnesses, informants, and
their dependents) [Rule 12(4)], and provide allowances to them
and their accompaniers for travel and maintenance during
investigation and trial [Rule 11].
1
Paraphrased from the union annual report u/s 21(4) for the calendar year 2021.
State level: Responsibilities and mechanisms

Mechanism Description Duties
State high The SVMC is constituted under Rule 16(1) (a) Meet at least bi–annually in the months
power to act as a high power vigilance and of January and July.
Vigilance and monitoring committee. It consists of the (b) Review implementation of the Act [Rule 16].
Monitoring chief minister (chairperson), ministers for (c) Review the scheme for the rights of victims
Committee home, finance, social welfare (Adi and witnesses (Chapter IVA, Section 15A)
(SVMC) Dravidar and Tribal Welfare in Tamil Nadu), and their relief and socioeconomic
all elected MPs, MLAs, and members of rehabilitation [Rule 16].
the legislative councils from state (d) Review prosecution of cases under the
belonging to the scheduled communities; Act [Rule 16].
Chief Secretary, the Home Secretary, the (e) Review the role of different agencies or
Director General of Police, Director/Deputy officers responsible for the implementation
Director, the National Commission for of the Act [Rule 16].
Scheduled Castes and the National (f) Review various reports received from the
Commission for Scheduled Tribes shall be government including that of the nodal
members; the secretary in–charge of the officer and special officer [Rule 16].
welfare and development of the scheduled
castes and the scheduled tribes (the state
nodal officer) is the convener.
The Scheduled The Scheduled Castes and the Scheduled (a) Conduct a survey of the identified area.
Castes and Tribes Protection cell is formed under (b) Maintain public order and tranquillity in the
the Scheduled Rule 8 as a body responsible for identified area.
Tribes maintaining public order and tranquillity (c) Recommend to the state government for
Protection Cell in an identified area by way of making deployment of special police force / special
inquiries, surveys, investigations, and police post in the identified area.
monthly reports that devises measures to (d) Make investigations about the probable
tackle these issues. causes leading to an offence under the Act.
(e) Restore the security amongst the scheduled
In Tamil Nadu, the Social Justice and
communities.
Human Rights wing of the police acts as
(f) Inform the nodal officer and special officer
the SCs and the STs protection cell.
about law & order situation in the identified
area.
(g) Inform the DM & nodal officer about
implementation of victim & witness rights
under the Act.
(h) Make inquiries about investigation & spot
inspections conducted by various officers.
(i) Make inquiries on wilful negligence of public
officials.
(j) Make an inquiry on action taken by SP
where any officer refused to enter
information maintained in the police station.
(k) Review the position of cases registered
under the Act [Rule 8(1)(x)].
(l) Submit a monthly report on or before the
20th of every month to the State
Government/nodal officer about the action
taken/ proposed to be taken in respect of the
above. [Rule 8(1)(xi)].
It is the duty of the state to ensure that there are sufficient

exclusive special courts and special courts to complete trials in
two months [Section 14(2)] and the victims, witnesses,
informants, and their dependents can exercise their rights
[Section 15A].
Each state will (should) have a state level high power vigilance
and monitoring committee at the state level with the chief
minister as the chairperson that reviews implementation every
January and July. Its members are the home minister, finance
minister and minister(s) in–charge of welfare and development
of the scheduled castes and the scheduled tribes, all elected
members of parliament and state legislative assembly and
legislative council from the state belonging to the scheduled
castes and the scheduled tribes, the chief secretary, the home
secretary, the director general of police, director/deputy director,
the national commission for the scheduled castes and the
national commission for the scheduled tribes.
It is the duty of the state to
The convenor is the secretary in–charge to the welfare and ensure that there are
sufficient exclusive special
development of the scheduled castes and the scheduled tribes. courts and special courts
There are similar vigilance and monitoring committees at the to complete trials in two
district and subdivisional levels reviewing implementation months [Section 14(2)]
and the victims, witnesses,
quarterly by the district magistrate and the subdivisional
informants, and their
magistrate respectively. In addition, some states have state level dependents can exercise
committees. Every state has a nodal officer, who reviews
implementation quarterly.
their rights [Section 15A].
At the present rate of
6
disposals (30 cases per
They are supported by the Scheduled Castes and the Scheduled annum per court in 2022),
it translates into at least
Tribes Protection Cell at the state level, and protection units at one exclusive special court
the district level. There are special courts, exclusive special being set up for every 30
courts, special public prosecutors, and exclusive special cases charge–sheeted per
annum – at least 1,796
prosecutors for the timely administration of justice.
special courts rather than
the 663 as at present.
In addition, in the identified (atrocity prone) areas, there are
special police stations and special officers of rank additional
district magistrates or higher for coordination among the
different arms of the state.
State level: Officials

# Official Description Duties
1 Chief minister Chairperson of SVMC. Conduct and chair the SVMC meetings every
January and July [Rule 16].
2 State Nodal The state government nominates a To review at the end of every quarter:
Officer, nodal officer at the level of secretary to (a) Reports received by the state government
Principal the state government preferably under R4(2) & R4(4), R6, R8(1)(xi).
Secretary, belonging to a scheduled community (b) Position of cases registered under the Act.
Social Welfare, for co-ordinating the functioning of DM, (c) Law and order situation in the identified area.
the Secretary, SP or other officers authorised by them, (d) Various measures adopted for providing
the Scheduled IOs and other officers responsible for immediate relief in cash or kind or both to
Castes and the implementing the provisions of the Act. the victims of atrocity/dependents.
Scheduled (e) Adequacy of immediate facilities like
In Tamil Nadu, the nodal officer is the
Tribes rationing, clothing, shelter, legal aid,
Principal Secretary, Adi-Dravidar and
Development travelling allowance, daily allowance, and
Tribal Welfare Department.
Department (the transport facilities provided to the victims
name of the of atrocity/dependents.
Department (f) Performance of NGOs, SCs and STs
may vary from Protection Cell, various committees, and
state to state). public servants responsible for
implementing the Act.
(g) Implementation of the rights of victims
and witnesses specified under chapter
IVA of the Act.
3 Secretary, Home Department is responsible for the (a) Review the position of all investigations
Home administration of Police, Subordinate work, done by the investigating officer by the
Department Prisons and Transport in the State. The end of every quarter. [Rule 7(3)].
basic objective of the department is to (b) Secretary, Home Department is a member
formulate policies, laws, regularities for of SVMC.
effective criminal justice and implementation
of Law and order in the State.
The Principal Secretary is
(a) The administrative head of the home
department and principal adviser to
the chief minister, and ministers for
law and information technology and
transport on all matters of policy
and administration relating to these
2
departments.
(b) Responsible for the careful
observance of the business rules
and secretariat instructions in the
transaction of the business in the
department. All important matters,
including policy, should be dealt with
in consultation with the secretary
who is in overall charge of the
department.
2
http://www.tn.gov.in/rti/proactive/home/manual_home.pdf

4 Director of (a) The Directorate of Prosecution is (a) Review the performance of SPPs /
3
Prosecution headed by the Director of ESPPs twice a year in the month of
Prosecution (DOP) who is the January and July and submit a report to
controlling authority of overall the state government [Rule 4(2)].
administrative functions. (b) Review the position of cases registered
(b) The DOP conducts monthly review under the Act, and the implementation of
meetings and critically scrutinises the rights of victims and witnesses
the pendency and disposal of the [Rule 4(4)].
cases in each district. (c) Review by the end of every quarter the
(c) The DOP scrutinises charge– positions of all investigations done by the
sheets in cases where it is believed IO [Rule (7 (3)].
that innocent persons have falsely
been implicated and tender advice
thereon to the concerned
prosecuting officers.
(d) The Director would make frequent
field visits to personally review the
functioning of the prosecuting
officers in the field and also to meet
the judicial officers and senior
police officials regarding speedy
disposal of the cases.
(e) The DOP has the power to conduct
coordination meetings with police
officers wherein suitable
instructions and guidelines are
issued to reduce the pendency for
speedy disposal of cases. 6
5 DGP/IGP/ADGP (a) The State Police Force is headed (a) Receive the investigation report
by the DGP, who is a senior IPS forwarded by the SP [Rule 7(2)].
Officer. The DGP looks after the (b) Receives the monthly reports u/r 4(4)
Police functions in maintaining from the district magistrates.
Law and order and criminal (c) Consolidates the reports and sends them
justice.4 to the state nodal officer on or before the
20th of every month [Rule 8(1)(xi)].
(b) In practice, the protection cell is
(d) Review the position of all investigations
headed by an officer of rank
done by the investigating officer by the
ADGP or IGP.
end of every quarter [Rule 7(3)].
(e) Function as a member of SVMC
[Rule 16].
(f) Review the position of cases registered
under the Act [Rule 8(1)(x)].
(g) Submit a monthly report on or before the
20th of every month to the State
Government/nodal officer about the
action taken/ proposed to be taken in
respect of the above [Rule 8(1)(xi)].
3
http://www.prosecution.tn.gov.in/DOP_compendium.pdf
4
http://www.tn.gov.in/rti/proactive/home/manual_home.pdf Page 12.
Sequencing: Implementation road map

The Act deals with both the triggers and the consequences of
atrocities. It therefore needs mechanisms to be in place for
effective implementation. Cherry picking the Act will not help
and may be counterproductive.
For effective implementation, the state must first set up
mechanisms at the state headquarters, and then at the district and
subdivisional levels up to the police outposts.
In sequence, it means:
(a) Appoint a nodal officer of rank secretary to government or
higher, preferably from a scheduled community [Rule 9].
This is perhaps the most important appointment and
determines how efficient the implementation will be.
(b) Set up a Scheduled Castes and Scheduled Tribes Protection
Cell headed by an officer of at least inspector general
rank [Rule 8].
The Act deals with both
the triggers and the (c) Draft and notify a contingency plan [Rule 15(1)].
consequences of (d) Set up the SVMC, DVMCs, and SdVMCs and notify the
atrocities. It therefore
needs mechanisms to be
members in the gazette (every three years).
in place for effective (e) Set up the state and district level standing committees in
implementation. Cherry
picking the Act will not
compliance with the orders of the Supreme Court of India in
help and may be the State of Gujarat vs Kishanbhai etc.
counterproductive. Once these top–level mechanisms are in place, then address
the periodic functions. These functions are fluid and change
dynamically depending on the social situation.
(f) Conduct surveys to identify atrocity prone areas
[Section 21(2)(vi)]. Surveys should be conducted periodically
so that atrocity prone areas are identified [Rule 3(i)].
(g) Post administrative officers and other staff members with
the right aptitude and understanding of the problems of the
scheduled communities to all identified areas [Rule 13(1)].
(h) Appoint special officers: In these identified areas special
officers [Rule 10] should be appointed to coordinate the
prevention, relief, and socioeconomic rehabilitation
measures. Appoint special officers of subdivisional
magistrate (SDM) rank or higher as special officers
[Rule 10] to coordinate with the district magistrate,
superintendent of police or other officers responsible for
implementing the provisions of the Act, various
committees, and the Scheduled Castes and the Scheduled
Tribes Protection Cell.
(i) Set up special police stations: In these identified areas,

special police stations (with majority officers from the
scheduled communities) [Rule 13(2)] should be set up.
There should be sufficient special police stations, so that
charge–sheets are filed within 60 days of the FIR being
registered [Rule 7(2)], and preventive action can be taken.
(j) Set up exclusive special courts in the identified areas
[Section 14(1)]. Exclusive special prosecutors should be
appointed for each exclusive special court [Section 15(2)].
There should be sufficient exclusive special courts and
special courts so that trials are completed within two months
of the charge–sheet being filed [Section 14].
(k) In areas with less atrocities recorded, designated special
courts should be set up [Section 14(1)] and special public
prosecutors should be appointed [Section 15(1)].
(l) Notify the SPPs, ESPPs, and panel advocates in the gazette
(every three years). For effective
implementation, the state
Reporting: The information flow must first set up
Statutory recording and reporting in this Act are of two types. mechanisms at the state
headquarters, and then at
The first is the immediate horizontal reporting of the status of a the district and
case at every stage from information [Rule 5] to inquiry [Rule 6] subdivisional levels up to
to inspection [Rule 12(1)], investigation [Rule 7], and trial the police outposts.
[Section 14]. These reports are sent by the police to the district
magistrate [Rule 6(2)], and by the district magistrate to the judge 6
of the special court [Rule 12(7)]. They are done immediately at
each stage of compliance or delay in compliance (for instance a
Rule 7(2A) report must be submitted in writing to the
superintendent of police by the investigating officer when an
investigation has not been completed in 60 days).
The state shall inform the concerned special court or the exclusive
special court about the protection provided to any victim or his
dependent, informant or witnesses and the court shall periodically
review the protection being offered and pass appropriate orders,
[Section 15A(7)]. This will ensure keenness in the state response:
providing protection to the victims and witnesses (120 days is
doable, 30 years is not), the allowances, relief, and socioeconomic
rehabilitation is done on time, and to prevent administrative fatigue
in execution, monitoring, and review.
The second is periodic vertical reporting. The district magistrate
sends the periodic monthly reports to the scheduled castes and the
scheduled tribes protection cell and the director of prosecutions on
or before the 20th of every month [Rule 4(4)]. These reports have
the status of each case, what has been done, and what will be done
in the next month in each district with respect to immediate relief,
instant relief, relief, socioeconomic rehabilitation, allowances,
investigation, trial, appeal, and parole.
The Scheduled Castes and the Scheduled Tribes Protection Cell
consolidates all the district reports and sends the consolidated
report to the state nodal officer on or before the 20th of every
month [Rule 8(1)(xi)]. The nodal officer, the director of
prosecutions, and the head of the Scheduled Castes and the
Scheduled Tribes Protection Cell review these reports every
quarter. The district and subdivisional vigilance and monitoring
committees also reviews these reports every quarter.
The state nodal officer consolidates them for review at the state
level high power vigilance and monitoring committee (SVMC)
meeting, chaired by the chief minister every January and July
[Rule 16(2)].
The Scheduled Castes
and the Scheduled The reports are consolidated annually and sent to the union
Tribes Protection Cell
consolidates all the
Ministry of Social Justice and Empowerment (MoSJ&E) on or
district reports and before 31 March every year [Rule 18]. The performance of the
sends the consolidated union government in enabling the effective implementation of
report to the state nodal the Act, and the consolidated report of all the states, is placed on
officer on or before the
20th of every month the table of both houses of parliament each year [Section 21(4)].
[Rule 8(1)(xi)].
Mandatory notifications
Get copies of the following from the ministry of social welfare,
or the social welfare department (the name varies from state to
state. In Tamil Nadu it is the Adi Dravidar and Tribal Welfare
Department, AD&TWD) or the scheduled castes and the
scheduled tribes protection cell (the name varies across states).
Go to the office and ask them first. If the officials don’t give it, then
get it using RTI. Many of these notifications are supposed to be
mandatorily shared through websites and press notifications, as per
the good governance and transparency guidelines. However, in
practice, most are ignorant. Asking directly and through RTI is an
effective mechanism to educate the officials whose task is to
implement this Act, and make them aware that these exist, what
their rules are, and the penalties for non–implementation.
3. The government must make the following gazette
notifications.
(a) Atrocity prone areas: ‘area where it has reason to believe
that atrocity may take place or apprehension’ that an
atrocity may take place [Rule 3(i)] (RTI format SA01).
(b) Panel of eminent senior advocates as special public

prosecutor for the purpose of conducting cases under
this Act and Rules [Rule 4(1)]. This is done every three
years, on the recommendation of the district magistrate
and is notified in the official gazette [Rule 4(1B)] (RTI
format SA11).
(c) Panel of exclusive special public prosecutors (ESPP)
and special public prosecutors (SPP) in consultation
with the director of prosecutions or in charge
prosecutions for conducting cases under this Act and
Rules [Rule 4(1A)] and is notified in the official gazette
[Rule 4(1B)] (RTI format SA11).
(d) Setting up the Scheduled castes and the Scheduled
Tribes Protection Cell [Rule 8]. The protection cell is
known by different names, for instance Directorate of
Civil Rights Enforcement (DCRE) in Karnataka from
its origins in the Protection of Civil Rights Act (PCRA) The government must
1955, and the Social Justice and Human Rights wing appoint a panel of
(SJHR) in Tamil Nadu. The important thing is not the eminent senior advocates
as special public
name, but whether it has been notified under this Act – a
prosecutors to conduct
simple notification that it is the protection cell under cases under this Act and
this Act will do – and whether it is headed by an officer Rules [Rule 4(1)]. They
of equal rank (director general or inspector general of will be paid by the
government at a rate
police) (RTI format SO01).
(e) Appointing the state nodal officer for coordinating the
higher than the
government special
6
public prosecutors, and
officials responsible for implementing the Act and will be available to the
reviewing their performance (normally the principal victims free of cost
secretary, social welfare; in Tamil Nadu, additional [Rule 4(6)].
chief secretary, Adi Dravidar and tribal welfare
department) [Rule 9] (RTI format SO02).
(f) Name and designation of the special officers in the
atrocity prone areas [Rule 10]. This would typically be
at the district level (the district collector in Tamil Nadu)
(RTI format SO03).
(g) Constitution of the state high power vigilance and
monitoring committee (SVMC) [Rule 16(1)]. This is
required after every election/ change in government
(RTI format SA14).
(h) Government notification of the constitution of the
district level vigilance and monitoring committee
(DVMC) [Rule 17(1)]. This should have the names of
all the members and designations [Rule 17(2)]. Note
that some are ex–officio members, and both their

name and designation will have to be mentioned
(RTI format SA15).
(i) Ggovernment notification of the constitution of the
subdivisional level vigilance and monitoring
committee (SdVMC) [Rule 17A]. (Since the
monitoring is at the state level, the process and formats
for Rules 17A(2), 17A(3), and 17A(4) are not
elaborated here). The actual setting up is by the
subdivisional magistrate or, as in the case of Tamil
Nadu, the district magistrate. In either case, the state
government will have the information since it must be
reported in the state annual report. Get the notification
of the SdVMC (RTI format SA16) or get it from the state
annual report [Rule 18] (RTI format SA17).
(j) State contingency plan for preventive action which will
include the mandatory minimum relief and
SVMC meetings are an
important indicator of the
socioeconomic rehabilitation measures as notified in
chief minister’s personal the official gazette of the state government [Rule 15(1)].
commitment to social Get it from any district magistrate, subdivisional
justice and an essential magistrate, inspector general of police, inspector of
state mechanism to ensure
that officials perform their police or superintendent of police since they will have a
tasks responsibly and copy [Rule 15(2)]. Check whether the contingency plan
are held accountable. is sufficient to ‘prevent atrocities and to restore the
feeling of security amongst the members of the
scheduled castes and the scheduled tribes’ and schemes
‘for strengthening the socioeconomic condition of the
victim’ apart from immediate relief (RTI format SO07).
(k) Setting up exclusive or designated special courts to try
cases under this Act [Section 14]. Most districts and
many states do not have exclusive special courts.
Exclusive special courts (and ESPPs) for districts with
high pendency rates and atrocity prone districts (under
Rule 3(i)) would be the minimum requirement, though
at least one exclusive court in each district is desirable
(RTI formats SA21 and SA22).
(l) Standing committee of senior officials of the police and
prosecution departments, set up as per the orders
(paragraphs 20 and 21) of the Supreme Court of India
(SCI) in the State of Gujarat vs Kishanbhai etc. to fix
responsibilities in case of acquittal. This order is
applicable for all cases, not just for those booked under
this Act. However, the data in the report contains the
performance of the investigating officer and the special

public prosecutor and is of immense value in
monitoring and accountability (RTI format SQ14).
4. Get copies of the documents and the notifications. If they have
not been notified, request that they be notified to the nodal
officer. If the nodal officer has not been appointed, request the
chief minister/ minister for social welfare/ justice to appoint
the nodal officer, who should then be requested to issue the
notifications (Engagement with the nodal officer is in addition
to the chief minister and the social justice minister).
5. Ask the criteria for Rule 13(1) that the administrative
officers and other staff members posted in an area prone to
atrocity shall have ‘the right aptitude and understanding of
the problems of the scheduled castes and the scheduled
tribes’ (RTI format SO05).
6. Ask for the criteria to assess Rule 13(2) that ‘scheduled
castes and the scheduled tribes are adequately represented in Exclusive special courts
the administration and in the police force at all levels, with exclusive special
public prosecutors for
particularly at the level of police posts and police stations’
districts with high
(RTI format SO06). pendency rates and
identified (atrocity prone)
7. You could also ask for the posting details (at least the number
areas [Rule 3(1)] is the
of officials from the scheduled castes and the scheduled tribes minimum requirement,
and others) in each police station of the area (state, district, though at least one
subdivisional level) you are monitoring (RTI format SO12). exclusive court in each
district is desirable.
6
Preventive action
8. This Act is to prevent atrocities. The details of the
preventive action are specified in Rule 3 [Rule 3(Ito 3(xi)].
Ask for the details of their implementation for the period
under monitoring (RTI formats SA01 to SA10; SQ01). This
is in addition to the mandatory gazette notifications.
9. Number and details of arms licenses cancelled in the atrocity
prone areas [Rule 3(iii)] (RTI format SA03) and the details
of the arms thus deposited in the government armoury
(RTI format SA04).
10. Number and details of arms licenses provided to the
members of the scheduled castes and the scheduled tribes
[Rule 3(v)] (RTI format SA05).
11. Number, details (including contact details) of awareness
centres set up to educate the persons belonging to the
scheduled castes and the scheduled tribes about their rights
and the protection available to them under the provisions of
various union and state enactments or rules, regulations and

schemes framed thereunder [Rule 3(viii)] (RTI format SA07).
12. Number, details (including resource persons, participants and
study material details) and expenses of awareness workshops
conducted to educate the persons belonging to the scheduled
castes and the scheduled tribes about their rights and the
protection available to them under the provisions of various
union and state enactments or rules, regulations and schemes
framed thereunder [Rule 3(viii)] (RTI format SA08).
13. Number, details, finance provided and programmes
conducted by non government organisations for establishing
and maintaining awareness centres and organising
workshops, financial and other sort of assistance and
encouragement provided [Rule 3(ix)] (RTI format SQ08).
You would need to know:
(a) Which NGOs were paid how much to do what?
(b) What did they actually do?
This Act is to prevent
atrocities. The details of (c) Who certifies that they have done it?
the preventive action are (d) What is the evidence (reports, photographs etc).
specified in Rule 3
[Rule 3(i) to 3(xi)]. 14. The annual financial allocation for relief and socioeconomic
Ask for the details of their rehabilitation [Rule 14(1)] (RTI format Sa13). Without
implementation for the sufficient allocation, the state contingency plan [Rule 15(1)]
period under monitoring .
(RTI format SO07) cannot be implemented. (We will track
This is in addition to the
mandatory gazette the travel allowance and maintenance expenses (TAME)
notifications. [Rule 11] paid (RTI format SM05) and the relief provided
and amount paid [Rule 12(4)] (RTI format SO07) on a
monthly basis later). At the moment, getting the annual
financial allocation for relief and socioeconomic
rehabilitation [Rule 14(1)] is sufficient (RTI format SA13).
The full central support is available as one ‘proposal’. Each
state sends the proposal for release of central assistance by
the end of April along with the audited utilisation certificate
for the previous year. Ask for copies of the proposal sent by
your state both
Monthly reports
15. There are two monthly reports [Rule 4(4) and 8(1)(xi)] to be
submitted to the state before the 20th day of each subsequent
month, which will specify the action that will be taken.
However, there is a slight difference between them, and they
should not be confused. Under no circumstances should they
be taken to mean one and the same, as most governments do.
They are two different reports, with two different functions.
(a) The report by the district magistrate and the

officer–in–charge of the prosecution at the district level is
submitted to the director of prosecution (RTI format SM01)
and the state government (RTI format SM02) (in practice
state government means either the head of the protection
cell or the nodal officer herself, if the state has not notified
the protection cell). This report shall specify the actions
taken/proposed to be taken in respect of investigation and
prosecution of each case [Rule 4(4)].
(b) The scheduled castes and the scheduled tribes
protection cell submits a monthly report to the nodal
officer about the action taken, proposed to be taken, in
respect of the above [Rule 8(1)(xi)]. There are several
significant differences in this report—the most
important being that it is much more comprehensive in
that it also reports on Rule 8(1)(i) to Rule 8(1)(x).
Reviewing the position of cases registered under the
The report by the district
Act [Rule 8(1)(x)] is only one of the eleven components magistrate and the
of this comprehensive report (RTI format SM04). officer–in–charge of the
prosecution at the district
(c) The report under Rule 8(1)(xi) will have (i) if any survey level is submitted to the
has been conducted of the identified atrocity prone area; director of prosecution. This
report details the actions
(ii) maintaining public order and tranquillity in the
taken/proposed to be
identified area; (iii) recommendations for deployment of taken in respect of
special police force or establishment of special police
post in the identified area; (iv) making investigations
investigation and
prosecution of each case
6
[Rule 4(4)].
about the probable causes leading to an offence under the
Act; (v) restoring the feeling of security amongst the
members of the scheduled castes and the scheduled
tribes; (vi) information about the law and order situation
in the identified area; (vi–a) information about the
implementation of right of victim and witnesses as
specified in Chapter IVA, Section 15A (vii) the
investigation and spot inspections conducted by various
officers; (viii) action taken by the superintendent of
police in the cases where an officer in–charge of the
police station has refused to enter an information in a
book to be maintained by that police station under Rule
5(3); (ix) reports of inquiries about the wilful negligence
by a public servant; (x) reviewing the position of cases
registered under the Act, and (xi) the action taken
proposed to be taken, in respect of the above.
16. Get a copy of each of these reports monthly from the director
of prosecutions (RTI format SM01) and the nodal officer
(RTI format SM04). Request copies of the report of any
previous month after the 20th (For instance, on 21 April 2020
you can ask for the monthly report for any month from 1
January 1996 to 31 March 2020. On 21 May 2020 you can
ask for the monthly report for any month from 1 January
1996 to 30 April 2020). They will normally try to forward it
to the districts but insist that we want to know the districts
from which the state level mechanisms have got the reports,
so the request cannot be forwarded.
17. It is likely that the departments will deny information on the
pretext that it is information on pending investigations.
Appeal to the first appellate authority, and then to the state
information commission as required. At most they can deny
some information (personal details of victims or
perpetrators), not all (number of crimes, total amount paid
Departments deny
information on the as relief, total cases pending).
pretext that it is
information on pending
18. In the meantime, pending appeal, file RTI requests to know
investigations. Appeal to the date on which the reports were received by the director of
the first appellate prosecution and the state government from the districts
authority, and then to
[Rule 4(4)], and the dates when the consolidated monthly
the state information
commission as required. reports were received by the nodal officer from the scheduled
castes and the scheduled tribes protection cell [Rule 8(1)(xi)]
for the whole calendar year. This information cannot be denied.
Quarterly reviews
19. Two rules deal with reviews to be done ‘by the end of every
quarter’. Of them, the review under Rule 3(xi) is
comprehensive, and the review under Rule 7(3) is more
specific, conducted by a larger panel. We will need to use
both in combination to monitor.
20. Rule 3(xi) is a more comprehensive review of the law and
order situation, functioning of different committees,
performance of SPP, investigating officers and other
officers responsible for implementing the provisions of the
Act and the cases registered under the Act by the state
government. ‘State government’ could mean the director of
the protection cell or the nodal officer depending on the
arrangement in each state (RTI format SQ01).
21. Rule 7(3) specifies that the quarterly review of the position
of all investigations done by the investigating officer has to
be done by the secretary, home department, and the
secretary social welfare to the state government (additional
chief secretary, Adi Dravidar and tribal welfare department
in Tamil Nadu), director of prosecution, the
officer–in–charge of prosecution and the director general of
police or commissioner of police (RTI format SQ03).
22. Most states club the two reviews. Get the review report(s)
(RTI formats SQ01 and SQ03).
23. For every investigating officer (IO), the review shall cover
the number of:
days [Rule 7(2)].
(c) Cases for which investigation has not been completed
within 60 days, and for which the written explanation Two rules deal with reviews
has been received [Rule 7(2A)]. to be done ‘by the end of
every quarter’. Of them, the
(d) Cases for which the charge–sheet has been filed. review under Rule 3(xi) is
(e) Cases for which B reports (mistake of fact or false) have comprehensive, and the
been filed. review under Rule 7(3) is
more specific, conducted by
(f) Accused in FIR.
a larger panel. We will need
(g) Accused in charge–sheet. to use both in combination
(h) Cases ending in conviction.
(i) Accused acquitted (including in the cases for which there is
to monitor. 6
conviction) This is because the case is counted as ‘ending in
conviction’ even if one of the accused is convicted and 10
are acquitted. So, both the numbers are required.
(j) Whether the acquittal was because of poor
investigation. This will be in the report of the standing
committee of senior officers (SCI orders in the
Kishanbhai case), and we can get it independently using
RTI format SQ14.
This is not explicitly mentioned in the Act, but a review
of the position of the cases and the performance of all the
officials [Rule 3(xi)] would entail this at the very
minimum. This data is (should be) in the state annual
report [Rule 18] (RTI format SA17), and in the annual
state crime records bureau (SCRB) reports. The
aggregate for the state is in the annual publication ‘Crime
in India’ of the national crime records bureau (NCRB).
24. Get copies of the reports of the standing committee set up

under the SCI orders in the Kishanbhai case. It will have the
performance report (pinning accountability for acquittals) of
the investigating officer and the SPP. The review reports could
be monthly but is often done quarterly. It will contain the
report of all cases (not just those invoking this Act) of
acquittal, and the cases under this Act will need to be identified
and culled out from it for analysis (RTI format SQ14).
25. Under Rule 9, every state nodal officer reviews the reports
received under Rule 8 every quarter. We can get it all under
one request (RTI format SQ01), or if that proves to be
difficult, then individual requests may be necessary
(RTI formats SQ02 to SQ13).
(a) Position of cases registered under the Act [Rule 9(ii)]
(RTI format SQ04).
(b) Law and order situation in identified area [Rule 9(iii)]
(RTI format SQ05).
Under Rule 9, every
state nodal officer (c) Measures adopted for providing immediate relief to
reviews the reports the victims of atrocity or dependents [Rule 9(iv)]
received under Rule 8 (RTI format SQ06).
every quarter. We can
get it all under one
(d) Adequacy of immediate facilities, legal aid, travelling
request or if that proves allowance, daily allowance and transport facilities
to be difficult, then provided to the victims of atrocity of his/her
individual requests may
dependents; [Rule 9(v)] (RTI format SQ07).
be necessary.
(e) Performance of non governmental organisations
[Rule 9(vi)] (RTI format SQ08).
(f) Performance of the scheduled castes and the scheduled
tribes protection cell [Rule 9(vi)] (RTI format SQ09).
(g) Performance of various committees and the public
servants responsible for implementing the provisions of
the Act [Rule 9(vi)] (RTI format SQ10).
(h) Implementation of rights of victims and witnesses
[Rule 9(vii)] (RTI format SQ11).
(i) Reviews the following reports:
(i) Monthly report submitted by the district magistrate
and officer in charge of prosecution under Rule 4(4)
specifying the actions taken or proposed to be taken
in respect of investigation and prosecution of each
case (RTI format SM01).
(ii) Report submitted by the concerned authorities
under Rule 6 assessing the extent of atrocity, loss of
life and damage to the property (RTI format SM03).
(iii)Monthly report submitted by the Scheduled Castes

and the Scheduled Tribes Protection Cell under
Rule 8 (xi) (RTI format SM04).
26. For every DVMC meeting, the review will cover (and the
RTI request SQ12 should ask for):
(a) Date on which the meeting was conducted.
(b) Members present.
(c) Names of habitual absentees (members not attended
three consecutive meetings).
(d) Whether the meeting was conducted on time (at least
one a quarter).
(e) Whether the district collector has a record of delay or of
not conducting the DVMC meetings.
(f) Implementation of the relief and socioeconomic
rehabilitation schemes [Section 15(A)(11)] and
safeguarding the rights of victims, witnesses,
informants, and their dependents. It includes protection
Review the monthly report
provided, immediate payment of medical expenses
submitted by the district
(includes consultation, replacement clothing, meals, magistrate and officer in
and fruits), travel allowance, maintenance expense and charge of prosecution under
diet expenses (latest within three days [Rule11]), relief Rule 4(4) specifying the
actions taken or proposed
and socioeconomic rehabilitation (within one week and to be taken in respect of
instalments as per stage of the investigation and trial investigation and
[Rule 12(4) Schedule Annexure I]). prosecution of each case.
27. Subdivision level vigilance and monitoring committee

6
[Rule 17A] should meet every quarter and has the same
functions as the DVMC. The RTI request (SQ13) should
cover:
(a) How many SdVMCs are constituted in the state.
(b) How many are yet to be constituted.
(c) How many meetings were held in the last calendar year,
district–wise.
Half yearly reviews

28. The performance of the SPPs are reviewed in the months of
January and July at two levels.
(a) At the district level by the district magistrate and the
director of prosecution/in charge of the prosecution and
submit a report to the state government in January and
July [Rule 4(2)] (RTI format SH01).
(b) At the state government level [Rule 14(2)]
(RTI format SH03).
29. For every SPP, the DM and DP [Rule 4(2)] and the state
government [Rule 14(2)] shall review the number of:
(a) Cases argued.
(b) Cases ending in conviction.
(c) Accused in charge–sheet.
(d) Accused acquitted (including in the cases for which
there is conviction).
(e) Whether the acquittal is because of the case being
weakly argued without due care, caution, or
preparation.
of the role of the SPP would entail this at the very
minimum. The report submitted to the state government
on the performance of the SPPs in January and July
[Rule 4(2)], will (should) contain this information. The
finding of the reason for acquittal will be informed by
the report of the high level committee set up consequent
The performance of the to the orders of the SCI (RTI format SQ14).
SPPs are reviewed in the
months of January and 30. If the review by the state government [Rule 14(2)]
July at two levels. (RTI format SH03) of the report submitted by the districts
At the district level by
the district magistrate
[Rule 4(2)] (RTI format SH01) concludes that there is reason
and the director of to believe that a SPP has not conducted the case to the best of
prosecution/in charge of his ability with due care and caution, his name may be, for
the prosecution and
reasons to be recorded in writing, denotified [Rule 4(3)].
submit a report to the
state government in Ask for the details of those so denotified in the period under
January and July review (RTI format SH02).
[Rule 4(2)].
31. The reviews done by the state government under Rule 3(xi)
(RTI format SQ01) and 14(2) (RTI formats SH01, SH02,
SH03, and SH04), feed into the SVMC meetings in
Rule 16(2) as briefing notes.
Monitoring the SVMC

32. The state government reviews the following at least twice in
a calendar year in the month of January and July:
(a) Performance of SPP.
(b) Various reports received.
(c) Investigation made preventive steps taken by the DM,
SDM, SP.
(d) Relief and socioeconomic rehabilitation facilities
provided to the victims.
(e) Reports in respect of lapses on behalf of the concerned
government.
This could be interpreted as the agenda for the SVMC

or that the nodal officer does the review with the other
concerned officials. Either way, this information will
need to be a part of the briefing notes for the SVMC
when it meets (RTI formats SA12, SQ01, SH01, SH02,
SH03, and SH04.). Without this information, the
SVMC will not be able to conduct the review.
Setting up the SVMC [Rule 16(1)]

33. The state government shall constitute a high power
vigilance and monitoring committee [Rule 16(1)]. The state
vigilance and monitoring committee (SVMC) has to be
notified with every change in government. Use RTI to ask
for the notification setting up the SVMC after every change
in government (RTI format SA14).
34. The SVMC reviews are critical to ensure that the
government can fulfil its duties that the
(a) Administrative officers and other staff members posted If the review by the state
in an area prone to atrocity shall have the right aptitude government [Rule 14(2)]
of the report submitted
and understanding of the problems of the scheduled by the districts [Rule 4(2)]
castes and the scheduled tribes [Rule 13(1)] (We have concludes that there is
asked for the criteria in RTI format SO05). reason to believe that a SPP
has not conducted the case
(b) Scheduled castes and the scheduled tribes are
to the best of his ability with
adequately represented in the administration and in due care and caution, his
the police force at all levels, particularly at the level
of police posts and police stations [Rule 13(2)]
name may be, for reasons
to be recorded in writing,
6
denotified [Rule 4(3)].
(RTI format SA12).
Members of the SVMC [Rule 16(1)]

35. The high power vigilance and monitoring committee
consists of the following (RTI format SA15):
(a) Chief Minister/ Administrator–Chairman (in case of a
state under president’s rule, governor) – chairman.
(b) Ministers in charge of home, finance and welfare and
development of the scheduled castes and the scheduled
tribes (in case of a state under the president’s rule
advisors) – members.
(c) All members of parliament (MP), state legislative
assembly (MLA) and legislative council from the state
belonging to the scheduled castes and the scheduled
tribes – members.
(d) Chief secretary, the home secretary, the director
general of police, director/ deputy director, national
commission for the scheduled castes and the scheduled

tribes – members.
(e) Secretary in charge of the welfare and development of
the scheduled castes and the scheduled tribes –
convener.
Meetings [Rule 16(2)]

36. The SVMC shall meet at least twice in a calendar year
[Rule 16(2)], in the months of January and July to review the
implementation of the provisions of the Act, relief and
socioeconomic rehabilitation facilities provided to the
victims and other matters connected therewith, prosecution
of cases under the Act, role of different officers/agencies
responsible for implementing the provisions of the Act
and various reports received by the state government
(RTI format SH05).
37. If the meeting is not convened in January and July, remind
The SVMC reviews are the state nodal officer [Rule 9] and the chief minister of
critical to ensure the neglect of duties (Reminder format SR01 and SR02).
officers posted in an
area prone to atrocity 38. Follow up the letter after three months with a request under
have the right aptitude RTI asking for the action taken report on your complaint
and understanding
of the problems of the
(RTI format SH07, SH08).
scheduled communities, 39. Remind the nodal officer that she has to convene the SVMC
and that they are
adequately
meeting [Rule 16(v)] by sending a reminder on 1 November
represented at all and 1 May every year. This will give them sufficient time to
levels of the police and coordinate dates with the other dignitaries well in advance
administration.
(Reminder format SR02).
40. Ask for a copy of the minutes of the SVMC meetings on 15
February and 15 August every year. Follow it up till you get
it (RTI format SH05).
41. If the SVMC meeting has not been conducted ask:
(a) To inspect the concerned file [RTI 2005 Section 2(j)(i)
and note the reason why not [RTI 2005 Section 2(j)(ii)]
(RTI format SH06).
(b) For the action taken report (ATR) on your reminder sent
on 1 November or 1 May (RTI formats SH07 and SH08).
Briefing documents to be provided to the SVMC members

42. For effective participation in the meetings, the SVMC
members should be provided the following information
along with the agenda at least a week, preferably three
weeks, in advance of every SVMC meeting.
43. These reports should be given for the period under review.
These are existing reports and require no additional work if
the monthly reports by the protection cell and reviews by
the nodal officer are comprehensive and submitted on time.
Most of these are consolidated reports of the reviews
undertaken by the nodal officer or those provided to her.
(a) Position of each case submitted to the state
government. The cases would be
(i) Those registered during this time,
(ii) Those at various stages from registration to verdict,
(iii) Those that had a verdict during this time
(conviction, acquittal, or otherwise disposed off)
and
(iv) Any case for which relief or socioeconomic
rehabilitation has not been fully settled.
(b) It should have the progress of the case (whether it is in
the investigation, trial, or appeal stages or closed), and
explanation for delays (60 days each for FIR to In the citizens’ report,
highlight each case where
charge–sheet and charge–sheet to verdict). It should there is inordinate delay
include the relief and TAME, and socioeconomic in relief, rehabilitation, or
rehabilitation measures and reasons for delay (more reimbursements. Highlight
with reasons where
than three days for TAME, seven days for first
reimbursements [Rule11]
instalment of relief, three months for total have not been given for
socioeconomic rehabilitation including agricultural over 30 days, or relief
land, house, government job, fully paid residential and socioeconomic
rehabilitation [Rule 12(4)]
6
education up to graduation, and provisions for three has not been completed
months). If the case is closed (no charge–sheet, for over one year from
conviction, or acquitted but no appeal), the report filing the FIR, with a request
should have the reason why. for immediate action.
(c) For each case where the charge sheets have not been
filed in 60 days, written explanations filed by the
investigating officers [Rule 7(2A)]. Highlight with
reasons where charge–sheets have not been filed for
over 120 days from registering the complaint.
(d) For each case where trials have not been conducted on
a daily basis, reasons given in writing by the judge
[Section 14(3)]. Highlight with reasons where trials
have not been completed for over 120 days from filing
the charge–sheet.
(e) For each case the pending amounts and the reason for
delay where TAME, diet expenses, or medical
expenses have been delayed more than three days,
relief has not been paid according to the prescribed

schedule, or total socioeconomic rehabilitation have
not been provided within three months. Highlight with
reasons where reimbursements [Rule 11] have not been
given for over 30 days, or total relief [Rule 12(4)] has
not been fulfilled for over one year from filing the FIR.
(f) For each case of acquittal, reason why appeal has not
been filed. ‘Awaiting legal opinion’ is not a valid
reason, since appeals have to be filed in 90 days and
disposed of in 90 days.
(g) For each special public prosecutor: Performance
appraisal done in January and July every year by the
district collector [Rule 4(2)] and the state government
[Rule 14(2)].
(h) For each special public prosecutor and investigating
officer: Report of the high powered standing committee
on fixing responsibility for acquittals in all cases
For each case highlight
with reasons where
registered under this Act during the period. The
trials have not been Supreme Court of India has ordered (in the State of
completed for over Gujarat vs Kishanbhai etc.) that of 7 January 2014, a
120 days from filing
the charge–sheet.
high powered standing committee consisting of senior
officials of the police and prosecution departments in
every state to review all cases of acquittal and fix
responsibility for the acquittal – on the investigation for
poor investigation, or the prosecutor for poor
prosecution. This order is applicable for all cases, not
just for those booked under this Act. The data in the
report contains the performance of the investigating
officer and the special public prosecutor and should be
culled out and made available to the SVMC members.
(i) Number, details, status of proceedings and action taken
for dereliction of duty of any officials under this Act.
(j) List of special public prosecutors removed [Rule 4(3)]
and reasons.
(k) Court orders on victim and witness protection measures
undertaken [Section 15A(7)] and the orders regarding
the relief provided or paid based on the reports filed
under Rule 12(7).
(l) State crime records bureau data on crimes against
scheduled castes and the scheduled tribes for the
duration, with disaggregated data.
(m) Atrocity prone areas, along with changes of status.
(n) Arms confiscated and persons externed.

(o) New or proposed exclusive special courts.
(p) Performance of special courts, including district–wise
cases disposed and pending (available from SCRB).
Meeting agenda and role of the SVMC [Rule 16(2)]

44. The meetings of the SVMC are restricted only to the
members of the SVMC and to the specific purpose under the
Act and Rules.
45. The SVMC shall review in the months of January and July the
implementation of the provisions of the Act [Rule 16(2)]:
(a) Various reports received or reviews conducted by the
state under Rules 4(2), 4(4), 6, 7(3), 8, and 9.
(b) Scheme for the rights and entitlements of the victims
and witnesses in accessing justice as provided for in
Section 15A(11).
(c) Investigations made and preventive steps taken by the
district magistrate, subdivisional magistrate and If the SVMC meeting is not
superintendent of police. convened in January and
July, remind the state
(d) Relief and socioeconomic rehabilitation facilities nodal officer [Rule 9] and
provided to the victims, and related matters. the chief minister of
(e) Reports in respect of lapses on behalf of the concerned neglect of duties .
officers.
(f) The performance review of the SPP should be done
separately [Rule 14(2)] and fed into the SVMC meeting
held under Rule 16(2).
6
46. For every investigating officer (IO), the SVMC shall review
the number of:
days [Rule 7(2)].
(c) Reasons why investigations were not completed within
60 days [Rule 7(2A)].
(d) Cases for which charge–sheet has been filed.
(e) Accused in FIR.
(h) Accused acquitted (including in the cases for which
(i) Whether defective investigation was the cause of the
acquittal (from the report of the standing committee).
This would be in the report of the review under Rule 8
and the review under Rule 7(3).
47. For every SPP, the SVMC shall review the number of:
(a) Cases argued.
(e) Whether defective prosecution was the cause of the
acquittal (from the report of the standing committee).
The report submitted to the state government on the
performance of the SPPs in January and July
[Rule 4(2)], and the review conducted in Rule 9(v) will
(should) contain this information.
(f) Any action taken under Rule 4(3), though it might be
covered under Rule 8(1)(ix) also.
48. For every judge hearing cases under this Act (whether
designated special court or not), the SVMC shall review the
number of:
The SVMC should review, (a) Cases listed.
the implementation of the
Act, the scheme for the
(b) Cases heard.
rights and entitlements of (c) Cases ending in conviction.
the victims and witnesses (d) Accused in charge–sheet.
in accessing justice as
(e) Accused acquitted (including in the cases for which
provided for in
Section 15A(11), and there is conviction).
the performance of the This is not explicitly mentioned in the Act, but a review
various officials and of the role of the judge would entail this at the very
agencies, at a meeting
chaired by the chief
minimum. Some judges have a 100% acquittal rate,
minister every January and obviously would fall short of the requirement of
and July. All India Rule 13(1).
compliance is about 6.5%.
49. It is important to track both the number of cases ending in
conviction and the number of accused convicted since even
in the cases ending in conviction 9 out of 10 accused may be
acquitted (i.e. 90% acquittal).
50. The SVMC meeting should review the orders passed by the
judges regarding the protection of the rights of victims and
witnesses [Section 15A], and the orders regarding the relief
provided or paid based on the reports filed under Rule 12(7).
This should be given as part of the minutes (RTI format SH05),
but we can also ask for this separately (RTI format SH09).
Annual report
51. Ask for the state annual report forwarded by the state
government to the Government of India about the measures
taken for implementing provisions of the Act and various
schemes/plans framed by it during the previous calendar

year. This report is to be sent every year before 31 March
[Rule 18]. You can ask for this report under RTI any time
after 1 April for the previous year (For instance, on 1 April
2021 you can ask for the annual report for any year from
1995 to 2020. On 1 April 2022 you can ask for any report
from 1995 till 2021) (RTI format SA17).
52. The Government of India tables a report on the measures
taken by itself and by the state governments [Section 21(4)]
in each house of parliament annually. Ask for this report and
see if the sections covering your state match that of the state
annual report and your experience (RTI format SA28). Don’t
be surprised if the data doesn’t match even between the text
and the data table of the report, let alone data from different
government sources.
53. The full central financial support is available as one
‘proposal’. Each state sends the proposal for release of
It is important to track
central assistance by the end of April along with the audited both the number of cases
utilisation certificate for the previous year. Ask for copies of ending in conviction and
the proposal sent by your state both to the union Ministry of the number of accused
convicted since even in
Social Justice and Empowerment and to the concerned the cases ending in
ministry (usually the ministry of social welfare) in the state. conviction 9 out of 10
(The prescribed guidelines and performa are annexed to accused may be acquitted
Book V, pages 195 to 123). The proposal has the precise (i.e. 90% acquittal).
numbers to be covered of the victims (female/male, ST/SC), 6

special courts, special public prosecutors, special police
stations, workshops, awareness camps, and much more,
cross verify to see if they match the actual performance of
the state government as mentioned in the state annual report.
54. With the information collected, you can make a state profile
covering the mandatory requirements and the actual
implementation. The comparison and analysis will give you
the status of implementation of the Act in your state. Add a
page on the comparative ranking of the state and the national
averages taking the NCRB data into account. It is now a full
systems audit of implementation of this Act for the state for
the year.
55. Highlight the findings, insights, and recommendations in
a summary. Your report is now ready for discussion,
dialogue, and engagement.
If you have made it thus far, congratulations! Send it to us at
[email protected] if you would like to be on the website.
RTI Format 4: Request for SVMC meeting minutes u/r 16(2)
Our Ref: R16(2)/PoA/RTI/20__/S___

Date: __/__/20__
Dear Sir/Madam,
For the calendar years ____________ to __________.
Kindly furnish the following for the state level high power vigilance and monitoring
committee (SVMC) meetings:
1. Dates of the meetings.
2. Minutes of the meetings.
3. All briefing notes, reports, and performance appraisals prepared for the meeting.
Affixed the prescribed fee under the Right to Information Rules.
Thank you,
[Signature]
[Name]
To
Social Welfare Department
RTI Format 5: Request for state annual report u/r 18
Our Ref: R18/PoA/RTI/20__/S___

Date: ____/ ____/ ____
Dear Sir/Madam,
Ref: Rule 18 of the Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities)
Rules, 1995 as amended to date.
For the calendar years 1990 to 20___
Kindly furnish the following

1. The date on which the annual report was sent to the union government.
2. Copies of the state annual reports.
If this does not pertain to, or is not available with, your department, kindly transfer it to the
Thank you,
6
[Signature]
[Name]
To
RTI Format 6: Request for state contingency plan u/r 15

Date: ____/ ____/ ____
Dear Sir/Madam,
Kindly furnish a copies of the latest state contingency plan under Rule 15(1) of the
Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 in
a) English and
b) Official language(s) of the state.
Thank you,
[Signature]
[Name]
To
RTI Format 7: Request for chief minister’s tenure
Our Ref: SR16/PoA/RTI/20__/S___

Date: ____/ ____/ ____
Dear Sir/Madam,
For the calendar years ______ to _________
Kindly furnish the following information for each chief minister:

1. Date of oath taking.
2. Date of remitting office.
Thank you,
6
[Signature]
[Name]
To
Raj Bhavan
RTI Format 8: Request for translations of the Act and Rules in the official language

Date: ____/ ____/ ____
Dear Sir/Madam,
Kindly furnish copies of the following in the official language(s) of the state:
a) The Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 as
amended to date.
b) The Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Rules, 1995
as amended to date.
Thank you,
[Signature]
[Name]
To
Annexure 6.1: Contact details: State nodal officers
State nodal officer

State Contact details
Andhra Pradesh The Commissioner / Director

Social Welfare Department,
AP Secretariat, Velagapudi,
Amaravati – 522 238.
Phone: 0863 – 2443360.
Email: [email protected]
Arunachal Pradesh Department of Social Justice and Empowerment and Tribal Affairs,
Itanagar – 791 111.
Phone: 0360 – 2218638.
Assam The Director

Welfare of SC and BC, Assam Cum State Nodal Officer SC/ST POA Act,
Housefed Complex, Block–2, 2nd oor, dispute last gate,
Guwahati – 781 006.
Phone: 0361 – 2237243.
Email: [email protected] / [email protected]
Bihar The Secretary

SC and ST Welfare,
Old Secretariat, Block–4, Behind Sinchai Bhawan,
Patna – 800 015.
Phone: 0612 – 2215377.
Chattishgarh The Secretary

Department of ST and SC Development,
Room No S–4, Mahanadi Bhawan New Raipur,
Raipur – 492 015.
6
Phone: 0117 – 2221310.
Goa The Additional Secretary

18th June Road,
Panaji – 403 001.
Phone: 0832 – 2232257.
Gujarat Principal Secretary

Social Justice and Empowerment Department,
Sachivala,
Gandhinagar – 382 010.
Phone: 079 – 23251201.
Haryana Secretary
Welfare of Scheduled Castes and Backward Classes Department,
No. 53–54, Kalyan Bhawan, Sector – 2, Panchkula,
Chandigarh – 134 109.
Phone: 0172 – 2704006, 2564006.

Himachal Pradesh The Director

Directorate for the Empowerment of SCs, OBSs, Minorities and the Specially Abled,
Block No. 33–SDA Complex, Kasumpti,
Shimla – 171 009.
Phone: 0177 – 2621877.
Jharkhand The Secretary

SC/ST/OBC & Minorities Welfare Department,
Project Bhawan, Dhurwa,
Ranchi – 834 004.
Phone: 0651 – 2400215.
Karnataka The Principal Secretary

M S Building Park, 5th, Dr Ambedkar Rd,
Bengaluru – 560 001.
Phone: 080 – 22034440.
Kerala The Principal Secretary

The Scheduled Castes and the Scheduled Tribes Development Department,
4th Floor, Vikas Bhavan,
Thiruvananthapuram – 695 033.
Phone: 0471 – 2518232.
Madhya Pradesh Secretary

SC Welfare Department,
No. 35 Rajiv Gandhi bhawan, Shyamala hills,
Bhopal – 462 002.
Maharashtra Principal Secretary

Commissionerate of Social Welfare,
3 Church Path, Agarkar Nagar,
Pune – 411 001.
Phone: 022 – 22026688.
Manipur Social Justice & Special Assistance Department,

Imphal – 795 001.
Phone: 0385 – 2451183, 2452629.
Meghalaya Social Welfare Department,

Shillong – 793 001.
Mizoram Social Welfare Department,

Aizawl – 796 001.
Phone: 0389 – 2311014.

Nagaland Social Welfare Department

Kohima – 797 001.
Phone: 0370 – 2245762.
Odisha ST and SC Development, Minorities and Backward Classes Welfare Department,

6th Floor, Toshali Bhawan, A–2 Block,
Bhubaneswar – 751 007.
Phone: 0674 – 2392762, 2536672.
Punjab The Secretary/ Principal Secretary

Department of Welfare of Scheduled Castes and Backward classes and Minorities,
Additional Town Hall Building, 3rd Floor, Sector-17 C,
Phone: 0172 – 2740214.
Rajasthan Secretary
Social Justice and Welfare Department,
G–3/1, Ambedkar Bhawan,
Rajmahal Residency Area,
Jaipur – 302 005.
Phone: 0141 – 2227333, 2220194.
Sikkim Deputy Secretary

Lumsay, Tadong, East Sikkim,
Gangtok – 737 102.
6
Phone: 03592 – 204884, 232596.
Telengana The Commissioner

Scheduled Castes Development Department,
Room 24, Floor 3, Dr. B. R. Ambedkar Telangana Secretariat Rd, Khairtabad,
Hyderabad – 500 022.
Phone: 040 – 23450923.
Tripura Department of Welfare of SCs, OBCs,

P. N Complex, Gurkhabasti, District – West Tripura,
Agartala – 799 001.
Phone: 0381 – 2415569, 2329034.
Tamil Nadu The Secretary

Adi–Dravidar and Tribal Welfare Department,
Secretariat,
Chennai – 600 009.
Phone: 044 – 25671848.

Uttar Pradesh The Special Secretary

Prag Narayan Rd, Butler Colony,
Lucknow – 226 001.
Phone: 0522 – 2237965, 3538700.
Uttrakhand The Director

Bhagat Singh Colony, MDDA, Dalanwala,
Dehradun – 248 001.
Phone: 05946 – 297051, 0135 – 2669764.
West Bengal The Principal Secretary

Backward Classes Welfare Department,
Administrative buildings,
DJ–4, Dishannagar, Sector– II,
Kolkata – 700 091.
Phone: 033 – 23371040.
Andaman and Directorate of Tribal Welfare

Nicobar Islands (UT) Andaman and Nicobar Administration,
Secretariat Complex,
Port Blair – 744 101.
Phone: 0319 – 2233356.
Chandigarh (UT) The Secretary

Department of Social Welfare, Women & Child Development,
Additional Town Hall Building, 3rd Floor, Sector – 17 C,
Phone: 0172 – 2749132.
Dadra & Nagar Haveli Social Welfare Department

Daman and Diu (UT) Lekha Bhavan, 3rd oor, Behind Secretariat,
Silvassa – 396 230.
Phone: 0260 – 230088, 2632027.
Delhi (UT) The Secretary

Department of Welfare of SC/ST/OBC and Minorities,
30, Azad Bhawan Rd, ITO, IP Estate, New Delhi,
Delhi – 110 002.
Phone: 011 – 23378278, 23378279.

Jammu & Kashmir (UT) The Secretary

Civil Secretariat,
103 A/D Opp Police Line Headquarters, Jammu,
Gandhi Nagar – 180 004.
Phone: 0191 – 2542759, 2500585.
Ladakh (UT) The Secretary

Social and Tribal Welfare department,
Civil Secretariat,
Leh – 194 101.
Phone: 0198 – 2252585.
Lakshadweep (UT) Social Welfare and Tribal Affairs Department,

Kavaratti – 682 555.
Phone: 04896 – 262547.
Puducherry (UT) The Secretary

Adi Dravidar and Tribal Welfare and Scheduled Tribes Welfare Department,
Thattanchavady,
Puducherry – 605 009.
Phone: 0413 – 2275631, 2276375.
Annexure 6.2 Contact details: NCSC
National Commission for Scheduled Castes (Regional Offices)

National Commission for Scheduled Castes Jurisdiction
National Commission For Scheduled Castes, Headquarters

5th Floor, Lok Nayak Bhawan, Khan Market,
New Delhi – 110 003.
Phone: 24620435.
Mail: [email protected]
Deputy Secretary Tripura

Tripura SC Finance Corporation Building,
3rd Floor, Pragati Road, Lake Chowmohani,
Agartala – 799 001.
Phone: 0381 – 2323140, 2315967.
Director Gujarat
2nd Floor, Mavlankar Haveli, Rajasthan
Vasant Chowk, Lal Darwaja, Dadra and Nagar Haveli and Daman and Diu
Ahmedabad – 380 001.
Phone: 079 – 25509762, 25510717.
Director Karnataka
3rd Floor, ‘D’ Wing, CGO Complex,
Kendriya Sadan, Koramangala,
Bangalore – 560 034.
Phone: 080 – 25537155, 25527767.
Deputy Inspector General of Police Haryana

6th Floor, Kendriya Sadan, Sector–9–A, Punjab
Chandigarh – 160 017. Himachal Pradesh
Phone: 0172 – 2742561, 2743784. Jammu and Kashmir
Email: [email protected] / [email protected] Uttarakhand
Chandigarh
Director Tamil Nadu

2nd Floor, Block–5, Shastri Bhawan, Puducherry
Chennai – 600 006.
Phone: 044 – 28276430, 28312851.
Deputy Secretary Assam

7, Nilamani Phukan Path, Christian Basti, Dispur, Arunachal Pradesh
Guwahati – 781 005. Nagaland
Phone: 0361 – 2347040, 2346885. Meghalaya
Mizoram
Manipur
Director Andhra Pradesh

Block 204, Maithry Vihar, Ameer Peth, Madhya Peradesh
Hyderabad – 500038 Telangana
Phone: 040 – 23534907, 23754908. Chhattisgarh
Annexure 6.2 Contact details: NCSC
National Commission for Scheduled Castes (Regional Offices)

National Commission for Scheduled Castes Jurisdiction
Director West Bengal

MayukhBhawan, (Ground Floor), Salt Lake City, Odisha
Kolkata – 700 091. Sikkim
Phone: 033 – 23370977, 23213259. Andaman and Nicobar Islands
Director Uttar Pradesh
5th Floor, Kendriya Bhawan, Sector–H, Aliganj,
Lucknow – 226 024.
Phone: 0522 – 2330288, 2323860.
Director Bihar
Karpuri Thakur Sadan, Kendriya karamchari Prishar, Jharkhand
5th oor, F wing, Ashiana – Digha Road,
Patna – 800 001.
Phone: 0612 – 2565285.
Director Maharashtra
Kendriya Sadan, ‘A’ Wing, 1st Floor, Opp. Akurdi Rly. Station, Goa
Nagdi Pradhikaran, Sector – 26,
Pune – 411 044.
Phone: 020 – 27658973.
Director Kerala
TC-24/547(1), Sastha Gardens Residency Road,
Near Govt. Guest House, Thycaaud,
Lakshadweep 6
Thiruvananthapuram – 695 014.
Phone: 0471 – 2327530, 2327661.
Annexure 6.3 Contact details: NCST
National Commission for Scheduled Tribes (Regional Offices)

National Commission for Scheduled Tribes Jurisdiction
National Commission for Scheduled Tribes (HQ), Headquarters

6th Floor, B-Wing, Loknayak Bhavan, Khan Market,
New Delhi – 110 003.
Phone: 24635721, 24624628.
Mail: [email protected]
Director Madhya Pradesh

Room No. 309, Nirman Sadan, CGO Complex, 52–A, Maharashtra
Arera Hills, Karnataka
Bhopal – 462 011. Kerala
Phone: 0755 – 2576530, 2578272. Goa
Email: [email protected] Dadra and Nagar Haveli
Lakshadweep
Director Andhra Pradesh

N-1/297, IRC Village Nayapali, Odisha
Bhubaneshwar – 751 015. Tamil Nadu
Phone: 0674 – 2551616, 2551818. Telangana
Email: [email protected] West Bengal
Andaman and Nicobar Islands
Puducherry
Research Officer Gujarat

Room No. 101 & 102, first oor, Kendriya Sadan, Haryana
Sector–10, Vidhyadhar Nagar Himachal Pradesh
Jaipur – 302 023. Punjab
Phone: 0141 – 2236462, 2235488. Rajasthan
Email: [email protected] Uttarakhand
NCT of Delhi
Chandigarh
Daman and Diu
Jammu and Kashmir
Research Officer Chhattisgarh

EAC Colony plot No 3/16, first oor,
Behind District Courts, Near Purnima School,
Raipur – 492 001.
Phone: 0771 – 2443334, 2443335.
Research Officer Bihar

14, New A.G. Co-operative Colony, Kadru, Jharkhand
Ranchi – 834 002. Uttar Pradesh
Phone: 0651 – 2341677, 2340368.
268 POA Handbook for Justice - 2024

Annexure 6.3 Contact details: NCST
National Commission for Scheduled Tribes (Regional Offices)

National Commission for Scheduled Tribes Jurisdiction
Additional Charge Director Arunachal Pradesh

Rabekka Villa, Temple Road, Lower Lachumiere, Assam
Shillong – 793 001. Manipur
Phone: 0364 – 2504202, 2221362. Meghalaya
Email: [email protected] Mizoram
Nagaland
Sikkim
Tripura
7 MONITORING AT THE DISTRICT LEVEL
Introduction .............................................................................................................................273
District level: Responsibility and mechanisms ..........................................................................274
District level: Officials ............................................................................................................................275
The DVMC.............................................................................................................................................278
Monitoring the DVMC...............................................................................................................279
Setting up the DVMC [Rule 17(1)]..........................................................................................................279
Members of the DVMC [Rule 17(2)] ......................................................................................................279
Meetings [Rule 17(3)] ...........................................................................................................................279
Meeting agenda and role of the DVMC [Rule 17(1)]................................................................................279
Documents to be provided to the DVMC members .................................................................................280
Proceedings of the DVMC......................................................................................................................282
POA Handbook for Justice – 2024 Monitoring at the district level 271
Monitoring at the district level 7
Introduction
This guide book provides the tools to monitor one of the state
mechanisms to monitor implementation of the Scheduled Castes
and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 at
the district level – the district vigilance and monitoring
committee, DVMC.
It lists the processes, procedures, preparation, and execution of
the statutory monitoring provisions so that compliance can be
monitored using the provisions of the Right to Information
Act, 2005 (RTI) or, in the case of DVMC members, by better
participation in the DVMC meetings. Compliance can be
monitored using the
It will also enable the civil service to better prepare for and provisions of the Right to
conduct the reviews so that the Scheduled Castes and the Information Act, 2005
or, in the case of
Scheduled Tribes (Prevention of Atrocities) Act, 1989 can be DVMC members, better
more efficiently implemented at all levels. participation in the
DVMC meetings using
All the processes to be followed in the implementation of this the reports generated by
Act, and the events within them, are documented. Therefore, the internal mechanisms
once the documentation is accessed, the health of the mechanism of this Act.
can be assessed. On analysis, the areas where remedial action is

necessary will become apparent and they can be addressed.
All the right to information (RTI) requisition formats required to
get information are alphanumerically coded. The first alphabet
'D' is for district since these formats are for district level
monitoring. The second alphabet is for periodicity. A = Annual;
H = Half–yearly; Q = Quarterly; M = Monthly; O = Once (or
occasional). So DA01 is a district (D) level annual (A)
information request format (01). Some notifications (exclusive
special courts, nodal officer, protection cell) are done only once,
and therefore the 'O' formats are used for those. Since the
requirements for RTI requests vary from state to state, the
formats are not included in this handbook, but can be made
available on request.
POA Handbook for Justice - 2024 Monitoring at the district level 273
Monitoring at the district level
District level: Responsibilities and mechanisms

District level: Responsibilities and mechanisms
District For each district, a DVMC is set To meet at least once every three months [Rule 17(3)] to
Vigilance and up by the DM for reviewing the review:
Monitoring implementation of the Act. (a) Implementation of the Act.
Committee Members of DVMC include:
(b) Scheme for the rights and entitlements of victims
(DVMC)  The elected members of the
and witnesses in accessing justice as specified in
Parliament and State
Section 15A (11).
Legislative
Assemblies/Council. (c) Relief and rehabilitation facilities provided to the
 SP. victims and other matters connected therewith.
 Three group 'A' officers / (d) Prosecution of cases under the Act.
Gazetted Officers belonging
(e) Role of different officers/agencies responsible for
to the scheduled
implementing the provisions of the act and various
communities.
reports received by the district administration.
 Not more than 5 non–official
members belonging to the
 Not more than three
members from the categories
other than the scheduled
communities having
association with NGOs.
 The DM is the chairman and
the District Social Welfare
Officer is the Member–
Secretary of the DVMC.
Special Court/  For the purpose of providing (a) Provide protection, travel allowance, and maintenance
Exclusive speedy trial, the state expenses (TAME), relief, socioeconomic rehabilitation,
Special Court government shall, with the and relocation during investigation, inquiry and trial
concurrence of the Chief [Section 15A(6)] at the appropriate time as required.
Justice of the High Court (b) Periodically review the protection being offered by the
establish Exclusive Special state government to the victims and witnesses and
Court for one or more districts pass appropriate orders [Section 15A(7)].
or designate a Sessions Court
(c) Conceal the names and addresses of the victims in all
as a Special Court in districts
documents accessible to the public [Section 15A(8)(b)]
having less number of cases
and order non-disclosure by others as well
under the Act.
[Section 15A(8)(b)].
 It shall be the duty of the state
(d) Act immediately on any complaint regarding
government to establish an
harassment of witnesses, including conducting a
adequate number of courts to
separate trial to be concluded within two months
ensure that cases are
[Section 15A(8)(c)].
disposed of under the Act
within two months from the (e) Protect witnesses from harassment by officials by
date of filing the charge–sheet ordering non-interference in any and all matters, except
[Section 14(2)]. with the permission of the court [Section 15A(8)(c)].
274 Monitoring at the district level POA Handbook for Justice - 2024
District level: Officials

1 District The district magistrate (a) Within 24 hours: Do a spot inspection to assess damage to
Magistrate (DM) is the executive property and life and draw a list of victims, their family
head of the district. The members and dependents entitled for relief, and forward a
DM is generally copy of the Relief and Rehabilitation report to the Special
responsible for Court/Exclusive Special Court [Rule 12(7)].
maintenance of law and and
order in the district. Make necessary arrangements for immediate relief which
Under this Act, the DM includes food, water, clothing, shelter, medical aid,
is an important authority transport facilities, and other essential items [Rule 11].
responsible for (b) Within 7 days: Make necessary arrangements to provide
implementation of the relief in cash or kind or both to victims of atrocity, their
provisions of the Act for family members, and dependents.
reviewing various (c) During investigation and trial: Provide travel allowances,
reports and daily allowances, maintenance expenses, and diet expenses
performance of to the victims, dependents, and witnesses [Rule 11].
authorities. (d) Monthly: To review the position of cases registered under
the Act and the implementation of the rights of victims and
witnesses and submit a monthly report to the Director of
Prosecution and State Government on or before 20th of
every month [Rule 4(4)].
(e) Quarterly: Conduct the DVMC meeting at least once in three
months [Rule 17(3)].
(f) January and July: Review the performance of SPPs/ESPPs
twice a year in January and July and submit a report to the
state government [Rule 4(2)]. Review the position of all
investigations done by the investigating officer by the end of
every quarter [Rule 7(3)].
(g) Periodic: To review the law–and–order situation in the
identified area [Rule 3(ii)].
(h) Every three years: Constitute DVMC to review the
implementation of the Act [Rule 17].
2 Special Special officers not below (a) Give immediate relief and other facilities to victims and
7
Officer the rank of an Additional initiate necessary preventive measures.
District Magistrate are (b) Set up awareness centres and organise workshops in
appointed for the identified areas or at district headquarters to educate the
identified area. The persons belonging to the scheduled communities about their
purpose is to coordinate rights and protection available to them under various central
with DM, SP, and other and state enactments or rules and schemes etc.
officers responsible for (c) Coordinate with NGOs and provide them with the necessary
implementing the facilities and financial assistance for conducting workshops
provisions of the Act, and maintaining awareness centres.
various committees, and (d) Ensure implementation of Victim and Witness Rights in the
the SCs and the STs identified area as specified in Chapter IVA of the Act
Protection Cell [Rule 10]. [Rule 10(iv)].
(e) Execute the rights of victims, dependents or associated
In Tamil Nadu, the district
organisations or individuals, at every stage of the proceedings
collector is the special
under this Act and to provide the necessary assistance for the
officer.

3 SP / The Superintendent of (a) Visit the place or area where the atrocity has been
Commissioner Police is the head of the committed to assess the loss of life and damage to the
district police property and draw a list of victims, their family members
(non–metropolitan areas) and dependents entitled for relief [Rule 12(1), Rule 12(7)
Commissioner of Police and Rule (6)].
is the head of the district (b) After spot inspection, appoint the investigating officer,
police (metropolitan take preventive measures if necessary [Rule 12(3)].
areas). Generally, they (c) Immediately forward the investigation report submitted
are responsible for the by IO to the Director General of Police or Commissioner
prevention of crime and of Police and officer in–charge of the police station.
maintenance of law and (d) Ensure that FIR is registered, and necessary measures
order within their are taken for apprehending the accused [Rule 12(2)].
jurisdiction. Under this (e) Execute the rights of victims, dependents or associated
Act, they play an organisations or individuals, at every stage of the
important role in ensuring proceedings under this Act and to provide the necessary
fair and just investigation. assistance for the execution of the rights
The SP is also a member [Section 15A(11)(n)].
of the DVMC.
4 DSP/ Asst. The investigating officer (a) Record the complaint of victims, informant, or witnesses
Commissioner is appointed to perceive whether given orally or in writing, read it out to them,
(IO) the implications of the and provide a photocopy of that complaint and the FIR
cases under the Act and free of cost [Rule 5(2)].
investigate it along the (b) Complete investigation of the case and submit the report
right lines of justice. to the Superintendent of Police & file charge–sheet
Before appointing a within 60 days [Rule 7(2)].
police officer (not below (c) Explain in writing any delay in investigation or filing of
the rank of DSP) as an IO, charge–sheet [Rule 7(2A)].
their experience, sense of (d) Record the complaint of victim, informant or witnesses
ability and justice to against any kind of intimidation, coercion or inducement
perceive the implications or violence or threats of violence, whether given orally or
of the case and in writing, and give a photocopy of the FIR immediately
investigate it along with free of cost [Section 15A(9)].
right lines must be (e) Provide information about the rights of atrocity victims
considered by the state at the time of making complaints and registering the FIR
government [Rule 7(1)]. [Section 15A(11)(g)].
(f) Provide protection to victims, dependents, and witnesses
from intimidation and harassment [Section 15A(11)(h)].
(g) Provide information to victims, dependents, or
associated organisations or individuals, on the status of
investigation and charge–sheet and to provide a copy of
the charge–sheet free of cost [Section 15A(11)(i)].
(h) Take necessary precautions at the time of medical
examination [Section 15A(11)(j)].
(i) Provide information to victims, dependents, or associated
organisations or individuals, regarding the relief amount
[Section 15A(11)(k)].
(j) Provide information to victims, dependents, or associated
organisations or individuals, in advance about the dates
and place of investigation and trial [Section 15A(11)(l)].

(k) Give adequate briefing on the case and preparation for
trial to victims, dependents, or associated organisations
or individuals and to provide the legal aid for the said
purpose [Section 15A(11)(m)].
(l) Execute the rights of victims, dependents or associated
organisations or individuals, at every stage of the
proceedings under this Act and to provide the
necessary assistance for the execution of the rights
[Section 15A(11)(n)].
5 In–charge of (a) Member of the DVMC.

Prosecution (b) Review the position of cases registered under the Act
and the implementation of the rights of victims and
witnesses and submit a monthly report to the Director
of Prosecution and the state government which shall
specify the actions taken or proposed to be taken in
respect of investigation and prosecution of each case
[Rule 4(4)].
(c) Review the position of all investigations done by the
investigating officer by the end of every quarter.
[Rule 7(3)].
6 Special public To prosecute cases under (a) Conduct cases in the special courts.
prosecutor and the Act, the state (b) Inform the victim about any proceedings under this Act
exclusive government prepares two including all reasonable, accurate, and timely notice of
special public panels. One contains any court proceeding including any bail proceeding
presecutor eminent senior advocates [Section 15A(3)].
with not less than 7 years’ (c) Give adequate briefing on the case and preparation for
experience. This panel is trial to victims, dependents, or associated organisations
prepared for each district or individuals and to provide the legal aid for the said
on the recommendation of purpose [Section 15A(11)(m)].
the DM.
The second panel,
prepared on the 7
recommendation of the
Director of Prosecution,
consists of special public
prosecutors and
exclusive special public
prosecutors.
7 Judge of the Judge of the special (a) Provide protection, travel allowance and maintenance
special court court decides the cases expenses (TAME), relief, socioeconomic rehabilitation,
under the Act. She and relocation during investigation, inquiry and trial
plays a very important [Section 15A(6)] at the appropriate time as required.
role in the protection of (b) Check the relief and rehabilitation report submitted by
victims and securing the District Magistrate and order for increased relief/ any
fair access to trial and other assistance if the relief provided is found
justice. insufficient or not provided in time to the victims or
dependants [Rule 12(7)].

(c) Periodically review the protection provided by the

government to the victims and witnesses and pass
appropriate orders [Section 15A(7)].
(d) Conduct proceedings day–to–day and record in
writing the reasons for adjournment beyond the
following day [Section 14(3)].
(e) Conceal the names and addresses of the victims in all
documents accessible to the public [Section 15A(8)(b)]
and order non-disclosure by others as well
[Section 15A(8)(b)].
(f) Take immediate action in respect of any complaint
relating to harassment of a victim, informant, or witness
and on the same day, if necessary, pass appropriate
orders for protection on the same day
[Section 15A(8)(c)].
(g) Protect witnesses from harassment by officials by
ordering non-interference in any and all matters, except
with the permission of the court [Section 15A(8)(c)].
(h) Try all complaints received under Section 15A(8)(c)
separately from the main case and conclude it within
two months from the date of receipt of the complaint.
The DVMC
At the district level, the DVMC is the most important mechanism
to ensure implementation since all the critical officials (district
magistrate, superintendent of police, in charge prosecutions, the
investigating officer, the special public prosecutor, and the
district welfare officer) are members of the committee. All the
MPs and MLAs from the scheduled communities in the district
are members of the DVMC, as are two NGO representatives.
This vertical and horizontal diversity makes the DVMC an apt
forum to address the administrative, law and order, and social
aspects of implementation and to execute locally appropriate
remedies quickly.
The district magistrate and superintendent of police visit every
atrocity location within 24 hours for a spot inspection (or at least
that is what is required by law [Rule 12(1)]), and the
investigating officer (the deputy superintendent of police, DSP),
and the special public prosecutor (SPP) are direct reports of the
superintendent of police (SP) and in charge prosecutions
respectively, so supervision and rectification can be immediate.
The district vigilance and monitoring committee meetings are to
be conducted at least once in three months so that the
socioeconomic rehabilitation is done on time – i.e., within three

months of the FIR being registered [Rule 12(4)]. The DVMC
demonstrates the commitment of the top administrative and
executive echelons at the district level to the implementation of
the Act with attention to the competence and performance of the
concerned officials.
Monitoring the DVMC

Setting up the DVMC [Rule 17(1)]
1. In each district within the state, the district magistrate
shall set up a vigilance and monitoring committee
(RT I format DA02).
Members of the DVMC [Rule 17(2)]

2. The DVMC shall consist of (RTI format DA02)
(a) Members of the parliament (MP) and state legislative
assembly (MLA) and legislative council.
(b) Superintendent of police (SP).
The district vigilance and
(c) Three group ‘A’ officers, gazetted officers of the state monitoring committee
government belonging to the scheduled castes or meetings are to be
scheduled tribes. conducted at least once in
three months so that the
(d) Not more than five non–official members belonging to socioeconomic
the scheduled castes or scheduled tribes. rehabilitation is done on
(e) Not more than three members from the categories other time – i.e., within three
months of the FIR being
than the scheduled castes or the scheduled tribes having registered [Rule 12(4)].
(f) The district magistrate (chairman).
(g) The district social welfare officer (member–secretary).
Meetings [Rule 17(3)]

3. The district level committee shall meet at least once in three 7
months (RTI format DQ01).
4. If the meeting is not convened every quarter, complain to the
state nodal officer [Rule 9] requesting him to conduct an
inquiry and take action under Section 4 of the Act
Punishment for neglect of duties.
5. Follow up the letter after three months with a request under
RTI asking for the action taken report on your complaint.
Meeting agenda and role of the DVMC [Rule 17(1)]

6. The meetings of the DVMC are restricted only to the
members of the DVMC and to the specific purpose under the
Act and Rules. They cannot be clubbed with the public
grievances or the monthly meetings. Unfortunately,
clubbing meetings tends to be the norm, and it is good
practice to bring it to the notice of the district collector so

that the practices is discontinued and the committee can
focus on its mandate.
7. The DVMC shall review:
(a) Implementation of the provisions of the Act.
(b) Schemes to secure the rights and entitlements to protect
the victim–survivors, witnesses, informants, and
dependents and enable their access to justice
[elaborated in Section 15A(11)].
(c) Relief and rehabilitation facilities provided to the
survivors and other matters connected therewith.
(d) Prosecution of cases under the Act.
(e) Role of different officers responsible for implementing
the provisions of the Act.
(f) R o l e o f d i f f e r e n t a g e n c i e s r e s p o n s i b l e f o r
implementing the provisions of the Act.
(g) Various reports received by the district administration
The meetings of the
DVMC are restricted only (This would include reports under Rules 6(2) and 12(7)
to the members of the for each case, and the report of the supreme court
DVMC and to the specific ordered standing committee).
purpose under the Act and
Rules. They cannot be
(h) Orders passed by the court to enforce the rights of
clubbed with the public victims, witnesses, dependents and for their protection
grievances or the [Section 15A(7)].
monthly meetings.
8. In addition, the DVMC can also:
(a) Identify atrocity prone areas.
(b) Suggest measures to prevent atrocities in those areas.
Documents to be provided to the DVMC members

9. For effective participation in the DVMC meetings, the
DVMC members should be provided the following
information along with the agenda at least a week,
preferably three weeks, in advance of every DVMC meeting
(RTI format DQ01). If the monthly report [Rule 4(4)] is
given at the same time it is sent to the government, and the
case reports [Rule 6(2) and 12(7)] are given to the DVMC
members when they are sent to the special courts, it will help
in informed engagement at the meeting.
10. DVMC members should get all the following reports: Three
statutory monthly reports [Rule 4(4)], Rule 6(2) and
Rule 12(7) reports of all cases in the quarter, Rule 7(2A)
reports for all cases for which charge–sheets were not filed
within 60 days, and the reports of the standing committee,
etc. However, the performance appraisal of the SPP are
done only in January and July every year by the district

collector [Rule 4(2)] (RTI format DH03) and the state
government [Rule 14(2)] (RTI format SH03). So they will be
available for discussions only for the DVMC meetings held
in the first meeting after they are finalised (most likely in
DVMC meetings conducted in the first and third quarters).
11. All these reports should be given for the period under
review. These are existing reports and require no additional
work if the monthly report [Rule 4(4)] is comprehensive and
submitted on time.
(a) Three monthly reports [Rule 4(4)] on the position of
the cases submitted to the state government. This
should have the progress of the case (whether it is in
the investigation, trial, or appeal stages or closed),
and explanation for delays (60 days each for FIR to
charge–sheet and charge–sheet to verdict). It should
include the relief and TAME, and rehabilitation
The DVMC should review
measures (including house, land, government job)
the relief and
and reasons for delay (3 days for TAME, seven days rehabilitation facilities
for first instalment of relief, six months for total provided to the survivors
rehabilitation including agricultural land, house, and and other matters
connected therewith.
government job, and all relief). If the case is closed
(no charge–sheet, conviction, or acquitted but no
appeal), the monthly report should have the reason
why (RTI format DM01 and DM02).
(b) For each case (if the monthly report [Rule 4(4)] does
not have it) the TAME [Rule 11] (RTI format DM07),
relief, and rehabilitation information [Rule 12(4)]
(RTI format DM06 and DM09).
(c) For each case the inquiry and spot inspection reports
7
[Rules 6(2) and 12(7)] (RTI format DM04), and the
orders passed by the superintendent of police for
deployment of police and prevention [Rule 12(3)]
(RTI format DM05).
(d) For each case the reports submitted to the special
courts on the fulfilment of victims and witnesses rights
[Section 15A(7), and Rule 12(7)] (RTI format DM03).
(e) For each case Orders passed by the courts based on their
review of the victim and witness protection measures
undertaken [Section 15A(7)] (RTI format DA06).
(f) For each case where the charge–sheets have not been
filed in 60 days written explanations filed by the
investigating officers [Rule 7(2A)] (RTI format DM08).
(g) For each case where trials have not been conducted on
a daily basis, reasons given in writing by the judge
[Section 14(3)] (RTI format DM 13).
(h) Performance appraisal of the SPP (done in January and
July every year by the district collector) [Rule 4(2)]
(RTI format DH03).
(i) Performance appraisal of the SPP (done in January and
July every year by the state government) [Rule 14(2)]
(RTI format SH03).
(j) Quarterly report of the high powered district standing
committee on fixing responsibility for acquittals, set
up on the orders of the Supreme Court of India in the
State of Gujarat vs Kishanbhai etc. [Criminal Appeal
1485 of 2008] of 7 January 2014. The data in the
report contains the performance of the investigating
officer and the special public prosecutor and should
be culled out and made available to the DVMC
DVMC meetings should be
conducted on 15 March,
members (RTI format DQ03).
15 June, 15 September, and
15 December to benefit Proceedings of the DVMC
from the SdVMC meetings 12. For each case, the DVMC should review the present status
on 1 March, 1 June, [Rule 17] (RTI format DQ01) which includes:
1 September, and
1 December and to feed (a) Report under Rules 6(2) and 12(7) for the case (this
into the SVMC meetings report is almost never filed, so asking for it would be a
on 15 January and 15 July. good first step in getting the mechanisms activated).
(b) Measures taken to secure the rights and entitlements of
dependents to enable their access to justice [elaborated
in Section 15A(11)].
(c) What has been done so far in pursuing the case,
including arrests, bail, counter cases, protection, and
relief, travel allowance and maintenance expenses due
and paid.
(d) Relief due and paid, and reasons for delay in payment to
victim–survivors, witnesses, informants, and
dependents [as per Rule 12(4) Schedule Annexure I r/w
Annexure II, and Rule 15(1) contingency plan].
(e) Rehabilitation due, rehabilitation done, and reasons for
delay in payment to victim–survivors, witnesses,
informants, and dependents [as per Rule 12(4)
Schedule Annexure I r/w Annexure II, and Rule 15(1)
contingency plan].
(f) TAME due, paid, and reasons for delay in payment to

dependents (immediate payment, and in any case not
later than three days during investigation and trial)
[Rule 11].
(g) The stage the case is at now (rehabilitation and relief
depend on this, apart from the support and security
from law enforcement).
(h) Actions proposed to be done in the near future. This, the
present status, and action taken to date are required to
be in the monthly report [Rule 4(4)]. For an informed
discussion, DVMC members need to be given the
monthly report [Rule 4(4)] of the three months in the
quarter being reviewed.
(i) If the investigation is not complete within 60 days, the
written explanation why [Rule 7(2A)].
(j) If the trial is not done on a daily basis, the written
The DVMC should review
explanation why [Section 14(3)]. the measures taken to
(k) In case of acquittal, the reason why (the report of the secure the rights and
entitlements of the
standing committee will be useful here).
victim–survivors,
(l) If the acquittal is not appealed, the reason why. witnesses, informants,
and dependents to
13. All investigations are supposed to be completed and enable their access to
charge–sheets filed within 60 days of filing the FIR justice [elaborated in
Section 15A(11)].
[Rule 7(2)], if not the reasons for delay must be furnished in
writing [Rule 7(2A)]. For every investigating officer (IO),
the DVMC shall review the number of:
(b) Cases for which investigation is completed in 60 days
[Rule 7(2)].
7
(c) Cases for which investigation was not completed in 60
days and a written explanation for the delay was given
[Rule 7(2A)].
(e) Accused in FIR.
role of the IO would entail this at the very minimum. Completing
the investigation and filing the charge–sheet within 60 days is
critical to restorative justice, since relief and rehabilitation is tied
to the stage the case is in and should not be delayed because

government employees – on guaranteed monthly salaries – do
not do their job on time.
14. The special public prosecutor is paid more than other
government public prosecutors. They have a minimum of
seven years’ experience. Therefore they are expected to
have better results (more convictions) than average. For
every special public prosecutor (SPP), the DVMC shall
review the number of:
(a) Cases argued.
role of the SPP would entail this at the very minimum. DVMC
members can call for the report submitted to the state
All investigations are
supposed to be completed government on the performance of the SPPs in January and July
and charge–sheets filed [Rule 4(2)] and the review done by the state government in the
within 60 days of registering same months [Rule 14(2)], which will (should) contain this
the FIR [Rule 7(2)], if not
the reasons for delay
information. If the performance of the SPP is below par, the
must be furnished in DVMC should inform the state government to remove the
writing [Rule 7(2A)]. particular SPPs citing the reason in writing [Rule 4(3)].
15. All trials should be completed within two months of filing
the charge–sheet. Once the trial starts, it should be
conducted on a daily basis. If not, the reasons for delay
should be recorded in writing by the judge. For every judge
hearing cases under this Act (whether special court,
designated special court, or not), the DVMC shall review
the number of:
(a) Cases listed.
(b) Cases heard.
(e) Accused acquitted (including in the cases for which
(f) If the trial is not done on a daily basis, the written
explanation why [Section 14(3)].
(g) Number of trials completed within 60 days of filing the
charge–sheet [Section 14(2)].
(h) Whether appeals have been filed within 90 days
[Section 14A(3)]. (This would reflect on the in charge
prosecutions and the district magistrate).
(i) Appeals disposed off within 90 days from date of

admission of appeal [Section 14A(4)].
A review of the role of the judge would entail this at the
very minimum. Some judges have a 100% acquittal
rate. Some cases are adjourned for years on end, which
goes against the spirit of the Act that requires the cases
to be heard on a daily basis and completed within
60 days. Some of this information is made public by the
state crime records bureau every year.
16. It is important to track both the number of cases ending in
conviction and the number of accused convicted since even
in the cases ending in conviction 9 out of 10 accused may be
acquitted (i.e. 90% acquittal), but the case itself is recorded
as ending in conviction.
17. The responsibility the investigating officer and the special
public prosecutor in the acquittals, should be culled out
from the reports of the standing committee. This data should
If the performance of the
be made available to the DVMC members to access the SPP is below par, the
performance of the investigating officer and the special DVMC should inform the
public prosecutor, and to ensure that officers with sub–par state government to
remove the particular
performance are not appointed to sensitive posts [Rule 13] SPPs citing the reason in
and remove them when necessary [Rule 4(3)]. writing [Rule 4(3)].
8 MONITORING AT THE SUBDIVISIONAL LEVEL
Introduction .............................................................................................................................289
Subdivisional level: Responsibilities and mechanisms ..............................................................289
Subdivisional level: Officials...................................................................................................................290
The SdVMC ..........................................................................................................................................292
Monitoring the SdVMC.............................................................................................................293
Setting up the SdVMC [Rule 17A(1)]......................................................................................................293
Members of the SdVMC [Rule 17A(2)]...................................................................................................293
Meetings [Rule 17A(4)] .........................................................................................................................294
Meeting agenda and role of the SdVMC [Rule 17A(1)]............................................................................294
Documents to be provided to the SdVMC members................................................................................295
Proceedings of the SdVMC ....................................................................................................................297
POA Handbook for Justice – 2024 Monitoring at the subdivisional level 287
Monitoring at the subdivisional level 8
Introduction
This guide book provides the tools to monitor the most important,
and unfortunately the most underrated, state mechanism for
monitoring the Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 – the subdivisional vigilance
and monitoring committee, SdVMC. It lists the processes,
procedures, preparation, and execution of the statutory monitoring
provisions so that compliance can be monitored using the provisions
of the Right to Information Act, 2005 (RTI) or, in the case of the
SdVMC members, better participation in the SdVMC meetings and
ensuring that the preventive and restorative provisions are fulfilled. It
will also enable the civil service to better prepare for and conduct the
reviews so that the Act can be more efficiently implemented at all
levels.
SdVMCs can hold
All the processes to be followed in the implementation of this government officials
accountable by monitoring
Act, and the events within them, are documented. Therefore, their functioning and
once the documentation is accessed, the health of the mechanism taking corrective action as
can be assessed. On analysis, the areas where remedial action is they will know first–hand
the failings and wilful
necessary will become apparent and they can be addressed. negligence of the officials
in each case.
Subdivisional level: Responsibilities and mechanisms
Subdivisional level: Responsibilities and mechanisms
Subdivision The subdivisional magistrate (SDM) sets up an To meet at least once every three months to
level vigilance SdVMC for each subdivision. review:
and monitoring Members of SdVMC include: (a) Implementation of the Act.
committee  Members of state legislative (b) Scheme for the rights and entitlements
(SdVMC) assembly/council from the subdivision, of victims and witnesses in accessing
elected members of local self–government justice as specified in Section 15A(11).
belonging to the scheduled communities. (c) Relief and rehabilitation facilities
 DSP. provided to the victims and other
 Tehsildar. matters connected therewith.
 Block Development Officer. (d) Prosecution of cases under the Act.
 Not more than two non–official members (e) Role of different officers/agencies
belonging to the scheduled communities. responsible for implementing the
 Not more than two members form categories provisions of the act and various
other than the scheduled communities reports received by the subdivision
having association with NGOs. administration.
 The SDM is the chairperson and Block
Development Officer is the member secretary
of the SdVMC.
POA Handbook for Justice - 2024 Monitoring at the subdivisional level 289
Monitoring at the subdivision level
Subdivisional level: Officials

Subdivisional level: Officials
# Official Purpose Functions
1 Subdivisional The subdivisional magistrate is (a) Within 24 hours: Conduct a spot visit and an
Magistrate an important authority inquiry to assess damage to property and life and
responsible for implementation draw a list of victims, their family members and
of the provisions of the Act. dependents entitled for relief and forward a copy
of the Relief and Rehabilitation report to the
Special Court/Exclusive Special Court [Rule 6].
Make necessary arrangements for immediate
relief which includes food, water, clothing,
shelter, medical aid, transport facilities, and
other essential items [Rule 11].
(b) Within 7 days: Make necessary arrangements to
provide relief in cash or kind or both to victims
of atrocity, their family members and
dependents.
(c) Quarterly: Conduct the SdVMC meeting at least
once in three months [Rule 17A(4)].
2 Special Officer Special officers not below the (a) Give immediate relief and other facilities to
rank of an Additional District victims and initiate necessary preventive
Magistrate are appointed for the measures.
identified area. (b) Set up awareness centres and organise
They are to coordinate with DM, workshops in identified areas or at district
SP, and other officers headquarters to educate the persons belonging
responsible for implementing the to the scheduled communities about their rights
provisions of the Act, various and protection available to them under various
committees and the SCs and the central and state enactments or rules and
STs Protection Cell. [Rule 10]. schemes etc.
(c) Coordinate with NGOs and provide them with the
In Tamil Nadu, the district
necessary facilities and financial assistance for
collector is the special officer.
conducting workshops and maintaining
awareness centres.
(d) Ensure implementation of Victim and Witness
Rights in the identified area as specified in
Chapter IVA of the Act [Rule 10(iv)].
Execute the rights of victims, dependents or
associated organisations or individuals, at every
stage of the proceedings under this Act and to
provide the necessary assistance for the
290 Monitoring at the subdivisional level POA Handbook for Justice - 2024
Subdivision level: Officials

# Official Purpose Functions
3 DSP/ Asst. The investigating officer (a) Member of the subdivisional vigilance and monitoring
Commissioner is appointed to perceive committee (SdVMC).
(IO) the implications of the (b) Record the complaint of victims, informant, or witnesses
cases under the Act and whether given orally or in writing, read it out to them, and
investigate it along the provide a photocopy of that complaint and the FIR free of
right lines of justice. cost [Rule 5(2)].
Before appointing a
(c) Complete investigation of the case and submit the report
police officer (not below
to the SP file the charge–sheet within 60 days [Rule 7(2)].
the rank of DSP) as an
IO, their experience, (d) Explain in writing any delay in investigation or filing of
sense of ability and charge–sheet [Rule 7(2A)].
justice to perceive the (e) Record the complaint of the victims, informant or
implications of the case witnesses against any kind of intimidation, coercion or
and investigate it along inducement or violence or threats of violence, whether
right lines must be given orally or in writing, and give a photocopy of the FIR
considered by the state immediately free of cost [Section 15A(9)].
government [Rule 7(1)].
(f) Provide information about the rights of atrocity victims at
the time of making complaints and registering the FIR
[Section 15A(11)(g)].
(g) Provide protection to victims, dependents, and
witnesses from intimidation and harassment
[Section 15A(11)(h)].
(h) Provide information to victims, dependents, or
associated organisations or individuals, on the status of
investigation and charge–sheet and to provide a copy of
the charge–sheet free of cost [Section 15A(11)(i)].
(i) Take necessary precautions at the time of medical
examination [Section 15A(11)(j)].
(j) Provide information to victims, dependents, or
associated organisations or individuals, regarding the
relief amount [Section 15A(11)(k)].
(k) Provide information to victims, dependents, or
associated organisations or individuals, in advance
about the dates and place of investigation and trial
[Section 15A(11)(l)]. 8
(l) Give adequate briefing on the case and preparation for
trial to victims, dependents, or associated organisations
or individuals and to provide the legal aid for the said
purpose [Section 15A(11)(m)].
(m) Execute the rights of victims, dependents or associated
organisations or individuals, at every stage of the
proceedings under this Act and to provide the necessary
assistance for the execution of the rights
[Section 15A(11)(n)].
The SdVMC
The subdivisional vigilance and monitoring committee
(SdVMC) is one of the most important state mechanisms to
monitor the implementation of the Act – and the most important
one from the preventive, restorative, and rehabilitation aspects.
Its main roles are to assist the government in implementing the
Act [Rule 3(vi)] and to suggest measures for effective
implementation [Rule 3(vii)].
Apart from the members of parliament and legislative assembly
from the subdivision, and the senior–most subdivisional
government officials, the elected representatives of local
government belonging to the scheduled communities in the
subdivision are also members of the SdVMC.
The SdVMCs – with its composition of all the scheduled castes
and the scheduled tribes elected representatives in local
self–government (panchayat raj), MLAs, and MPs in the
The SdVMCs – with the jurisdiction – are uniquely positioned to follow up protection,
unique composition of the
relief, and socioeconomic rehabilitation at the individual and
civil service and elected
representatives of the household levels.
scheduled communities in
local self–government, Due to this unique combination, it is therefore the state
MLAs, and MPs – are mechanism closest to the village community under this Act.
uniquely positioned to Knowing the community intimately, it is best placed to fulfil all
follow up protection, relief,
and socioeconomic
three critical roles envisaged for the state under this Act:
rehabilitation at the  Prevention of atrocities by identifying potential flash points
individual and household (‘atrocity prone areas’), provocateurs, and frictions. Being
levels, and compliance, and
locals, they will have the best understanding of the ground
accountability at the
individual officer level. situation, much before it becomes severe enough to come on
to the radar at the more remote (district, state, union) levels of
government. Identification of atrocity prone areas at other
levels is formulaic, but theirs will be the ground truth. They
are also better placed to flag events and triggers, especially
due to disinformation and rumours, faster than the more
distant mechanisms.
 Redress: The members of this committee are most likely to
know those involved personally or as a community. They are
best equipped to monitor the case at every stage from a victim
centric perspective. This is essential to ensure timely and
proper relief, socioeconomic rehabilitation, and restoration of
livelihoods for the victims, survivors, and their dependents.
 Accountability: SdVMCs can hold government officials
accountable by monitoring their functioning and taking
corrective action as they will know first–hand the failings

and wilful negligence of the officials in each case. The
failings can be recorded in the minutes for further action.
Their opinion on the credibility and neutrality of the officials,
informed by data of their performance, enhances the
confidence of the community in state mechanisms.
In a reversal of the norm, here the subdivisional magistrate
(SDM) and the deputy superintendent of police (DSP) report to
the elected village representatives (who are constitutional
functionaries) as they constitutionally should.
The rules are clear that these constitutional functionaries should
receive all the reports received by the subdivisional
administration [Rule 17A(1)], and any other information
required for their efficient and effective functioning.
Monitoring the SdVMC

Though the Right to Information Act, 2005 (RTI) is clear that all
The SdVMC meetings can
information should be disclosed proactively (suo moto) as a norm identify and hold
and requests by citizens should be the exception, unfortunately accountable officials for
most of the information can be accessed only through formal sub–par performance.
They can assess individual
RTI requests. All the RTI requisition formats required are
needs of the victims,
alphanumerically coded. The first alphabet 'S' or 'D' is for state or witnesses, and their
district level monitoring. The second alphabet is for periodicity. dependents (protection,
A = Annual; H = Half–yearly; Q = Quarterly; M = Monthly; relocation, emergency
relief), and customised
O = Once (or occasional). So DA01 is a district (D) level annual remedial measures
(A) information request format (01). Some notifications (exclusive (socioeconomic
special courts, nodal officer, protection cell) are done only once, rehabilitation, restoration
of services), can be
and therefore the 'O' formats are used for those. provided to efficiently
Since the requirements for RTI requests vary from state to state, implement the Act from a
victim centric perspective,
the formats are not included in this handbook, but can be made mindful of the local
available on request. sociopolitical specificities
of the case.
Setting up the SdVMC [Rule 17A(1)]
1. In each subdivision within the district, the subdivisional
magistrate shall set up a subdivisional vigilance and
8
monitoring committee (SdVMC) (RTI format DA09).
Members of the SdVMC [Rule 17A(2)]

2. The SdVMC shall consist of (RTI format DA09)
(a) Members of the state legislative assembly (MLA) and
legislative council from the subdivision.
(b) Elected members of panchayat raj institutions
belonging to the scheduled castes and the scheduled
tribes.
(c) Deputy superintendent of police (DSP).

(d) Tehsildar.
(e) Block development officer.
(f) Not more than two non–official members belonging to
the scheduled castes or scheduled tribes.
(g) Not more than two members from the categories other
than the scheduled castes or scheduled tribes having
(h) The subdivisional magistrate (chairman).
(i) The block development officer (member–secretary).
Meetings [Rule 17A(4)]

3. The subdivisional level committee shall meet at least once in
three months [Rule 17A(4)] (RTI format DQ01).
4. If the meeting under Rule 17A(4) is not convened every
quarter, give a written complaint to the state nodal officer
(appointed as per Rule 9) requesting him to conduct an
inquiry and take action under Section 4 of the Act
Schemes to secure the Punishment for neglect of duties.
rights and entitlements
to protect the victim–
5. Follow up the letter after three months with a request under
survivors, witnesses, RTI asking for the action taken report on your complaint.
informants, and
dependents and Meeting agenda and role of the SdVMC [Rule 17A(1)]
enable their access to 6. The meetings of the SdVMC are restricted only to the
justice are elaborated
in Section 15A(11).
members of the SdVMC and to the specific purpose under
the Act and Rules. They cannot be clubbed with the public
grievances or the monthly meetings. Unfortunately,
clubbing these rarely conducted meetings with other
meetings tends to be the norm. It is good practice to bring it
to the notice of the district collector so that the practice is
discontinued and the committee can focus on its mandate.
7. The SdVMC shall review:
(a) Implementation of the provisions of the Act.
(b) Schemes to secure the rights and entitlements to protect
dependents and enable their access to justice
[elaborated in Section 15A(11)].
(c) Relief and rehabilitation facilities provided to the
survivors and other matters connected therewith.
(d) Prosecution of cases under the Act.
(e) Role of different officers responsible for implementing
the provisions of the Act.
(f) Role of the different agencies responsible for
implementing the provisions of the Act.
(g) Various reports received by the subdivision. This

would include reports under Rules 6(2) and 12(7) for
each case, and the report of the supreme court ordered
standing committee.
(h) Orders passed by the court to enforce the rights of
victims, witnesses, dependents, and for their protection
[Section 15A(7)].
8. In addition, the SdVMC can also:
(a) Identify atrocity prone areas.
(b) Suggest measures to prevent atrocities in those areas.
Documents to be provided to the SdVMC members

9. For effective participation in the SdVMC meetings, the
SdVMC members should be provided the following
information along with the agenda at least a week,
preferably three weeks, in advance of every SdVMC
meeting (RTI format DA09). If the monthly report
[Rule 4(4)] is given at the same time it is sent to the For effective participation
government (i.e. on or before the 20th of each month), and in the SdVMC meetings,
the case reports [Rules 6(2) and 12(7)] are given to the the SdVMC members
should be provided the
SdVMC members when they are sent to the special courts, it
requisite information
will help in informed engagement at the meeting. along with the agenda at
least a week, preferably
10. Every quarter, there are three statutory monthly reports
three weeks, in advance of
[prepared under Rules 4(4), Rule 6(2) and Rule 12(7)]. For every SdVMC meeting.
every open case there will be Rule 7(2A) reports for which
charge–sheets were not filed within 60 days, reports of the
standing committee, etc. The performance appraisal of the SPP
is done only in January and July every year by the district
collector [Rule 4(2)] (RTI format DH03) and the state
government [Rule 14(2)] (RTI format SH03). So they will be
available for discussions only for the SdVMC meetings held in
the first meeting after they are finalised (most likely in SdVMC
meetings conducted in the first and third quarters).
11. All these reports should be given for the period under
review. These are existing reports and require no additional
8
work if the monthly report [Rule 4(4)] is comprehensive and
submitted on time.
(a) Three monthly reports [Rule 4(4)] on the position of the
cases submitted to the state government by the district
administration (at least an extract covering the position of
the cases in the subdivision). This should have the
progress of the case (whether it is in the investigation,
trial, or appeal stages or closed), and explanation for
delays (60 days each for FIR to charge–sheet and

charge–sheet to verdict). It should include the relief
[Rule 12(4)], the travel and maintenance expenses
[TAME, Rule 11], and socioeconomic rehabilitation
measures and reasons for delay (from date of travel for
investigation or trial: maximum three days for TAME,
and from the date of the FIR seven days for first
instalment of relief, three months for total socioeconomic
rehabilitation including index linked pensions,
agricultural land, house, a government job, and fully
paid residential education for children up to graduation).
Maintenance expenses include dietary expenses and the
day's wages lost during investigation or trial, according to
the wages prescribed for rural workers in the state for the
victims, witnesses, and their attendants. They are also
entitled to emergency relief for three months. If the case
is closed (no charge–sheet, conviction, or acquitted but
The victims and dependents
no appeal), the monthly report should have the reason
are also entitled to
emergency relief for why (RTI format DM01 and DM02).
three months. If the case is
(b) For each case (if the monthly report [Rule 4(4)] does
closed (no charge–sheet,
conviction, or acquitted not have it) TAME [Rule 11], (RTI format DM07) and
but no appeal), the relief, and rehabilitation information [Rule 12(4)]
monthly report should (RTI format DM06 and DM09).
have the reason why.
(c) For each case the spot visit – inquiry and inspection –
reports [Rule 6(2) and 12(7)] (RTI format DM04), and
the orders passed by the superintendent of police for
deployment of police and prevention [Rule 12(3)]
(RTI format DM05).
(d) For each case the reports submitted to the special
courts on the fulfilment of victims and witnesses’ rights
[Section 15A(7), and Rule 12(7)] (RTI format DM03).
(e) For each case Orders passed by the courts based on their
review of the victim and witness protection measures
undertaken [Section 15A(7)] (RTI format DA06).
(f) For each case where the charge–sheets have not been
filed in 60 days, written explanations for the delay
filed by the investigating officers [Rule 7(2A)]
(RTI format DM08).
(g) For each case where trials have not been conducted
daily, reasons given in writing by the judge
[Section 14(3)] (RTI format DM 13).
(h) Performance appraisal of the SPP (done in January and

July every year by the district collector) [Rule 4(2)]
(RTI format DH03).
(i) Performance appraisal of the SPP (done in January and
July every year by the state government) [Rule 14(2)]
(RTI format SH03).
(j) Quarterly report of the high powered district
standing committee on fixing responsibility for
acquittals, set up on the orders of the Supreme Court of
India in the State of Gujarat vs Kishanbhai etc.
[Criminal Appeal 1485 of 2008] of 7 January 2014.
The data in the report contains the performance of the
investigating officer and the special public prosecutor
and should be culled out and made available to the
SdVMC members (RTI format DQ03).
Proceedings of the SdVMC

12. For each case, the SdVMC should review the present status For each case where trials
[Rule 17A] (RTI format DA09) which includes: have not been conducted
daily, the reasons given in
(a) Report under Rules 6(2) and 12(7) for the case (this writing by the judge
report is almost never filed, so asking for it would be a should be made available
good first step in getting the mechanisms activated). to the SdVMC members
[Section 14(3)].
(b) Measures taken to secure the rights and entitlements of
dependents to enable their access to justice [elaborated
in Section 15A(11) of the Act].
(c) What has been done so far in pursuing the case,
including arrests, bail, counter cases, protection, relief,
travel allowance and maintenance expenses due and
paid, and status of socioeconomic rehabilitation.
(d) Relief due and paid and reasons for delay in payment to
dependents [as per Rule 12(4) Schedule Annexure I r/w
Annexure II, and Rule 15(1) contingency plan]. 8
(e) Socioeconomic rehabilitation due, rehabilitation done,
and reasons for delay in fulfilment to victim–survivors,
witnesses, informants, and dependents [as per
Rule 12(4) Schedule Annexure I r/w Annexure II, and
Rule 15(1) contingency plan].
(f) TAME due, paid, and reasons for delay in payment to
victim–survivors, witnesses, informants, and dependents
(immediate payment, and in any case not later than three
days during investigation and trial) [Rule 11].
(g) The stage the case is at now (relief and rehabilitation

depend on this, apart from the support and security
from law enforcement).
(h) Actions proposed to be done in the near future. This, the
present status, and action taken to date, are required to
be in the monthly report [Rule 4(4)]. For an informed
discussion, SdVMC members need to be given the
monthly report [Rule 4(4)] of the three months in the
quarter being reviewed.
(i) If the investigation is not complete within 60 days, the
written explanation why [Rule 7(2A)].
(j) If the trial is not done daily, the written explanation why
[Section 14(3)].
(k) In case of acquittal, the reason why (the report of the
standing committee will be useful here).
(l) If the acquittal is not appealed, the reason why.
All investigations are 13. All investigations are supposed to be completed and
supposed to be completed
and charge–sheets filed
charge–sheets filed within 60 days of filing the FIR
within 60 days of filing [Rule 7(2)], if not the reasons for delay must be furnished in
the FIR [Rule 7(2)], if not writing [Rule 7(2A)]. For every investigating officer (IO),
the reasons for delay
the SdVMC shall review the number of:
must be furnished in
writing [Rule 7(2A). (a) Cases investigated.
(b) Cases for which investigation is completed in 60 days
[Rule 7(2)].
(c) Cases for which investigation was not completed in 60
days and a written explanation for the delay was given
[Rule 7(2A)].
(e) Accused in FIR.
of the role of the IO would entail this at the very
minimum. Completing the investigation and filing the
charge–sheet within 60 days is critical to restorative
justice, since relief and rehabilitation is tied to the stage
the case is in and should not be delayed because
government employees – on guaranteed monthly
salaries – do not do their job on time.
14. The special public prosecutor is paid more than other

government public prosecutors. They have a minimum of
seven years’ experience. Therefore, they are expected to
have better results (more convictions) than average. For
every special public prosecutor (SPP), the SdVMC shall
review the number of:
(a) Cases argued.
of the role of the SPP would entail this at the very
minimum. SdVMC members can call for the report
submitted to the state government on the performance
of the SPPs in January and July [Rule 4(2)] and the
review done by the state government in the same
months [Rule 14(2)], which will (should) contain this Completing the
information. If the performance of the SPP is below par, investigation and filing
the charge–sheet within
the SdVMC should inform the state government to 60 days is critical to
remove the particular SPPs citing the reason in writing restorative justice, since
[Rule 4(3)]. relief and rehabilitation is
tied to the stage the case
15. All trials should be completed within two months of filing is in and should not be
delayed because
the charge–sheet. Once the trial starts, it should be
government employees –
conducted on a daily basis. If not, the reasons for delay on guaranteed monthly
should be recorded in writing by the judge. For every judge salaries – do not do their
hearing cases under this Act (whether special court, job on time.
designated special court, or not), the SdVMC shall review

the number of:
(a) Cases listed.
(b) Cases heard.
(e) Accused acquitted (including in the cases for which 8
(f) If the trial is not done daily, the written explanation why
[Section 14(3)].
(g) Number of trials completed within 60 days of filing the
charge–sheet [Section 14(2)].
(h) Whether appeals have been filed within 90 days
[Section 14A(3)] (This would reflect on the in–charge
prosecutions and the district magistrate).
The responsibility for the (i) Appeals disposed off within 90 days from the date the
acquittal – the investigating
officer for negligent appeal was admitted [Section 14A(4)].
investigation, or the A review of the role of the judge would entail this at the
prosecutor for negligent very minimum. Some judges have a 100% acquittal
prosecution – should be
culled out from the reports
rate. Some cases are adjourned for years on end, which
of the standing committee. goes against the spirit of the Act that requires the cases
Evidence of persistent to be heard on a daily basis and completed within 60
failure should be followed
days. Some of this information is made public by the
by accountability measures
including departmental state crime records bureau every year.
action, denotification, and
removal from further 16. It is important to track both the number of cases ending in
investigation duties or conviction and the number of accused convicted since even
prosecution [Rule 4(3)] in the cases ending in conviction 9 out of 10 accused may be
based on transparent
benchmarking and
acquitted (i.e. 90% acquittal), but the case itself is recorded
standards. as ending in conviction.
17. The responsibility of the investigating officer and the
special public prosecutor in the acquittals, should be culled
out from the reports of the standing committee. This data
should be made available to the SdVMC members to assess
the performance of the investigating officer and the special
public prosecutor, and to ensure that officers with sub–par
performance are not appointed to sensitive posts [Rule 13]
and remove them when necessary [Rule 4(3)].
9 SURVIVORS’ GUIDE TO POA
Content ..................................................................................................................................303
What is an atrocity?.................................................................................................................303
Section 3(1) .........................................................................................................................................303
Section 3(2)..........................................................................................................................................306
Stage 0 Preparatory .................................................................................................................307
What if the rights are violated?...............................................................................................................307
Stage 1 and 2: Information and FIR registration ........................................................................309
Stage 1: Information..............................................................................................................................309
Stage 2: FIR registration ........................................................................................................................309
Stage 3: Inquiry (Spot assessment) .........................................................................................309
Stage 4: Inspection..................................................................................................................311
Stage 5: Investigation ..............................................................................................................312
Stage 6: Trial ...........................................................................................................................314
Stage 7: Judgement.................................................................................................................314
Stage 8 and 9: Jail and release.................................................................................................315
Stage 10: Appeal .....................................................................................................................316
POA Handbook for Justice – 2024 Survivors guide to POA 301

Compliance Format 2: Format for complaint for non-registration, deriliction of duty [Rule 5(3)] .320
Annexure 9.1: How to give witness in court..............................................................................329
Annexure 9.2: Checklist for effective followup ..........................................................................331
302 Survivors guide to POA POA Handbook for Justice – 2024

Survivors’ guide to POA 9
Content
 What are atrocities? [Section 3].
 Stagewise rights, roles, and responsibilities.
 Relief and rehabilitation (provisions and timelines)
[Rule 12(4) Schedule Annexure I].
 Rights of victims and witnesses [Section 15A].
What is an atrocity?
For a crime to be an ‘atrocity’ (a caste–based hate crime), all
three conditions must be fulfilled (a) the perpetrator must be
from a non–scheduled community and (b) the victim must be
from a scheduled community (scheduled caste or scheduled
tribe) and (c) it must be listed in Section 3 of the Act. A lightly
edited version is given below. For a crime to be an
‘atrocity’ (a caste–based
Section 3(1) hate crime), all three
(a) Putting any inedible or obnoxious substance into the mouth conditions must be fulfilled
 the perpetrator must be
or forcing to drink or eat such inedible or obnoxious from a non–scheduled
substance; community
(b) Dumping excreta, sewage, carcasses, or any other  the victim must be from
a scheduled community
obnoxious substance in the premises, or at the entrance of (scheduled caste or
the premises occupied; scheduled tribe)
 it must be listed in
(c) Intending to cause injury, insult, or annoyance by dumping
Section 3 of the Act.
excreta, waste matter, carcasses, or any other obnoxious
substance in his neighbourhood;
(d) Forcing someone to wear garlands made of footwear or
parading them naked or semi-naked; or to drink or eat any
inedible or obnoxious substance;
(e) Forcibly committing any act that is demeaning to human
dignity. This encompasses forcibly removing clothes from a
person, tonsuring their head, removing their moustache,
painting their face or body or any other similar act;
(f) Wrongfully occupying or cultivating any land or getting
such land transferred forcefully;
(g) Wrongfully dispossessing land or expropriating and
interfering with an individual’s right;
(h) Involving an individual from a scheduled community into
forced or bonded labour;
POA Handbook for Justice - 2024 Survivors guide to POA 303

Survivors guide to POA
(i) Compelling an individual from a scheduled community to

dispose or carry human or animal carcasses, or to dig
graves;
(j) Compelling an individual to carry out manual scavenging or
employ / permit the employment of an individual from the
scheduled communities for such purposes;
(k) Promoting to dedicate a woman to a deity, idol, object of
worship, temple, or other religious institution as a devadasi
or any other similar practice;
(l) Coercing, threatening, intimidating, or preventing an
individual to vote or to not vote for a particular candidate;
threatening the individual to not file a nomination as a
candidate or to withdraw such a nomination; or proposing to
not second the candidate’s nomination in any election;
(m) Forcing or intimidating or obstructing any officer from
performing their normal duties and functions;
Instituting a false,
(n) After the poll, causing hurt or grievous hurt, or assaulting,
malicious or vexatious suit or imposing, or threatening to impose social or economic
on an individual from a boycott; preventing someone from availing benefits of any
scheduled community, or
public service which is due to him;
pursuing criminal or other
legal proceedings based on (o) Committing any offence for having voted or not having
a false case, constitutes an voted for a particular candidate;
atrocity under Section
3(1)(p). Remedial action (p) Instituting false, malicious or vexatious suit on an
can be taken through an individual from a scheduled community; pursuing criminal
advocate of choice, paid or other legal proceedings based on a false case;
for by the state [Rule 12(4)
Schedule Annexure I]. (q) Giving any false or frivolous information to any public
servant and thereby causing a public servant to use his
lawful power to injure or annoy an individual from a
scheduled community; injuring or annoying them;
(r) Intentionally insulting or intimidating with intent to
humiliate in any place within public view;
(s) Abusing an individual by using their caste name in any
place within public view;
(t) Destroying, damaging, or defiling any object generally
known to be held sacred or in high esteem;
Explanation: For the purposes of this clause, the
expression“object” means and includes statues,
photographs, and portraits;
(u) Through the use of words, either written or spoken, or
through signs, or visible representation methods,
attempting to promote feelings of enmity, hatred or ill will;
304 Survivors guide to POA POA Handbook for Justice - 2024

(v) Through the use of words, either written or spoken, or

through any other means, disrespecting any late person
held in high esteem;
(w)(i) Intentionally touching a woman, knowing well she
belongs to a scheduled caste or a scheduled tribe, and
touching her with a sexual intent, and the touching is
without the recipient’s consent;
(w)(ii) Using words, acts or gestures of sexual nature towards a
woman;
(x) Corrupting or making foul the waters of any spring,
reservoir or any other source ordinarily used, so as to
renders it less fit for the purpose for which it was ordinarily
used;
(y) Denying any customary right of passage to a place of public
resort or obstructing or preventing an individual from a
scheduled community from using or having access to the
customary right of passage;
The victims, dependents,
(z) Forcing or causing an individual from a scheduled witnesses, and
community to leave his house, village, or any other place of attendants must receive
the travel allowance,
residence;
daily maintenance
(za)(A) Obstructing or preventing an individual from a expense, diet expenses,
scheduled community from using common property, and hospitalisation
expenses reimbursed
sharing resources from an area equally with others, or using either immediately or
any water bodies or other watering place, or any public within three days during
conveyance; inquiry, investigation,
and trial.
(za)(B) Preventing an individual from a scheduled community
from mounting or riding bicycles, or motorcycles, or
wearing footwear, or new clothes in public places, or taking
out wedding procession, or mounting a horse or any other
vehicle during wedding processions;
(za)(C) Preventing an individual from a scheduled community
from entering any place of worship which is open to the
public or other people professing the same religion or taking
part in, or carrying out any religious, social or cultural
processions including jatras;
(za)(D) Preventing an individual from a schedule community
from entering any educational institution, hospital,
dispensary, primary health centre, shop or place of public 9
entertainment or any other public place; or using any
utensils or articles meant for public use in any place open to
the public;

(za)(E) Preventing an individual from a scheduled community

from practicing any profession or the carrying out any
occupation, trade or business or employment in any job
which other members of the public, or any section thereof,
have a right to use or have access to;
(zb) Causing physical harm or mental agony to an individual
based on the allegation of practicing witchcraft or being a
witch;
(zc) Imposing or threatening social or economic boycott of any
person, or a family, or a group;
Section 3(2)
(i) Giving or fabricating false evidence against an individual
knowing it to likely cause punishment with imprisonment
for life, and with fine; and if an innocent member is
convicted and executed as a consequence, the person who
gives or fabricates such false evidence, shall be punished
It is the right of the victims, with death;
dependants, and witnesses
(ii) Giving or fabricating false evidence knowing it to likely
to be treated with fairness,
respect, and dignity and cause them to be convicted of an offence;
with due regard to any (iii) Committing mischief by fire or any explosive substances,
special need that arises
intending to cause, or knowing fully well that it will cause
because of the victims’ age
or gender or educational damage to any property;
disadvantage or poverty. (iv) Committing mischief by fire or any explosive substances,
intending to cause or knowing it will likely cause
destruction of any building which is ordinarily used as a
place of worship, or as a place for human dwelling, or as a
place for custody of the property;
(v) Committing any offence against a person or property
knowing that such person is a member of a scheduled caste
or a scheduled tribe, or such property belongs to such
member;
(va) Commits any offence specified in the Schedule of this
clause (which specifies the Section under the Indian Penal
Code and the crime) against the scheduled communities or
their property;
(vi) Causing any evidence to disappear with the intention of
screening the offender from legal punishment, or gives any
false information with respect to the offence;
(vii) Being a public servant, committing any offence under this
section.

Stage 0 Preparatory
If an atrocity is suspected to have taken place (however ‘minor’
it is), immediately approach an experienced individual or
organisation for any assistance. It is the right of the victim to this
assistance from any organisation, social worker, or advocate as
per the Act.
In all stages of the case, starting with information (filing a
complaint and getting the FIR registered), it is the right of the
victims, their dependants, and the witnesses to:
 Get protection against any kind of intimidation or coercion or
inducement or violence or threats of violence.
 Be treated with fairness, respect, and dignity and with due
regard to any special need that arises because of the victim’s
age, gender, educational disadvantage, or poverty.
 Reasonable, accurate, and timely notice of any court
proceeding including any bail proceeding.
 Right to get assistance from non government organisations,
social workers, or advocates at all stages. If the victims face any
threats/harassment, or if
 The victims, witnesses, concerned organisations, and they do not get timely relief
individuals have the right to be heard before any parole or or socioeconomic
remission of sentence and be given a chance to challenge it. rehabilitation as per the
 Travel allowance and maintenance expenses: Travel law, or if proper procedures
are not followed by the
allowance is calculated as to and fro rail fare by second class concerned government
train, or actual bus, or taxi fare from place of residence or officials, we can seek
place of stay to the place of investigation or hearing of trial. further action.
The maintenance expense is at least one day's wage for
agricultural labourers.
 Every woman witness, victim or dependent, a minor, a person
more than sixty years of age, and a person having 40 per cent
or more disability are entitled to an attendant of their choice.
The attendant is entitled to all allowances and expenses –
travelling allowance, daily allowance, diet expenses,
maintenance expenses – as applicable to the victim.
What if the rights are violated?

If the victims face any threats/harassment, or if they do not get
timely relief or socioeconomic rehabilitation as per the law, or if
proper procedures are not followed by the concerned
government officials, we can seek further action. The rights we
(victims, survivors, witnesses, lawyers, social workers, NGOs) 9
have at each stage of the process, the duties of the appropriate
government officials, and steps to follow when rights are
violated are described in the following stages.

Stage 1 and 2: Information and FIR registration

Victims’ Rights Duties of appropriate authorities
Stage 1: Information The station house officer (SHO, usually an inspector or

sub–inspector) should:
 Right to give a complaint in writing or orally.
 Any ‘informant’ can file a complaint in any police
 Register an FIR immediately without conducting
any preliminary inquiry [Section 15A(9),
station [Rule 5(1)] and not necessarily by the
Section 18A].
victim or an eyewitness.
 The complainants are entitled to a free copy of their
 If the atrocity did not take place in the jurisdiction of
that police station, then record a ‘Zero FIR’ (an FIR
complaint [Rule 5(2)] and a copy of the FIR.
without a serial number) and transfer it to the
 Right to take assistance from NGOs, social correct police station.
workers, and advocates at all stages of the case
[Section 15A(12)] – the informant can go with an
 Immediately after registering the FIR, read it out
to the complainant, then get the signature
individual or advocate of choice to file the complaint,
[Section 4(2)(a)], and provide a copy of the FIR
and the state will pay the advocate [Rule 4(5)].
free of cost to the victims [Section 4(2)(b), Section
 Victims, their dependents, and witnesses 4(2)(c), Section 5(2)].
Sections 15A(11)(e), 15A(11)(f) and Rule 12(4)
are entitled to medical aid, food, clothing, shelter
 Inform the victims, witnesses, and their
dependents of their rights, including relief amount
etc. [Rule 12(4)], depending on the severity of the
due, protection, and the dates of investigation and
crime and the sections invoked.
trial [Section 15A(11)].
 Right to ‘instant monetary relief’ [Rule 15(1)(a)]
from the Dr Ambedkar National Relief in the case of
 Immediately pay the relief due at the FIR stage.
murder, rape, arson, and permanent disability.  It is the responsibility of the SP to ensure that the
FIR is registered [Rule 12(2)].
Stage 2: FIR registration  All proceedings from FIR to inquiry, investigation,
 FIR should be registered immediately without trial, and beyond, and everything in between –
conducting any preliminary inquiry [Section 18A]. must be video recorded [Section 15A(10)].
 Get a copy of the FIR immediately, free of cost.  The complaints are followed up by an officer not
below the rank of DSP or SDM or any executive
 Get information about the victims’ rights
magistrate [Rule 6(1)].
[Section 15A(11)(g), Rule 5(2); TNCP].
 The attendant is also entitled to all allowances and
expenses – daily allowance, travelling allowance,
diet expenses, maintenance expenses – as
applicable to the victim [Rule 11(3)].
 Once the FIR is registered, the victims are entitled
to 25% of the relief [Rule 12(4) Schedule
Annexure I].

Stage 1 and 2: Information and FIR registration

Stage 1: Information
Reporting an atrocity to a police officer or another authority by
the victims, dependents, witnesses, or any person. This
information may be given orally or in writing. No witness is
required to be present while filing a complaint.
Write down the complaint with all the details that you remember.
The complaint is the single most important document. It is best to
get a lawyer’s help to write that.
Stage 2: FIR registration

Give a complaint in writing or orally. A first information report
should be filed immediately without any preliminary inquiry on
receipt of information in writing. This report should also include
sections of the Act appropriate to the nature of the crime and the
relevant section of the Indian Penal Code should also be clearly
mentioned.
Write down the complaint
A First Information Report (FIR) is the first step in the criminal with all the details that you
remember. The complaint is
justice process. The sections of the Act invoked will be based on
the single most important
the complaint. document. It is best to get a
lawyer’s help to write that.
Responsible officials
Station House Officer (SHO) (Senior officer present in the police
station at that time).
What if a right is violated?

If the complaint is refused and/or the FIR is not registered
immediately at the police station, then send your complaint by
registered post to the Superintendent of Police.
Stage 3: Inquiry (Spot assessment)

An officer not below the rank of DSP or SDM or any executive
magistrate must visit the spot and inquire whether the atrocity
had taken place. If they confirm that an atrocity has taken place,
victims should be provided with immediate relief and protection.
 Once information is received, then a deputy superintendent
of police (DSP) or a subdivisional magistrate (SDM) must
visit the spot for an inquiry. 9
 The DSP/SDM should immediately provide protection and
relief to the victims and their dependents.

Stage 3: Inquiry (Spot assessment)

 Obtain the report of the spot assessment.  An officer not below the rank of DSP or SDM or any
 All victims have the right to be included in the executive magistrate must visit the spot and
relief list. conduct an enquiry to assess the extent of atrocity,
loss of life, loss and damage to the property,
 Right to be protected from further harm.
[Rule 6(1)] and submit a report to the state
 Right to emergency relief (includes medical aid, government [Rule 6(2)].
food, rice, wheat, dals, pulses, etc clothing,  If they confirm that an atrocity has taken place,
shelter, utensils, household items and other
they must
basic necessities, [Rule 12(4) Schedule Annexure I
(a) draw up a list of victims, their family members
#46, and SCP]).
and dependents entitled for relief;
(b) prepare a detailed report of the extent of
atrocity, loss and damage to the property of
the victims;
(c) order for intensive police patrolling in the area;
(d) take effective steps to provide protection to
the witnesses and other sympathisers of the
victims;
(e) provide immediate relief to the victims
[Rule 6(2)], and inform their superior officer –
the SP or DM.
Stage 4: Inspection
 Be informed sufficiently in advance when the SP  On receiving information from their subordinate
and DM are coming for a spot inspection. that an atrocity has taken place (through the Rule
 Immediate protection, emergency relief (includes 6(2) report), both the SP and the DM will visit the
medical aid, food, rice, wheat, dals, pulses, etc area within 24 hours and conduct a spot
clothing, shelter, utensils, household items and inspection.
other basic necessities, [Rule 12(4) Schedule  Assess the extent of damage, loss of life and
Annexure I #46, and SCP]. property, and identify the victims, witnesses, and
 In cases of murder, rape, permanent disability, or their dependents entitled to relief [Rule 12(1)], and
arson, the victims are entitled to ‘instant monetary the accused.
relief’ [Rule 15(1)(a)] from the Dr Ambedkar  The SP will ensure that the FIR is registered,
National Relief. effective measures for apprehending the accused
 In cases of murder, rape, permanent disability, or are taken [Rule 12(2)], and necessary protection is
dacoity, each of the victims and/or their families provided [Rule 12(3)].
are entitled to all the following for socioeconomic  The SP will appoint an investigating officer (of DSP
rehabilitation – pensions (C5000+DA), and a rank or higher) to continue the investigation
government job, and a house, and agricultural [Rule 12(3)].
land, and fully supported residential education for  The DM will provide relief and assistance
children up to graduation [Rule 12(4) Schedule including medical aid, food, clothing, shelter etc.
Annexure I, #46]. [Rule 12(4)] to the victims, their dependents, and
witnesses and send a report to the special court
[Rule 12(7)].


 If an FIR is not filed, you can file a complaint with the SP
with a copy to the director of the protection cell and the
state nodal officer.
 If an inquiry is not conducted by an officer of rank DSP or
SDM, then a complaint should be sent to the state nodal
officer and the director of the protection cell and spot inquiry
should be conducted again by a DSP or SDM. They should
inform the victims and their dependents about their visit for
spot inquiry and also provide a copy of the report.
Stage 4: Inspection
On confirmation that an atrocity has taken place, the SP and the
DM should visit the spot and conduct a spot inspection carefully
and critically. At this stage the SP will ensure that the correct
sections of the Act are included in the FIR. The SP should
provide extra protection to the victims. The DM should
immediately provide emergency relief at this stage.
Both the SP and the DM
should visit the spot and
Responsible officials conduct an inspection. If
Superintendent of Police not, a complaint should be
 Provide protection to the victims and their dependents. sent to the state nodal
officer and the chief of the
 Ensure that appropriate sections of both the Act and the IPC SCs and the STs protection
are included in the FIR. cell, and the spot inspection
 Appoint an investigating officer with the right aptitude and should be conducted again
by both of them.
track record.
District Magistrate
 Provide emergency relief, socioeconomic rehabilitation, and
all necessary assistance.
 Ensure it is delivered within the stipulated time.
 Send a written report to the special court.
 Include the relief due at the FIR stage and, where required,
for the medical report and post–mortem stages as well, in the
monthly monetary proposals sent by the district
administration to the nodal officer.

If the spot inspection is not conducted by the SP and the DM,
then a complaint should be sent to the state nodal officer and the
chief of the protection cell. The spot inspection should be 9
conducted again by the SP and the DM. They should inform the
victims and their dependents about their visit for spot inspection
and also provide a copy of the report.

Stage 5: Investigation
Investigation is the systematic inquiry of the background and
motive of the incident, persons behind the incident, weapons
used and other information to prove beyond reasonable doubt
that an atrocity has taken place. A charge–sheet will be filed
based on the investigation.
 The Deputy Superintendent of Police: Complete the
investigation and file the charge–sheet within 60 days.
Provide protection and travel arrangements for the victims,
dependents, and witnesses.
 District magistrate: Provide relief and socioeconomic
rehabilitation
 The Special Court Judge should ensure that all these are
provided.
Stage 5: Investigation
 Dates, places, and the status of investigation  Any delay in the investigation or filing of the
should be informed to the victims or their charge–sheet must be explained in writing by the
dependents or associated organisations or investigating officer [Rule 7(2A)].
individuals [Section 15A(11)(Iection 15A(11)(l),  The officer directly responsible for protection is the
SCP] reasonably in advance. investigating officer.
 Victims, dependents, and witnesses [Rule 11] are  The relief due at the charge–sheet stage
entitled to taxi or second–class train fare from (usually 50%) should be paid immediately, or
their place of stay to the place of investigation within seven days.
[Rule 11(1)] or visiting officials concerning the
 The district magistrate or executive magistrate will
investigation [Rule 11(2)].
make arrangements for the travel in an equivalent
 They are entitled to daily maintenance allowance, mode of transport [Rule 11(2)].
diet allowance, etc for the days away from place of
 It is the duty of the judge of the special court to
residence during investigation [Rule 11(4)].
provide protection, travel allowance and
 Victims, witnesses, and dependents being a maintenance expenses, relief, socioeconomic
woman, a minor, a person over 60 years of age, or rehabilitation, and relocation during inquiry,
with over 40% disability are entitled to an attendant investigation, and trial [Section 15A(6)] at the
of their choice. The attendant is entitled to the appropriate time as required.
same allowances [Rule 11(3)].
 Allowances and expenses should be paid
immediately or at the latest within three days
[Rule 11(6)].
 A copy of the charge–sheet should be given to
the victims, their dependents, associated
organisations, or associated individuals free of
cost [Section 15A(11)(Iule 5(2)].
 Once the charge–sheet is filed, the victims are
entitled to a part of the relief (Usually 50%) as
stipulated in Rule 12(4) Schedule Annexure I.


If the investigation is not done by an officer at least of a DSP
rank, that alone is reason for acquittal or squashing of the case, as
several high court judgements have shown. Immediately bring it
to the notice of the SP, DM, special officer, state nodal officer
and the chief of the SCs and STs protection cell and demand that
an officer of appropriate rank be appointed as the investigating
officer. The investigation should be conducted again by an
officer of DSP rank or senior, if not, the concerned SP (who
appoints the investigating officer) should be automatically
prosecuted for dereliction of duty u/s 4. The victims and their
dependents should be informed about the investigating officer
and their credentials.
Stage 6: Trial
 The survivor can choose an advocate from the panel  The DSPs should provide adequate protection to
appointed by the government under Rule 4(1). the witnesses from intimidation and harassment
 The survivor also has the option of choosing an [Section 15A(11)(h), SCP].
eminent advocate of their choice [Rule 4(5)]. The  The cases should be disposed of within two
advocate will be paid by the government. months as far as possible [Section 14(2)].
 Getting adequate briefing from SPP before the trial.  Proceedings should be conducted daily until all
 Right to travel allowance, daily maintenance witnesses in attendance have been examined
allowance, and diet allowance for the days away [Section 14(2)]. There should be no unnecessary
from place of residence during hearing of trial adjournments. Reasons for any adjournment beyond
[Rule 11(6)] and entitled to taxi fare from place of the following day must be recorded in writing by the
stay to court for hearing and trial [Rule 11(1)]. judge of the special court [Section 14(3)].
 Victims, witnesses, and dependents being a  All proceedings should be video recorded.
woman, a minor, a person over 60 years of age, or
with over 40% disability are entitled to an attendant
 The special public prosecutor has to give adequate
briefing on the case and preparation for trial
9
of their choice. The attendant is entitled to the including cross questioning to the victims,
same allowances [Rule 11(3)]. witnesses, associated individuals and organisations
 The special court should ensure that all those
eligible have got the emergency relief, instant
monetary relief, relief, socioeconomic rehabilitation,
travel allowance and maintenance expenses, and
relocation (if required) within the mandatory
deadlines.
 The district magistrate or executive magistrate
should arrange for the travel in sleeper class by 9
train or equivalent mode of transport [Rule 11(2)],
and travel allowance, daily maintenance
allowance, and diet allowance for the days away
from place of residence during hearing of trial.

Stage 6: Trial
The trial must be completed within two months from the date of
filing the charge–sheet. The special public prosecutor has to
prove beyond doubt that the accused person(s) are the
perpetrator(s) and that the atrocity was committed due to caste. If
the victims do not have confidence in the government appointed
special public prosecutor, they have the right to replace him and
appoint a senior advocate of their choice who will be paid for by
the state government.
 It is the duty of the investigating officer, i.e. DSP, to provide
information about the dates of the trial in court sufficiently in
advance, provide protection, and make travel arrangements.
 It is the responsibility of the special public prosecutor (SPP)
to argue the case well with all the evidence, and brief the
witnesses.
 The judge of the special court should ensure protection, relief
The judge of the special
and socioeconomic rehabilitation, reimbursements, and
court should
 ensure protection to
relocation are secured for the victims and witnesses, and that
witnesses and their the trial is conducted on a daily basis to be concluded within
families. two months of the charge–sheet being filed.
 provide relief,
socioeconomic What if a right is violated / dissatisfied?
rehabilitation,
reimbursements, and
 If you are not satisfied with the performance of the SPP, you
relocation. can approach the judge of the special court and get another
 conduct the trial on a lawyer of your choice.
daily basis.  If you want to transfer the trial to another district, you can
 conclude the trial within
two months of the
apply to the High Court with valid reasons.
charge–sheet being filed.  If the protection provided is insufficient, bring it to the notice
 ensure protection to of the judge of the special court.
witnesses and their
families.
Stage 7: Judgement
It is the duty of a judge to render a just judgment in a case argued
before him, based on the witness testimony and evidence
presented.
The judge should conduct the trial on a daily basis (or provide
written explanation as to why not), and ensure that the
witnesses are protected, paid all their reimbursements, relief,
allowances, and the socioeconomic rehabilitation is done
before the end of the trial.

Stage 7: Judgement
 To be heard in respect of bail, discharge, release,  It is the duty of the Deputy Superintendent of Police
parole, conviction, or sentence of an accused to inform the victims, dependents and witnesses in
[Section 15A(5)]. Notice for such hearings must advance of the date of the judgment and bring
be given to them well in advance. them to the court.
 If the case ends in conviction, the victims are  The special court must identify whether the
entitled to a part of the relief (usually 25%) acquittal is due lapses in investigation or
stipulated in Rule 12(4). deficiency in argumentation.
 Right to a copy of the judgement.  Appeal against the judgement of the special court
 If acquitted, information on the state plans for (in case ends in acquittal or if unsatisfied with the
appeal and to file an independent appeal. judgement) within 90 days [Section 14A(3)] by the
SPP.
 Socioeconomic rehabilitation – a pension, a
government job, agricultural land sufficient for a  These appeals should be disposed of within three
life with dignity, a house, and enrolment of children months [Section 14A(4)].
in schools, with in residential three months of the  Judge of the special court should ensure that all
FIR being filed, should be complete by now the relief and socioeconomic rehabilitation have
[Rule 12(4) Schedule Annexure I #46]. been completed by the end of the trial.
 Entitled to the travel allowance, daily maintenance  The district standing committee must identify
allowance, and diet allowance for the days away whose lapses – the investigating officer or the
from place of residence during hearing of trial special public prosecutor – led to the acquittal, and
[Rule 11(6)] and entitled to taxi fare from place of action must be taken.
stay to court for hearing and trial [Rule 11(1)]. The
district magistrate or executive magistrate will
arrange for the same in an equivalent mode of
transport [Rule 11(2)].
What if a right is violated / dissatisfied?

The victims and survivors have a right to appeal against the
judgement of the special court if the case ends in acquittal or if
they are dissatisfied with the judgement. The appeal should be
within 90 days [Section 14A(3)] by the SPP.
Socioeconomic rehabilitation should be complete by now.
Stage 8 and 9: Jail and release

If convicted, the offender will be punished based on the nature of
the offense and provisions of the Act.
On the other hand, if not proven guilty, the accused will be
acquitted.
9
The DSP from the district protection cell is responsible for
continuous protection.

Stage 8 and 9: Jail and release

 The victims, witnesses, concerned organisations,  Inform the victims and witnesses before the
and individuals have the right to be heard before convicts are paroled or let out of jail.
any parole or remission of sentence and be given a  Provide protection to the victims and their families
chance to challenge it [Section 15A(5)]. from additional harm by the family and caste
 Right to protection from the convicts or their members of the offender and to inform the victims in
families or they community even post trial and advance about the release/or parole of the offender.
conviction, but especially during parole and after
release.
Stage 10: Appeal

If the judgment passed by the court after the hearing is not
acceptable/satisfactory, an appeal can be filed. Appeals should be
filed within 60 days in regular cases and 180 days in special cases.
 The recommendation for appeal must be made by the special
public prosecutor and the director of prosecutions.
 The district magistrate: should re-examine the
recommendation as the chairman of the district vigilance and
monitoring committee.
 Additionally, as per the recommendations of the Kishan Bai
judgment, the state government should find out who is
responsible for the failure of the case in the court and proceed
against the investigation officer or a special prosecutor.
Stage 10: Appeal

 Right to appeal against an order passed by the  SPPs should appeal cases within 90 days.
special court acquitting the accused or convicting  Courts should dispose off the appeals within three
them for lesser offences, within 90 days months.
[Section 14A(3)] or 180 days at the discretion of
 Even so, it is best to inform the state nodal officer,
the judge.
protection cell, the DOP and the vigilance and
 These appeals should be disposed of within three monitoring committees at all levels.
months [Section 14A(4)].
 Victims, their dependents, and families have all the
rights under Section 15A in the appellate stage,
especially right to be heard [Section 15A(5)],
dignity, protection, and information.
 Notice for such hearings, date and status must be
given to them well in advance.

Compliance Format 1: Format for information to register FIR [Rule 5(1)]
Date __/__/20__
Ref: CVMC/POA/ss/dd/20__/PS01/__
Dear Sir,
Subject: Immediate registration of FIR and arrest under the Scheduled Castes and the
Scheduled Tribes (Prevention of Atrocities) Act, 1989 and Rules, 1995 as amended to date.
Ref: Section 18A the Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities)
Act, 1989 and Rules, 1995 as amended to date.
I bring to your notice the following:

1. An atrocity has been committed as per Section 3 of the aforementioned Act.
2. The accused being non-scheduled caste, non-scheduled tribe person(s) and have
committed this heinous crime knowingly because the victim belongs to a scheduled
caste / scheduled tribe community.
2.1 Details of informant:

2.1a. Name:
2.1b. Father/ Husband name:
2.1c. Mobile number:
2.2 Details of victim(s)

2.2a. Victim name:
2.2c. Age:
2.2d. Community:
[If there is more than one victim, fill in the details for each of them separately].
2.3 Details of accused (if known)

2.3a. Name(s) of the accused:
2.3c. Age:
2.3d. Community:
[If there is more than one accused, fill in the known details for each of them separately].
2.4 Any connection between accused and victims

3. Details of incident:
3a. Date:
3b. Time:
3c. Place:
3d. Describe clearly how the crime occurred. 9
3e. Witness name (If any).
3f. Names of persons accompanying you (If any).
3g. Hospitalisation details.
3h. Details of major or minor injuries (If any).

Compliance Format 1 : Format for information to register FIR [Rule 5(1)]
3i. Wrong words used by the accused (If any).

3j. Things or weapons used by accused (If any).
3k. Details of any caste slur used:
4. Documents
4.1 E-documents.
4.1a. Audio recording.
4.1b. Video recording/ before incident or after incident (Visual or Camera).
4.2 Messages .
4.2a. WhatsApp or any other apps.
4.2b. Phone message.
4. 3 E- conversation.
4.3a. Email.
4.3b. Any other network.
4.3c. Any other digital evidence.
4.4 Medical documents.
5. The crimes fall under the following subsections of Section 3:

5a. Section 3(1)(r) IPC / BNS ___________.
5b. Section 3(_)(_) IPC / BNS ___________.
5c. Section 3(_)(_) IPC / BNS ___________.
III Immediate action required and requested
I fear further criminal intimidation and threat to the life and property of the victims (listed in
2(3) above), witnesses, and their dependents. I therefore ask you to immediately:
6a. Kindly provide me, victims (listed in 2.2 above), witnesses, and their dependents with
immediate total protection (mandatory u/s 15A(11)(h)), including relocation, relief,
and rehabilitation due to imminent threat to life, and forced denial of livelihood due to
the threats.
6b. Record all proceedings under this Act on video as you are required to do under
Section 15A(10) of the aforementioned Act.
6c. Register an FIR against the persons mentioned in 2.3 above (mandatory under
Section 18A) and provide me a copy free of cost u/s 15A(11)(i) and Rule 5(2).
6d. Extern the persons mentioned in 2.3 above from the district (as per Section 10), seize
their assets and tools used for the atrocity, and attach their property (mandatory under
Section 10).
6e. Immediately arrest and hold without bail the persons mentioned in 2.3 above as per
Section 18A.
6f. Immediately provide medical assistance, counselling, and legal aid free of cost.
6g. Immediate, thorough investigation: Complete the investigation on a priority and file
the charge–sheet within 60 days (Rule 7(2)).
6h. If there is any delay, keep those mentioned in point 7 above informed, including
sharing the report filed under Rule 7(2A).

Compliance Format 1: Format for information to register FIR [Rule 5(1)]
6i. Furnish copies of the reports under Rule 6(2) and Rule 12(7) to me and those
mentioned in point 7 within one week.
III. Contact details as per Section 15A(12)

I place on record the following details of the concerned individual, organisation, and
advocate as specified under Section 15A(12) and Rule 4(5), and request that you fulfil all
the duties of the state towards them [Section 15A(11)] with immediate effect:
7a. Concerned social worker [Section 15A(12)]: (name, mobile, email. address).
7b. Concerned organisation [Section 15A(12)]: (name, mobile, email. address).
7c. Advocate [Section 15A(12) and Rule 4(5)]: (name, mobile, email. address).
Signed
Address:
Mobile:
Email:
To
The SHO.
Police station _________________.
Cc:
Senior Superintendent of Police.
ADGP, SCs and STs Protection Cell (Rule 8).
District Magistrate, Chairperson, DVMC (Rule 17).
Principal Secretary, Social Welfare Department, Nodal officer (Rule 9).
Chief Minister, Chairperson, SVMC (Rule 16).

Compliance Format 2: Format for complaint for non-registration, deriliction of duty [Rule 5(3)]
Date __/__/20__
Ref: CVMC/POA/20__/RR01/___
Dear Sir,
Subject: Provision of immediate relief, rehabilitation, travel allowance and maintenance
expenses under the Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities)
Act, 1989 and Rules, 1995 as amended to date.
Ref:
(a) FIR number xxx.
(b) Rule 11 of the aforementioned rules.
(c) Rule 12(4) Schedule Annexure I Norms for relief amount, especially Sr No 46.
Additional relief to victims of murder, death, massacre, rape, gang rape, permanent
incapacitation, and dacoity.

2. Details of incident are in the aforementioned FIR (copy attached).
(a) Section 3(1)(r) IPC/BNS ____________.
(b) Section 3(_)(_) IPC/BNS ____________.
(c) Section 3(_)(_) IPC/BNS ____________.
We request the following:

4. Immediate relief and rehabilitation.
4a. Ensure that the victims and their dependents are provided with the relief due as per
Rule 12(4) Schedule Annexure I.
Immediate on registering FIR H x,xx,xxx.00
On getting medical certificate H x,xx,xxx.00
Within 60 days / filing charge–sheet H x,xx,xxx.00
Within 120 days / completion of trial H x,xx,xxx.00
Within 120 days / conviction H x,xx,xxx.00
Total H x,xx,xxx.00
4b. Ensure that the victims and their dependents are provided with due rehabilitation as per
Rule 12(4) Schedule Annexure I within three months.
(a) Monthly pension of I5000+ applicable DA to _____________.
(b) Agriculture land.
(c) House.
(d) Government job.
(e) Children to be provided residential education up to graduation: Girls: xx Boys: xx
(f) Provisions for three months.

Compliance Format 2: Format for complaint for non-registration, deriliction of duty [Rule 5(3)]
4c. Ensure that the victims and their dependents are provided with the travel
allowance and maintenance expenses (TAME) due during investigation and trial as
per Rule 11 (___________________).
4d. Immediately complete and forward the application to the union Ministry of Social
Justice and Empowerment for Dr Ambedkar National Relief.
4e. Keep me and those mentioned in point 6 informed of and updated on the release of the
relief, rehabilitation, and TAME.
5. Immediate spot visit and regular review.
5a. Kindly visit the spot immediately, as required under Rule 12(1).
5b. Review the progress of this case in the monthly report (Rule 4(4)), quarterly DVMC
meetings (Rule 17(3)), and the quarterly performance of the officials (Rule 3(xi).
6. Place on record the following as the concerned individual, organisation, and advocate
as specified under Section 15A and Rule 4(5), and fulfil all the duties of the state
towards them [Section 15A(11)] with immediate effect:
6a. Concerned individual [Section 15A(12)]: (name, mobile, email. address).
Signed
Address:
Mobile:
Email:
To
The District Magistrate (Collector).
District _________________.
Cc:
Senior Superintendent of Police/ SP/ DSP.

Compliance Format 3: Format for entitlements (DANR, relief, TAME, rehabilitation)
Date __/__/20__
Ref: CVMC/POA/20__/SP01/___
Dear Sir,
Subject: Non registration of FIR under the Scheduled Castes and the Scheduled Tribes
(Prevention of Atrocities) Act, 1989 and Rules, 1995 as amended to date.
Ref:
(a) Section 4 and Section 18A of the aforementioned Act.
(b) Rule 5(3) of the aforementioned Rules.
(c) Complaint given to the SHO, Police Station _____________, on dd/mm/yyyy at
hh:mm.

2. Details of the incident, the atrocities committed, and the sections violated, are detailed
in the aforementioned complaint ref 3 above (copy attached).
3. The complaint was given to the SHO.
Name:
Designation:
Police station:
Date:
Time:
4. Refusal to register the FIR.
4a. The aforementioned officer refused to register the FIR as required under Section 18A of
the aforementioned Act even after it was pointed out by us and written in the complaint
itself.
4b. The aforementioned officer is therefore liable for punishment of a minimum of six
months and up to one year imprisonment as per Section 4(1) for dereliction of a duty
prescribed under Section 4(2)(b).
5. We request you to take the following action immediately:
5a. Visit the spot, as you are required to do under Rule 12(1).
5b. Order the FIR to be filed under Rule 12(2) after the spot visit or under Rule 5(3)
immediately.
5c. Register an FIR and arrest of the SHO for dereliction of duty prescribed under Section
4(2)(b) of the Act.
5d. Provide security to me (victim), and my family (witnesses and dependents) as required
under Section 15A.

Compliance Format 3: Format for entitlements (DANR, relief, TAME, rehabilitation)
as specified under Section 15A and Rule 4(5), and fulfil all the duties of the state
towards them [Section 15A(11)] with immediate effect:
7. Keep me and those mentioned in point 6 above informed of the progress and action
taken.
Signed
Address:
Mobile:
Email:
To
The Senior Superintendent of Police.
District _________________.
Cc:

Compliance Format 4: Requisition for immediate enhancement of pension
Date __/__/20__
Ref: CVMC/POA/20__/SDM01/___
Dear Sir,
Subject: Provision of statutory (enhanced) pension and arrears to victims of atrocity under
the Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 and
Ref:
(a) FIR number xxx.
(b) Rule 15(1)(e) of the aforementioned rules.
(c) Rule 12(4) Annexure I Norms for relief amount, Sr No 46 Additional relief to victims of
murder, death, massacre, rape, gang rape, permanent incapacitation, and dacoity.

(b) Section 3(_)(_) IPC/BNS ____________.
(c) Section 3(_)(_) IPC/BNS ____________.
4. The following have been sanctioned pension based on the above:
____________________.
5. The monthly pension due is H5,000 + applicable DA.
6. The DA has been enhanced since 2017, when the Act and Rules came into force.
7. However, the amount sanctioned/credited to the bank account is less than the eligible
amount.
We therefore request you to
(a) Immediately enhance the pension for the aforementioned victims and
(b) Pay the arrears as per the dates arrears were sanctioned to government servants.
Signed
Address:
Mobile:
Email:
To
District _________________.
Cc:

Compliance Format 5: Requisition for immediate payment of TAME
Date __/__/20__
Ref: CVMC/POA/TAME/20__/TAME01/___
Dear Sir,
Subject: Dereliction of duty: Delay and denial in providing travelling allowances, daily
allowance, maintenance expenses and transport facilities to the victim of atrocity, his or her
dependent and witnesses under the Scheduled Castes and the Scheduled Tribes (Prevention
of Atrocities) Act, 1989 and Rules, 1995 as amended to date.
Ref:
(a) FIR number xxx
(b) Rule 11 of the aforementioned rules.

(b) Section 3(_)(_) IPC/BNS ____________.
(c) Section 3(_)(_) IPC/BNS ____________.
4. Delay and denial.
4a. The statutory travel allowance and maintenance expenses (Rule 11) have not been paid
to the victims, witnesses, and their attendants.
4b. It is supposed to be paid immediately or within three days at the latest.
4c. There is an undue delay in the socioeconomic rehabilitation.
Those eligible for TAME are:
Travel Maintenance Medical Total
# Name # Days
reimbursement expenses expenses reimbursement due (H)
5. We request you to immediately ensure that the following entitlements u/r 11 are
immediately credited to the accounts or within three days [Rule 11(6)]:
5a. Travelling allowances (multi-modal) [to and fro rail fare by second class in express /
mail/ passenger train or actual bus or taxi fare].
9
5b. Daily allowance.
5c. Maintenance expenses (minimum one days agricultural workers wages for every day
of inquiry, investigation, and trial away from place of residence).

Compliance Format 5: Requisition for immediate payment of TAME
5d. Ensure that the allowances are paid to the victims, dependents, witnesses, and
attendants [Rule 11] immediately or within three days [Rule 11(6)].
5e. Daily maintenance allowance, diet allowance etc for the days away from place of
residence during trial [Rule 11(4)].
5f. Ensure that woman, minor, person over 60 years of age or over 40% disability are
entitled to an attender who should be given the same allowances [Rule 11(3)].
6. Keep me and those mentioned in point 7 informed of and updated on the release of the
TAME, and fulfilment of socioeconomic rehabilitation.
as specified under Section 15A and Rule 4(5), and request you to fulfil all the duties of
the state towards them [Section 15A(11)] with immediate effect:
Signed
Address:
Mobile:
Email:
To
District _________________.
Cc:
Senior Superintendent of Police/ SP/ DSP.

Compliance Format 6: Requisition for socioeconomic rehabilitation
Date __/__/20__
Ref: CVMC/POA/RREMIND/20__/___/___
Dear Sir,
Subject: Dereliction of duty: Delay in providing socioeconomic rehabilitation under the
Scheduled Castes and the Scheduled Tribes (Prevention of Atrocities) Act, 1989 and
Ref:
(a) FIR number xxx.
(b) Rule 12(4) Scheduled Annexure I Norms for relief amount, especially Sr No 46
Additional relief to victims of murder, death, massacre, rape, gang rape, permanent
incapacitation, and dacoity.

(a) Section 3(1)(r) IPC/BNS __________.
(b) Section 3(_)(_) IPC/BNS __________.
(c) Section 3(_)(_) IPC/BNS __________.
4. Delay and denial.
4a. There is an undue delay in the provision of socioeconomic rehabilitation.
Those eligible for socioeconomic rehabilitation are:
Residential
Government Agricultural Provisions for
# Name Pension House education
job land three months
to graduation
II Therefore, we request you to

5. Immediately ensure that the following entitlements u/r 12 (4) Schedule Annexure I are
immediately provided:
a) Monthly pension of I5000+ DA.
b) Agriculture land.
c) House.
9
d) Government job.
e) Free, all-expenses paid residential education for children up to graduation: Girls: xx
Boys: xx) which also needs to be ensured.

Compliance Format 6: Requisition for socioeconomic rehabilitation
6. Keep me and those mentioned in point 7 informed of and updated on the fulfilment of
socioeconomic rehabilitation.
as specified under Section 15A and Rule 4(5), and request you to fulfil all the duties of
the state towards them [Section 15A(11)] with immediate effect:
Signed
Address:
Mobile:
Email:
To
District _________________.
Cc:
Senior Superintendent of Police/ SP/ DSP

Annexure 9.1: How to give witness in court
Giving evidence in court

The courts are a new, and often intimidating, experience for
everyone except the judge. So it is normal to be a little tense.
However, as a human rights defender, it is your duty to help the
victim–survivor and witnesses to clearly tell the court the facts.
This can be done by preparing them beforehand, telling them
what to expect and what to do. Go over their testimony with
them, both individually and collectively. They need to be
confident when in court.
Before the trial starts the prosecutor in–charge of the case (the
special public prosecutor) will prepare his case and know what
his witnesses are going to state in the court. He will, therefore,
interview each witness well in time and ascertain from the facts
to which they would testify in the court and instruct him how he
should behave in the court (don't lose temper, to answer
questions distinctly and in a natural manner, and not to volunteer
more information than is asked). Before the trial begins, the
prosecutor in–charge
He would encourage a timid or nervous witness and warn a prepares his case by
self–opinionated, talkative one against making answers interviewing the witnesses
unnecessarily long or speaking about matters regarding which he beforehand, ascertaining
the facts, understanding
has not been questioned (1586.5). During this preliminary
their testimony, and
interview, the SPPs will try to anticipate questions which may be instructing them on
put to the witnesses in cross– examination and put those courtroom behaviour.
questions to the witnesses and find out what answers they have to
give. This would help them to face the defence lawyers’
questions with confidence. There should be no attempt to tutor
witnesses (1586.6).
Remember, the witnesses, victims, and their dependents are
entitled to transport reimbursement, allowances (diet,
medicines) and maintenance expense (one day's minimum wage
of a rural agricultural worker in the state). In case they are a
person with disability, a minor, elderly, or woman, each of them
is entitled to an attender of their choice (who is also entitled to the
same allowances and reimbursements) at the cost of the state
[Rule 11(1), (3), (4) and (5)]. The payments will be made
immediately, but not later than three days [Rule 11(6)] by the
district magistrate or any other executive magistrate. This will be
monitored by the special court [Section 15A(6)].
9

Annexure 9.1: How to give witness in court
The following are essential when attending the court:

1. Always appear in neat, formal clothing.
2. Acknowledge the judge (look into the eye and nod), both
when entering and leaving the witness box.
3. Be attentive, never fidget.
4. Be calm and dignified while giving evidence to impress the
court and the counsel favourably.
5. While giving evidence, look straight towards the court.
6. When questioned by the adverse party, never turn towards
the prosecution counsel.
7. Answer a question only if you fully understand it. If the
question is not clear enough, say so and politely ask the
counsel to repeat it in a simpler form.
8. Do not answer a question with a counter–question.
9. If you do not remember any fact, say so at once rather than
attempt a random answer.
The victims have a right to 10. Never show irritation and do not be offended if the
adequate briefing on the
case and preparation for
crossexaminer questions in a way you do not like.
trial [Section 15A(11)(m)]. 11. If questions are unnecessarily vexatious or obnoxious,
The prosecutor in–charge represent the matter to the court and seek its protection.
(the special public
prosecutor) will prepare Above all, do not quarrel with the counsel.
witnesses by asking 12. Carefully distinguish between what you know personally
anticipated cross–
and what you may have heard from others.
examination questions to
ensure they can confidently 13. In answering a question, do not give unnecessary
respond to the defence information. For example, if asked whether the colour of a
lawyers’ questions,
certain article is white, do not say “No, it is black”, say
without attempting to
tutor the witness. simply “No” or “Yes”.
14. If you consider that some of your answer requires an
explanation which the counsel failed to elicit, you may, when
both the sides have finished, represent the matter to the court.
15. Remember that all that the court wants to ascertain is the
guilt or innocence of the accused and not your intelligence.
16. Give no more details regarding the source of your information
than from information received “I did this or that”.
17. Avoid lengthy answers. They furnish more material for
cross–examination. Replies should be concise.
18. Do not leave the court without its permission.
Paraphrased from the Karnataka Police Manual, paragraphs
1586 and 1588.
(http://www.ksp.gov.in/home/policemanual/ch39.php)
accessed 1 July 2013).
Annexure 9.2: Checklist for effective followup
Checklist for effective followup

The Act incorporates various special features to ameliorate the
additional hardships faced by the victims and witnesses due to
the atrocity perpetrated on them. These range from emergency
relief to socioeconomic rehabilitation within three months, and
includes medical assistance, food, clothing, shelter, work, and
security. This checklist is to ensure that all the rights of victims
and witnesses are fulfilled at every stage in their journey to
justice. Our goal is not only to ensure unhindered access to these
rights, but also to ensure that government officials fulfill their
duties by strictly adhering to relevant legal provisions at each
stage. While these steps may be challenging initially, with
practice they become routine.
This 105-question checklist guides victims and their supporters
through the ten stages of a case - from initiating a complaint to
judgement, convictions and imprisonment. It also has steps to
follow if the trial ends in an acquittal. Following these steps The Act incorporates
diligently, and using the checklist, will help victims and their various special features to
supporters on the journey to securing justice. ameliorate the additional
hardships faced by the
The checklist is arranged sequentially. However, some actions victims and witnesses due
to the atrocity perpetrated
need to be done periodically, some continuously, and some
on them. These range from
forever. emergency relief to
socioeconomic
Do note the following for the best results: rehabilitation within three
 Some provisions (such as protection, video recording) need months, and includes
to be monitored continuously. as medical assistance,
food, clothing, shelter,
 Monitoring the official reviews (SdVMC, DVMC, SVMC
government employment,
meetings) need to be done periodically (quarterly). protection, and relocation.
 TAME needs to be monitored every time victims and
witnesses go for inquiry, investigation, or trial.
 Relief needs to be monitored and followed up at every stage.
 Socioeconomic rehabilitation need to be completed within
three months, but monitored until all six are fulfilled.
 Post judgement monitoring is permanent.

# Section Stage Checklist for effective followup Yes No

1 S3 Did an atrocity take place?
2 R4(5) Did you choose your own advocate? (state will pay)
3 R5(1) If yes, have you informed the police?
4 R5(1) If yes, has a complaint been written down by the SHO at the police
station?
5 S18A(1)(a) After the complaint was received, was the FIR filed?
6 R5(1) If yes, has the FIR been read to you and then signed by you?
Information
7 R5(1) If yes, have you received a copy?
8 R5(3) If not, have you sent the information in writing by registered post to the
SP along with a covering note mentioning the date, time, name, and
designation of the police officer, and the police station in which the
original complaint has been refused? (use format SP01, page 322 )
9 S15A(12) Have you taken assistance from NGOs, social workers, and advocates
during the course of your case?
10 R12(5) In case of murder, rape, permanent disability, or arson, have the victims
and their families received instant monetary relief from the Dr Ambedkar
National Relief?
11 R12(4) Was a part of the monetary relief received during the time of filing the
FIR? [Usually 25% see Rule12(4) Schedule Annexure I]?
12 R6(1) Did an officer not below the rank of DSP or SDM visit the spot for an
inquiry?
13 R6(2) Did the inquiry assess the extent of atrocity, loss of life, loss and
damage to the property?
14 R6(2) Did the SDM/DSP submit a report u/r 6(2) to the state government?
15 R6(2) Did the SDM/DSP's report confirm that an atrocity has taken place?
16 R6(2)(i) If yes, does the report have a list of victims, their family members, and
Inquiry
dependents entitled for relief?
17 R6(2)(ii) If yes, does the report have details of the extent of atrocity, loss and
damage to the property of the victims?
18 R6(2)(iii) If yes, was intensive police patrolling in the area ordered?
19 R6(2)(iv) If yes, were effective steps taken to provide protection to the witnesses
and other sympathisers of the victims?
20 R6(2)(v) If yes, was immediate relief provided to the victims?
21 R6(1) If yes, was their superior officer – the SP or DM – informed?


22 R12(1) Did both the SP and the DM visit the area within 24 hours?
23 R12(1) If yes, did the SP and DM conduct a spot inspection to access the extent
of damage, loss of life and property?
24 R12(2) If yes, did the SP ensure that the FIR is registered with the correct sections?
25 R12(1) If yes, did the SP and DM identify the victims, witnesses, and their
dependents entitled to relief and the accused?
26 R12(2) Were effective measures for apprehending the accused taken?
27 R12(3) Was the necessary protection provided?
28 R12(1) Did you get the name of the SP?
29 R12(2) Did the SP appoint an investigating officer to continue the investigation?
30 R7(1) If yes, is the rank of the appointed investigation officer DSP or higher?
31 R7(1) Did you get the name and rank of the investigating officer appointed by
the SP?
Inspection
32 R7(1) Ask for the following details about the investigating officer for 5 years –
the number of:
(b) Cases for which investigation is completed within 60 days.
(c) Cases for which charge sheet has been filed.
(d) Cases for which charge sheet has not been filed (disposed of or
closed by the police).
(e) Accused in FIR.
(h) Number of accused acquitted (including in the cases for which

(i) Details of cases in which this officer was involved in for the past
five years at least.
33 R12(7) Has the DM sent a report to the special court?
34 S15A(11)(l) Have the dates, places, and the status of investigation informed to the
victims or their dependents or associated organisations or
individuals in advance?
Investigation
35 R11(4),(5) Have the victims, witnesses, their dependents, and their attendants
received travel and daily allowances, and maintenance and diet
9
expenses during investigation?
36 R11(6) If yes, have they got this immediately or at the latest within three days?
37 Has the investigation been completed?


38 R7(2) If yes, has the charge–sheet been filed in the special court by the
investigating officer?
39 R7(2) If yes, was the charge–sheet filed within 60 days from the date of
registering the FIR?
Investigation
40 R7(2A) If not, was the reason for delay explained in writing by the investigating
officer?
41 If the written explanation is not filed, has a complaint against the
investigating officer been filed?
42 R12(4) In case of rape or murder, was more relief received after submission of
Schedule
Annexure I the medical certificate or post–mortem report? (usually 50%)
43 S15A(1) Was protection requested?
44 S15A(6)(a) If protection was requested, was it provided?
45 R17A,17 Did you send a letter to the district social welfare officer, the
Continuous monitoring
member–secretary of the DVMC, asking for the case to be discussed in

the quarterly SdVMC and DVMC meeting?
46 If yes, after the meeting did you ask for a copy of the minutes?
47 If yes, was the case is discussed at the meeting?
48 R7(2) Was the case disposed of at the meeting?
49 R7(2) If yes, have you filed a case with the special court naming all the officials
involved for illegally disposing of the case?
50 S15(1),(2) Did the government arrange the SPP?
51 R4(2) For every SPP and panel advocate, have you received the following
details for at least five years:
(a) Number of cases argued.
(b) Number of cases ending in conviction.
(c) Number of accused in the charge-sheet.
(d) Number of accused who are acquitted (including in the cases for
(e) Reports regarding cases in which this SPP was involved in?
Pre-trial
52 R13(1) For every judge hearing cases under this Act (in a designated special
court or exclusive special court) did you get the following data for
review for five years:
(a) Number of cases listed.
(b) Number of cases heard.
(c) Number of cases ending in conviction.
(d) Number of accused in the charge-sheet.
(e) Number of accused who were acquitted (including in the cases for
53 R13(1) Have you tracked the number of cases pending, completed, convicted,
and the number of accused that were convicted in the last five years?


54 S15A(3) Were the victims, witnesses informed sufficiently in advance of each
and every hearing? [Section 15A(3)]
55 S15A(11)(l) Were the witnesses given adequate briefing (what to expect in court) on
the case and preparation for trial to atrocity victims or their dependents
or associated organisations or individuals, and set at ease by the
investigating officer and/or the special public prosecutor so that they
are not intimidated by the formal court atmosphere?
56 R11(3) Was an attendant required for any victim or witness (one each for every
woman, minor, person over 60 years of age or over 40% disability)?
57 R11(3) If yes, did they have an attendant of their choice?
58 R11(3) Was transportation arranged or fare reimbused at actuals within three
days for all victims, witnesses, and their attendants?
59 R11(4), Was the daily maintenance allowance and dietary allowance paid within
11(5),11(6) three days to all victims, witnesses, and attendants?
60 S15A(6)(b) If not, or if there is a delay, have you lodged a complaint with the judge
during the following hearing?
61 S15A(9) Did any of the witnesses face any intimidation or harassment?
62 S15A(6)(a), If yes, was a complaint made before the special court?
S15A(7)
Trial
63 S15A(1), Did the victims or witnesses get sufficient protection (so that they did
S15A(11)(c) not turn hostile?)
64 S15A(6)(a), If not (i.e if they turned hostile), have you filed a case against the
S15A(7) investigating officer and the DM for dereliction of duty? (since it is likely
that the victims and witnesses were coerced into withdrawing the case,
indicating insufficient protection, or because they were not rehabilitated
in time – both of which are the duties of the state).
65 S15A(10) Have all proceedings under this Act been video recorded?
66 R6(2), Were the spot visit reports of the DSP or SDM, SP and DM, SdVMC
R12(7), minutes, DVMC minutes, and the SVMC minutes introduced as
R17A(4), evidence?
R17(3),
R(16(2)
67 S15A(11)(j) Were medical reports, post-mortem reports and other material

introduced as evidence in court?
68 S5 Has the the convict(s) committed another crime?
69 S5 If yes, have you ensured that the previous crime(s) under this Act are
made a part of the complaint, FIR, evidence, and sentencing?
70 S5 If the accused is a repeat offender, was it brought to the notice of the 9

judge requesting enhanced punishment and longer incarceration?
71 Were all the important witnesses and accused called for examination?
72 S14(3) Was the case conducted on a daily basis?


73 S14(3) During instances of the trial not being conducted on a daily basis, did the
judge record in writing the reasons for longer adjournments?
74 S14(3) Trial If yes, have you received a copy of the record stating the reason?
75 S14(3) Was the case disposed of within two months of filing charge–sheet?
76 Have the victims and their dependents received all socioeconomic
rehabilitatative measures that are promised, within three months of the
FIR being registered?
Socioeconomic rehabilitation
R12(4) Schedule Annexure I
(a) House.
(b) Monthly pension (C5000+applicable DA).
(c) One government job per family.
(d) Free, all expenses paid residential education for your children upto
graduation.
(e) Agricultural land.
(f) Emergency relief for three months.
77 Have you filed RTI requests and memos to the responsible officers and
competent authorities to ensure that they are on track?
78 S14(3) Was the case completed (disposed of) within two months of filing the
charge-sheet?
79 S15A(3) Did you get sufficient notice as to when the judgement was going to be
Judgement
pronounced?
80 R11 Did you get the eligible TAME to attend court on the day?
81 R12(4) Did the eligible victims receive the final part of the relief? (victims of
certain crimes are eligible for relief at the end of the trial, with or without
conviction of the accused).
82 S14 Did the case end in an acquittal?
83 S14A If yes, is the state is planning for an appeal?
84 R4(5) If not have you chosen your own advocate for the appeal?
85 Did the judgement mention whether the acquital was because the
investigation or the argument was weak?
Acquittal and appeal
86 Did you file to get the standing committee (Kishan Bhai judgement)
report for this case?
87 Based on the above did you ask for punitive action on the investigating
officer or the special public prosecutor?
88 S14A Has an appeal been filed against the acquittal either by the government,
or the victims, their dependents, or their family?
89 S14A(3) If yes, did the appeal take place within 90 (or 180 days at the discretion
of the judge)?
90 S14A(4) Has the appeal been disposed of within three months?


91 Did the case end in conviction?
92 R12(4) If yes, did the victims receive the final part of the relief? (Usually 25%)
Schedule
Annexure I
93 If yes, have the convicts been kept behind bars so that they, their
families, or their caste members cannot cause additional harm to the
victims, witnesses, their dependents, and their families, individually or
collectively?
Conviction and incarceration
94 S15A(5) Has he/she/they been released?
95 S15A(5) If yes, Is it on a temporary basis (on parole)?
96 S15A(5) If yes, is the release permanent? Is the release due to reduction of

sentence, a pardon, or on completing of a sentence?
97 S15A(5) Have you monitored the reports of the prison officials?
98 S15A(5) Have you tracked of the appeals against conviction, parole, and the
time the convicts are allowed outside prison?
99 S15A(5) Are you being informed sufficiently in advance and heard before parole,
remission, and release? [Section 15A(5)]
100 R11 To attend the parole hearings, are you (and your attender too) being paid
TAME immediately or within three days at the latest? [Rule 11]
101 If not have you filed a complaint with the special court?
102 S15A(1) If there is an increase in threat during parole/remission/release, did you

ask for protection?
Post release
103 S15A(1) If so, has it been provided?
104 S15A(6)(a) If not have you filed a complaint with the special court?
105 S15A(11)(n) Have you maintained vigilance right through the sentence, and for a
period after release as well to ensure safety of the survivor(s)?

10 CVMC AND SURVIVORS’ FORUMS
Citizens’ vigilance and monitoring committee ...........................................................................341

Objective...............................................................................................................................................341
Composition..........................................................................................................................................342
Model structure.....................................................................................................................................342
Role of CVMCs ........................................................................................................................343
Tasks and periodicity .............................................................................................................................343
Who can join.........................................................................................................................................344
Survivors’ forums....................................................................................................................344
Why a survivors’ forum? .......................................................................................................................344
Objective ..............................................................................................................................................345
Participants ..........................................................................................................................................345
Roles and responsibilities .....................................................................................................................345
Survivors .............................................................................................................................................345
Lawyers ...............................................................................................................................................346
Counsellors...........................................................................................................................................347
Dalit Adivasi Human Rights Defenders (DAHRD) ....................................................................................348
People’s movements, civil society organisations, volunteers ..................................................................348
The CVMC role in the survivors’ forums.................................................................................................348
Model schedule ....................................................................................................................................349
POA Handbook for Justice – 2024 Survivors guide to POA 339

CVMC and Survivors’ Forums 10
Citizens’ Vigilance and Monitoring Committee
The citizens’ vigilance and monitoring committees (CVMC) at the
union, state, district, and subdivisional levels are civil society
mechanisms set up to monitor the implementation of the law,
including monitoring the monitors. They shadow the functioning
of the vigilance and monitoring committees, functioning parallelly
at all levels to ensure that the scheduled communities can live as
full citizens and enjoy the benefits of development and progress.
Regular, periodic, systematic assault on the life, person, or
property of the scheduled communities – the most vulnerable of
our society – are not acceptable and should have zero tolerance in
India, as indeed in any civilised society.
Objective
The citizens’ vigilance and
The objective of the CVMCs is to address caste and
monitoring committees at
ethnicity–based discrimination and violence as a social issue the union, state, district,
with a broad–based social response, so that it is not pigeon–holed and subdivisional levels are
into an issue of the scheduled communities alone, to be civil society mechanisms
set up to monitor the
addressed as a ‘law and order problem’, with the burden falling implementation of the law,
only on those from the scheduled castes and the scheduled tribes. including monitoring the
monitors. They are a
CVMCs enable citizens to fulfil eight of the eleven fundamental common forum of social
duties under the Constitution of India (Chapter IVA movements, civil society
Fundamental duties, Article 51A), namely to: organisations, human
rights defenders, and
(a) Abide by the Constitution and respect its ideals and academia that strive for
institutions. social justice.
(b) Cherish and follow the noble ideals which inspired our
national struggle for freedom.
(c) Uphold and protect the sovereignty, unity, and integrity of
India.
(d) Promote harmony and the spirit of common brotherhood
amongst all the people of India transcending religious,
linguistic, and regional or sectional diversities; to renounce
practices derogatory to the dignity of women.
(e) Value and preserve the rich heritage of our composite
culture.
(f) Develop the scientific temper, humanism, and the spirit of
inquiry and reform.
(g) Abjure violence.
POA Handbook for Justice - 2024 CVMC and survivors forums 341
(h) Strive towards excellence in all spheres of individual and

collective activity so that the nation constantly rises to
higher levels of endeavour and achievement.
Composition
The CVMCs consist primarily of independent professionals who
are supportive of social justice. They need to be those who have
excelled in their spheres and have considerable social capital
and/or name recognition. Though human rights defenders will
also play an important part, they will not be centre staged.
The CVMCs actively strive to be a common forum of all social
movements, civil society organisations, human rights defenders,
and academia that strive for social justice and better
implementation of this Act.
Ideally the composition of the CVMCs would be (non–
cumulatively) 60% women, 60% professionals, with men and
The CVMCs base their
DAHRDs forming a maximum of 40% (non–cumulative). The
action and engagement on more professionals and eminent citizens’ express concern, the
incontrovertible evidence, faster these crimes will stop.
sourced directly from the
government. However, the
response is not only data Model structure
informed but also human
centric, as healing justice
needs to be. Panchayat
Presidents
ics
DA
2
em
HR
ad
Ds
Ac
Chairperson /
movements
Journalists
Peoples’
General Secretary /
2
District Secretariat
(1 woman)
2
2
Re serv
rs
ye
2 tire an
aw
d c ts
L
ivi
l
DVMCs
Members of
Figure 38: District level CVMC Composition
342 CVMC and survivors forums POA Handbook for Justice - 2024
Role of CVMCs
The citizens’ vigilance and monitoring committees at the union,
state, district, and subdivisional levels are to ensure an
autonomous citizens’ watch on the functioning of the state
mechanisms and efficient implementation of the Act. Their role
is strategic, to broaden the scope of engagement on social justice
in general, and for the DAHRDs in particular.
Their outspoken disapproval of caste and ethnicity–based
discrimination and violence will reset the norms that valorise
these crimes as somehow ‘honourable’ and a ‘duty’ to ‘age–old
customs and traditions’ to a more socially just normative.
The CVMCs base their action and engagement on
incontrovertible evidence, sourced directly from the government
(NCRB and SCRB data, state and union reports, minutes of
meetings). However, the response is not only data informed but
also human centric, as healing justice needs to be.
The strategic role of the
Tasks and periodicity CVMCs is to broaden the
scope of engagement on
The role of the CVMC is strategic and their tasks reflect this.
social justice for all
They need to be at the forefront of the quarterly meeting with the citizens, focussing beyond
district mechanisms and the state CVMCs need to be there at the just the DAHRDs and
half–yearly meeting with the state mechanisms. human rights
organisations.
The primary tasks of the CVMC are to:
(a) Verify the reports and findings of the Dalit Adivasi Human
Rights Defenders (DAHRDs).
(b) Draw out the lessons learnt.
(c) Advice as to the follow–up.
(d) Engage with the state mechanisms to ensure better
implementation (quarterly district wise, bi–annually at the
state level, and annually at the union).
(e) Release the findings to the public (the frequency will
depend on need).
(f) Attend the annual state / zonal convention and SMARTs
(strategic multi–actor round tables).
(g) Support and protect the DAHRDs.
(h) Meet 4–6 weeks before the appropriate VMC (for instance
28 February, 31 May, 30 August, 30 November at the
district level; 30 December and 30 June at the state level) to
take stock of the progress and engage with the state
mechanisms.
(i) Mobilise and enlist other social justice institutions and
formations.
10
Survivors’ forum
Who can join

Anyone with a deep belief in creating an uncompromising,
non–violent environment for the social justice of the scheduled
communities and holds a strong belief in promptly securing
justice for the victims is encouraged to join the CVMC. A
foundational belief that human rights are inherent, indivisible,
and inalienable is a prerequisite.
Survivors’ forums
Why a survivors’ forum?
At the heart of the survivors’ forum is the collective sharing of
experience – of sorrow and hope – and the power of solidarity.
‘Laugh and the world laughs with you, cry and you cry alone’ is a
familiar saying and experience. Survivors and their dear ones
experience it all too often. It is ‘received wisdom’ that witnesses
(after six months) and victims (after a year) often ‘turn hostile’
due to the feeling of abandonment which leads to despair,
The survivors’ forum is a depression, and a perverse form of Stockholm syndrome.
safe space to share
their experience, their While the CVMC processes are heavily evidence based – rooted
fears, and in return receive in government data – the survivors forums address the human
moral strength,
encouragement and
cost of atrocities. Through peer and professional support, they
understanding of peers provide a safe space for the emotional and psychological needs
who ‘have been there’ of the survivors. To paraphrase Justice Lokur (foreword to the
before, and the guidance to
The Citizens’ Audit of the Union Report u/s 21(4) on the
get through some of the
darkest times of their lives. Implementation of the Act for the calendar year 2021), this holistic
approach is needed to address the impact of the crimes taking
into account the entire personality of the victim, including
counselling and holistic support, going beyond monetary relief
and socioeconomic rehabilitation to embrace the entire person,
and communities for a healing justice.
Local support structures are critical for the victims and
witnesses. The survivors’ forum is a safe space where they can
share their experience and their fears, and in return receive moral
strength, encouragement and understanding of peers who ‘have
been there’ before, and the guidance to get through some of the
darkest times of their lives. This is perhaps the most powerful
psychosocial support that they can get, since the empathy is
rooted in the strength of those who themselves are still healing,
some with still raw open wounds. Counsellors will be present
where required.
The forums are also spaces for survivors to get assistance on the
legal remedies and their entitlements post atrocity – immediate
Survivors’ forum
relief, socioeconomic rehabilitation, reimbursements, and

allowances. Lawyers will be present so that survivors can be
helped with their specific cases individually.
No case is too small for the forum. Few atrocities happen on the
spur of the moment. Often there is a long build up. Sometimes
the build–up is below the threshold of cognisance i.e., too minor
to be noticed. Many a time the aggravation is constant but low
intensity, and everyone tends to brush off each of them as ‘a’
minor incident. The escalation in intensity or frequency in
‘minor incidents’ should serve as a warning.
Objective
Provide support to all survivors of atrocities and their
dependents under the Scheduled Castes and the Scheduled
Tribes (Prevention of Atrocities) Act, 1989 and related laws to
claim their entitlements and rights including:
(a) Protection.
(b) Immediate in–kind and monetary relief. The forums are also
spaces for survivors to get
(c) Relief. assistance on the legal
(d) TAME. remedies and their
(e) Socioeconomic rehabilitation. entitlements post atrocity –
immediate relief,
(f) Preparation for trial.
socioeconomic
rehabilitation,
Participants reimbursements, and
(a) Survivors: Victim–survivors, witnesses, their families, allowances.
dependents, and attendants.
(b) Dalit Adivasi Human Rights Defenders (DAHRD).
(c) CVMC members.
(d) Concerned organisations [Section 15A(12] and social
movements.
(e) Concerned individuals [Section 15A(11)] and social
workers [Section 15A(12)].
(f) Lawyers.
(g) Counsellors.
Roles and responsibilities

All: Ensure the safety of the survivors, support them during the
entire process up to conviction and rehabilitation.
Survivors
(a) Bring copies of the required documents: Complaint, FIR,
chargesheet, relief and rehabilitation received to date.
(b) Attend the orientation session.
(c) Share experience.
10
Survivors’ forum
(d) The victims, dependents/family members/supporters, and

witnesses who approach the legal aid centre should adhere
to the norms of the legal aid centre.
(e) The legal services provided and the follow–up service
related to the case must be filled and approved by the
provider.
(f) To avail of the legal services provided, an affidavit must be
given in writing with witnesses and available evidence,
providing factual information about the crime committed
without exaggeration.
(g) Accept and follow the advice and instructions suggested by
the centre and cooperate.
(h) Victims and litigants may withdraw from the forum if they
do not wish to continue availing the legal or support services
provided through a written notice.
Lawyers
A lawyers’ collective has
It is best to have a lawyers’ collective in each district so that one
the added benefits of a can immediately be assigned to the case. A collective has the
lawyer being on call so that added benefits of a lawyer being on call so that there will be a
there will be a lawyer
lawyer present right from the time of complaint, that they will
present right from the time
of complaint, that they will specialise in the Act thereby acquiring domain expertise, and the
specialise in the Act uplifting power of solidarity.
thereby acquiring domain
expertise, and the uplifting Always have a lawyer in your team, so that they can help with the
power of solidarity. process even before you make a complaint. If you include them
with their role in the complaint [Section 15A(12)], the
government will pay them. Assert the right to an advocate of
choice from the time of filing the complaint [Rule 4(5)].
(a) Takeover the case if possible [Rule 4(5)].
(b) Assist survivors in drafting and filing complaints and
supplementary FIRs.
(c) Identify gaps in procedure or law and assist the survivors to
rectify them.
(d) Assist the survivors in preparing for the trial.
(e) Join the lawyers’ forum.
(f) Must comply with the obligations and responsibilities of
their duties.
(g) The centre is a socially responsible and caring entity that
provides services to victims on a fixed fee or no fee basis.
Acceptance and action upon the agreement to serve are
required. The individual must accept and act in accordance
with a sense of duty and service, as a moral obligation.
Survivors’ forum
(h) The advocate should be an active member of the district

citizens vigilance and monitoring committee and operate
within its procedures and jurisdiction.
(i) A minimum of three years of experience as an advocate in
criminal courts is necessary.
(j) Proficiency in the relevant Acts and Rules with amendments
to date is required. Additionally, familiarity with the
provisions of the POCSO Act, Criminal Procedure Code,
Bharatiya Nyaya Sanhita, and the Indian Penal Code
relating to atrocities is necessary.
(k) Quality service should be provided to the victim without
compromise.
(l) Participation in the survivors’ forums and legal awareness
camps on the specified dates and times is mandatory.
(m) In addition to the services of the centre, advocates should
actively participate in activities such as field investigations,
field inspections, and fact–finding teams.
(n) Assistance should be provided to avoid delays in issuing Proficiency in the relevant
community certificates to litigants or aggrieved persons. Acts and Rules with
amendments to date is
(o) All individuals who approach the centre, including required. Additionally,
aggrieved persons, their relatives, litigants, and witnesses, familiarity with the
should be treated equally regardless of the stage at which provisions of the POCSO
Act, Criminal Procedure
their case is brought. Code, Bharatiya Nyaya
(p) Agreement to maintain the documents of litigants/victims Sanhitaand, and the Indian
related to the case at the centres’ office is required. Penal Code relating to
atrocities is necessary.
(q) Personal details of litigants/victims must be kept
confidential and not shared with others in any way.
(r) Only the prescribed/defined service fee should be charged.
No additional fee should be collected from litigants or
aggrieved persons in any form.
(s) Legal services should be provided to litigants/victims.
‘Compulsions’, ‘compromises’, and other ‘negotiated
settlements’ in any form by whatever name called, are
strictly prohibited.
Counsellors
(a) The primary duty is to provide prompt psychiatric treatment
to litigants/victims, their dependents, and witnesses,
depending on the nature of the injury and the incident. This
further strengthens the legal counselling.
(b) Provide ongoing counselling and advice to litigants/victims,
their dependents, and witnesses as required, depending on
the nature of the harm and needs of the survivors.
10
Survivors’ forum
(c) Counselling and advice may be provided through

government programme facilitators, including the district
social welfare department, Childline, child welfare
committee, and the district child protection unit.
(d) Volunteering can be done for awareness camps conducted
by the centre.
(e) Collaborate in legal and other services provided by the
centre.
Dalit Adivasi Human Rights Defenders (DAHRD)

(a) CVMC members: Assist the survivors in applying for the
gaps in their entitlements.
(b) S o c i a l m o v e m e n t s , s o c i a l w o r k e r s , c o n c e r n e d
organisations, and individuals: Mobilise survivors for the
forum, follow–up on the entitlements, include themselves
as concerned organisations and individuals in the case,
attend the orientation session.
The primary duty of the
People’s movements, civil society organisations, volunteers
counsellor is to provide
prompt psychiatric (a) Be the first responders and provide immediate assistance
treatment to litigants / including medical aid.
victims, their dependents, (b) Assist the litigants/aggrieved persons in collecting and
and witnesses, depending
on the nature of the injury
presenting documents related to the case.
and the incident. (c) Provide moral support, protection, and continuous
protection from the opposite party to litigants/victims, their
dependents, and witnesses.
(d) Support for the immediate availability of benefits of the law
including recovery, rehabilitation, and relief. Collaboration
may be necessary.
(e) If any incident of atrocity takes place in any part of the
district, the genuineness of the incident can be verified and
reported to the centre.
(f) Volunteer in the awareness camp, forum, and at the centre
during the camp and forum days.
The CVMC role in the survivors’ forums

The survivors’ forum is anchored by the CVMC district incharge
and is distinct from, though complementary to, the CVMC
process in scope, participation, and focus. The survivors’ forums
are people–and case–centric but the organic links between them
are many.
While the CVMCs engage with the state mechanisms based on
large datasets (NCRB and SCRB reports, the union and state
reports) to address the systemic issues, it is also important to
The CVMC role
ensure that the individual survivors are attended to and

supported in their time of need which the survivors’ forums do.
Experience demonstrates that the official government data often
is at variance with ground truth, and therefore fulfilment of the
preventive, protective, and restorative mandatory provisions
needs to be constantly validated.
The data from the survivors’ forum will form a part of the follow
up (supplemented with data for the whole district) with the state
mechanisms to bring to their notice social pressure, state apathy,
or delays in charge–sheeting, trial, relief, reimbursement, and
rehabilitation, and any other non–fulfilment of victims and
witnesses rights [Section 15A].
Model schedule
0930 : Registration and verification of documents (complaint,
FIR, community certificate, medical certificate etc).
1000 : Orientation session: Rights and entitlements. The data from the
1030 : Survivors forum: Experience sharing/common issues. survivors’ forum will form a
part of the follow up with
1130 : Individual sessions with lawyers and CVMC members. the state mechanisms to
1730 : Close. bring to their notice social
pressure, state apathy, or
delays in charge–sheeting,
trial, relief, reimbursement,
and rehabilitation, and any
other non–fulfilment of
victims and witnesses
rights [Section 15A].
10
Notes
350 Notes POA Handbook for Justice - 2024

Notes
POA Handbook for Justice - 2024 Notes 351

For other publications
Citizens’ Audit of the Union Report u/s 21(4) Atrocity Case Tracking
The Elusive Search for Justice (English) The Elusive Search for Justice (Tamil)
30 Years Tamil Nadu Scorecard (English) 30 Years Tamil Nadu Scorecard (Tamil)
Chief Ministers' Report Cards (English) Chief Ministers' Report Cards (Tamil)
More resources are available at https://www.cvmc.in/

The Constitution of India
PREAMBLE
WE, THE PEOPLE OF INDIA,
having solemnly resolved to constitute India into a
SOVEREIGN SOCIALIST SECULAR
DEMOCRATIC REPUBLIC
and to secure to all its citizens:
JUSTICE, social, economic and political;

LIBERTY of thought,
expression, belief, faith and worship;
EQUALITY of status and of opportunity; and to

promote among them all
FRATERNITY assuring the dignity of the
individual and the unity and integrity of the Nation;
IN OUR CONSTITUENT ASSEMBLY

this twenty-sixth day of November, 1949, do
HEREBY ADOPT, ENACT AND GIVE TO OURSELVES
THIS CONSTITUTION.

A Handbook For Justice SC and ST Act

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The Scheduled Castes and the Scheduled Tribes

(Prevention of Atrocities) Act, 1989

A handbook for Justice

Human Rights Advocacy and Research Foundation

A handbook for Justice

Human Rights Advocacy and Research Foundation

Creative Commons License 4.0

The latest version of this handbook is available at

The latest Tamil version of this handbook is available at

Human Rights Advocacy and Research Foundation

1 CITIZENS’ AUDIT REPORT 2023: EXECUTIVE SUMMARY

Foreword – Justice Madan B. Lokur .......................................................................................................29

POA Handbook for Justice – 2024 Table of Content 3

2 INTRODUCTION TO THE ACT AND RULES

A history of the Act....................................................................................................................93

4 Table of Content POA Handbook for Justice – 2024

3 MANDATORY MINIMUM STATE RESPONSE

POA Handbook for Justice – 2024 Table of Content 5

6 Table of Content POA Handbook for Justice – 2024

6 MONITORING AT THE STATE LEVEL

7 MONITORING AT THE DISTRICT LEVEL

8 MONITORING AT THE SUBDIVISIONAL LEVEL

8 Table of Content POA Handbook for Justice – 2024

POA Handbook for Justice – 2024 Table of Content 9

Citizens’ vigilance and monitoring committee ...........................................................................341

10 Table of Content POA Handbook for Justice – 2024

Figure 1: Recorded crime (1992 to 2021) ..................................................................................42

POA Handbook for Justice – 2024 Table of content 11

POA Handbook for Justice – 2024 Acknowledgement 13

4I syndrome Pronounced ‘four–eye’. Individually intelligent, institutionally idiotic. Here used in

ACS Additional Chief Secretary.

AD&TW Adi Dravidar and Tribal Welfare.

ADGP Additional Director General of Police.

ASATYA Atrocity Suppression and Trivialisation Yearly Assessment. A tool to track

Assault Assault on Women with Intent to Outrage her Modesty (adult+children)

CBDV Caste–based discrimination and violence.

POA Handbook for Justice – 2024 Glossary 21

22 Glossary POA Handbook for Justice – 2024

DySP Deputy superintendent of police. See also DSP.

ESC Exclusive special court.

FIR First Information Report.

FSL Forensic Science Laboratory.

HRD Human rights defender.

IAS Indian Administrative Service.

IPC Indian Penal Code, 1860.

IPS Indian Police Service.

Lakh 100,000. Popular Indian measurement unit.

MBC Most backward classes.

MLC Medico–legal case.

MoSJ&E Ministry of Social Justice and Empowerment.

Murder Murder (Section 302 IPC and 101 BNS).

NCRB National Crime Records Bureau.

NCSC National Commission for Scheduled Castes.

NCST National Commission for Scheduled Tribes.

OBC Other backward classes.

POA Handbook for Justice – 2024 Glossary 23

24 Glossary POA Handbook for Justice – 2024

Foreword – Justice Madan B. Lokur .......................................................................................................29

A–26, First Floor, Gulmohar Park