(1)CRPIL4/15(J)

Amk

CR.PUBLICINTERESTLITIGATIONNO.4OF2015
..Petitioner

C
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FreedomFirm
Vs.
CommissionerofPolice,Pune&Ors.

rt

INTHEHIGHCOURTOFJUDICATUREATBOMBAY
CRIMINALAPPELLATEJURISDICTION

..Defendants

:MRS.ROSHANDALVI&
MRS.SHALINIPHANSALKARJOSHI,JJ.

CORAM

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Ms.RoshaniJosephi/bAbhishekJebarajforthePetitioner.
Ms.SharmilaS.Kaushik,APPfortheState.
Ms.RekhaV.Salunkhe,Sr.PI,FaraskhanaPoliceStation,Pune.
Mr.GregoryMalstead,NationalDirectorofFreedomFirmpresent.
Mr.AshwinRathod,AdministratorofthePetitionerpresent.
Mr.SatyajeetDesai,LiaisonOfficerofthePetitionerpresent.

DateofreservingtheJudgment
DateofpronouncingtheJudgment

:26thOCTOBER,2015.
:30thOCTOBER,2015.

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JUDGMENT
"Iholdthatthemorehelplessacreature,themoreentitleditisto

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protectionbymen,fromthecrueltyofmen."

1.

MahatmaGandhi

This petition manifests, demonstrates and exposes the stark

reality of the plight the most helpless creatures of our society who are

trafficked into prostitution after being drawn into the dark alleys of the
societybydeceitorforce.Theyaresometimesrescuedupontheeffortsof
samaritans.AcaseoftraffickingundertheImmoralTrafficking(Prevention)
Act,1956(ITPA)readwithSection370oftheIndianPenalCode,1860and
other allied provisions comes to be registered. This is the harbinger for
varioustribulationsandtravailstobefallthehelplessrescuedvictims.
2.

Theaccusedappliesforanticipatorybailandisreadilygranted.

Ifheorsheisarrested,heorsheisoftenreleasedonbail.Heorshethen

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oftennotonlyabscondspendingthetrial,butrepeatscommittingsimilar
offence. The trial remainsatthat. Thepolice machineryisrequiredfor

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rightingthewrong.Itrarelysucceedsintheefforts.Justiceremainsoutof
knownthat"thedoorsofjusticeswingbothways".
3.

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bounds. Thevictimisfarfromreachingthedoorsofjustice. Itiswidely

It is in this precarious condition that the petitioner renders

yeomanserviceofbringingtheoffenderstobookandthevictimstojustice.

4.

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Thejourneytojusticeis,long,tediousandfraughtwithnumerousobstacles.

The main grievance of the Petitioner relates to misuse of the

provisionsofbail,whichresultsinstallingtheproceedingsundertheITPA
and thereby deprives the victims of their rightful claim to rehabilitation.

AccordingtothePetitioner,ithasalsotheeffectofindirectlyencouraging
illegal trafficking. The Petitioner has also proposed to lay down certain
guidelinesforthePoliceOfficersandtheJudicialOfficerstobefollowedat

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the time of dealing with such cases; especially while deciding the
applicationsforbail.Therehavebeensimilarpetitionsuponsuchconditions
ofliving,whichacivilizedsocietymustbeashamedof,thathaveledCourts
topassjudgmentsgivingdirections[See PrernaVs.StateofMaharashtra

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2003(2)MLJ105,PrernaVs.StateofMaharashtra in Cr.WritPetition
No.1694of2003beingordersdated10.01.2007&18.04.2007,StateVs.
CaptainJagjitSingh,1962SC253,VishalJeetVs.UnionofIndia,AIR

1990SC1412,PrajwalaVs.UnionofIndia,(CivilWritPetitionNo.56of
2004)] and secondly the State to make rules, issue circulars and follow
policiestobringarayofhopeintoanotherwisehopelessconditionoflife.
Noneoftheseneedberepeatedthoughthepetitionerhaspleadedforits
reiteration.Incidentallyandthoughnothingmuchhasbeenachievedinthis
case,thereportoftheStatealsomakesoutthesamepicture.
5.

Weareconfrontedwith42casesoftraffickingonlyinonepolice

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stationoftheStatebeingFaraskhanaPoliceStation,PuneinwhichFIRshave
beenregisteredandinwhichtheaccusedarestatedtobeabscondingupon

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beingreleasedonbail.Thepetitionerclaimedtobeactivelyinvolvedin19

21ofthesecases. Thepetitionerassistsorseekstoassist,often without

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reciprocation,theStateinitsdifferentavatarsbeingthePoliceAuthority,the
prosecution,remandhomesandrehabilitationcentersetc.
6.

Themainrefrainofthepetitioneristhataftertheaccusedare

releasedonbailandmorespeciallyafterthetrialbeginsandinmostofthe

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casesifsatisfactoryevidenceisrecorded,theaccusedabscond.
7.

Theaccusedhavebeenreleasedonbailwithoutconsideringthe

factors,like,theseriousnessoftheoffences,thenatureoftheevidencein

existence,theseverityofthepunishment,thecharacter,behaviour,means
andstandingoftheaccused,thecircumstancespeculiartotheaccused,the
reasonablepossibilityofsecuringthepresenceoftheaccusedatthetimeof

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trialandthefactthat,mostoftheseaccusedarehabitualaccused,involved
inrepetitiveoffences.
8.

ItissubmittedthatinSessionsCaseNo.132of2008,pendingin

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the Sessions Court at Pune, the accused Rani Vyankatramana Nayak was
chargedwithaheinousoffenceoftraffickingofaminorgirl,aged12years.

Thevictimthereinhastestifiedagainsttheaccusedinthecase.Despitethat,
the bail was granted to the accused, which has resulted in the accused
absconding,afteralltheevidencehadbeenledandwhenthecasewasatthe
finalstageofarguments. Thoughnonbailablewarrantwasissuedagainst
theaccusedon22ndJanuary,2010,accusedisstillabscondingandthecaseis
indefinitelystalled.

9.

It is also urged that, in another case bearing Sessions Case

No.42of2010,pendinginthesameCourt,accusedSarojaR.N.wasarrested

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forpurchasingandtraffickingofthreeminorgirls. Theaccusedwasalso
wantedforasimilarpreviousoffenceregisteredagainsthervideF.I.R.No.52

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of2008atFaraskhanaPoliceStation,Pune.Theaccusedhadabscondedin

previouscaseatthetimeofraid,butwasarrestedagaininconnectionwith

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thepresentcase.Theaccusedhadappliedforbailon6 th October,2008on
thegroundofillnessandmedicaltreatment.Thesaidapplicationwasnot
attachedwithanymedicalreportorevidencewhatsoever. Eventhen,the
applicationwasallowedandtheaccusedhasabscondedfrom3 rdJune,2010,

10.

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therebystallingthetrial.

The petitioner has also cited the instance of Sessions Case

No.929 of 2009, wherein accused are not attending the case despite the
warrantsissuedagainstthem.Itisurgedthatinallthesecases,theaccused
remainedabsent.

The result of this sordid system is that the victims and their

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11.

have appeared at the later stage of cancellation of warrants and again

families aresubjectedto face untoldtrauma anddifficulties in the entire

painfulprocess.Thegrantofbailalsomanyatimesresultsintheaccused
interferingwiththewitnessesorpressurizingthemthroughdirectorindirect

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means.
12.

It is seen that the Court issues bailable and non bailable

warrants without success and without execution whilst the trial remains
debilitated. The police spend much time and efforts in trying without
successtoprocuretheirpresence.Thecasesarestalled,attimesatthestage
ofargumentsorevenjudgment.Infactitisendemicthataftertheevidence
ofthevictimisledandwhenitissatisfactorytomeritaconviction,bailis
grantedandtheaccusedabsconds. Wecannotbutseethemalaiseasboth
astonishingashowajudicialofficercangrantsuchbailandartfulastohow
anaccusedwouldsuccessfullyoverreachlawandjustice.

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Thepetitionerhasshown8prioritycasesinwhichtheaccused

haveabscondedresultinginthesituationdescribedabove.

TheStatesetupwhathasbeenstatedtobea"specialdrive"in

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14.

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13.

theaforesaidareatotracetheaccused.Only4accused,oneofwhomisthe
coaccusedinanothercasealso,havebeenarrested.38otheraccusedareyet
atlarge.

TheCourthasadjournedthispetitionfromtimetotimewiththe

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15.

abidinghopeandwithpatiencetoseethefruitsoftheNBWswhichhave
beenissued.Itisseenthatthesearenowlostcauses,unlessofcourse,the
executingthem.
16.

State,withtheconsciencewhichisrequiredofit,performsitsfunctionof

ThecontentionsofboththepetitionerandtheStatehaveshown

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one common factor that the bane of the trafficking cases is grant of
injudiciousbailandoncethatisgranted,theroadtoslipawayisopentothe
accused. It is, therefore, a fully conceded fact that the bail in heinous
offencessuchastraffickinghastobeonlystringentlygrantedtotheaccused

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otherthanthemaintraffickers.

17.

Itmaybementionedthatnotbeingtraffickedisafundamental

right of every Indian citizen, the only provision in the chapter on

FundamentalRightswhichappearstobecompletelyforgotten. Wewould,
therefore,dowelltoreproduceArticle23(1)oftheConstitutionofIndia
whichgivesthefundamentalrightsagainstexploitationthus:
23. Prohibitionoftrafficinhumanbeingsandforced
labour.(1) Trafficinhumanbeings andbegarandothersimilar
formsofforcedlabourareprohibitedandanycontraventionofthis
provisionshallbeanoffencepunishableinaccordancewithlaw.

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18.

TheProtocoltoprevent,suppressandabolishtraffickingofany

person, especially, women and children, also addressed as the Palermo

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Protocol,adoptedbytheGeneralAssemblyofUnitedNationsinPalermo,
Italy,2000cameintoforceon25th December,2003. Itimposesadutyon

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each and every State signatory to take effective steps for preventing and
combatingtraffickinginwomenandchildren.Indiabeingasignatorytothe
saidProtocol,itbecomesthedutyoftheGovernmentandtheJudiciaryto

ensure that the menace of trafficking is curbed by adopting stringent

19.

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measures.

Trafficking in humans, heinous as it is, and as the name

suggests,isacrimeagainsthumanityresultinginhumanrightsviolations.It
transcendstotraffickingminorsalso. Ageknowsnobarintradeamongst

humans.Infactalesserageisconsideredabettertarget.Minors,whoare
trafficked,wouldbevictimsevenundertheTheProtectionofChildrenfrom
SexualOffencesAct,2012(POCSOAct)andarerequiredtobetreatedwith

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thesensitivityandempathy(portmanteausentipathy)statutorilysetout
thereunder.Eventheaccusedwhohaveviolatedandvictimizedminorsare
showntobereleasedonbail. Theresultisthesubsequentabscondingin

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manyofthosecases.
20.

Releasing accused on bail and issuing warrants against their

arrestwhichcannotbeeasilyandsmoothlyexecutedresultsinthesituation

of"Curethedeceaseandkillthepatient".
21.

Howevertoremedytheillinthe42casesinwhichdamagehas

been done, almost irretrievably, we even called upon no less than the
CommissionerofPolice,Punetoattendbeforeusandtogiveprioritytothese
casesofhumansufferingandviolation.TheCommissionerofPolicehasset
upwhatiscalledthespecialdriveinthelocalitywithsomeresultbutnotas
muchaswasexpectedoftheStatemachineryforenforcementofcriminal

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justice.
The reasons assigned by the Police for the difficulty, almost

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22.

impossibility,insecuringthepresenceoftheaccusedareseverale.g.someof

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theaccusedarefromtheneighbouringcountriesofNepalandBangladesh
andoncetheyarereleasedonbailandleaveIndia,Policearestatedtohave
nocontroloverthemtosecuretheirpresence.AsperthePolice,someofthe
addressesprovidedbytheaccusedatthetimeofreleasingthemonbailare
theirtemporaryresidenceinPune;theirpermanentresidencebeinginsome

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otherStateslikeAndhraPradesh,Karnatakaetc.Therefore,itisstatedtobe
justnotpossibletosecuretheirpresence.Furtheritissubmittedthat,even
thedocumentsofthesureties,whicharefurnishedwiththe bail,arenot
adequate. At times, it becomeseven difficult to prove the identity of the

person as the same accused because, by the time their presence is to be

securedforthetrial,theirappearancehasundergonesubstantialchanges.
Hence,accordingtothePoliceandtheState,itisnecessarytoputcertain

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conditions and lay down guidelines to be followed while releasing the

accusedonbailinsuchseriousoffences.ThelearnedAPPhasalsorequested
theCourttoprepareachecklistwhichcanbeusedfruitfullybytheTrial
Courtswhensuchapplicationsforbailarefiledandaretobedecided.The

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Petitioneronitsownhasfiledanoteonproposedguidelines.Similarly,the
A.P.P. has also, at the request of this Court, undertaken the exercise of

preparingthepointsfortheguidelinesoftheCourt.
23.

ThecopyoftheproposedguidelinessubmittedbythePetitioner

was also directed to be circulated to all Principal District Judges, Chief

JudicialMagistratesoftheDistrictsinMaharashtraandSpecialJudge,ITPA
anditwasfurtherdirectedtoelicitresponsesoftheJudgesconductingtrial
ofsuchcasesintheirrespectiveDistrict. TheresponsesofvariousJudges
havebeenreceived.Theyarecomprehensiveinnatureandaddressmajority
oftheissues.

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24.

ThisCourt,therefore,hasthusanadvantageofgoingthrough

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theresponsesoftheJudgesdealingwiththesecasesandalsothesuggested

guidelinespreparedbythe Petitioner,anN.G.O.,whichhasexperiencein

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actual field work, and of the Police, who are having the difficult task of
securingthepresenceoftheaccusedoncetheyarereleasedonbail.
25.

Itnowfallsuponustomarshallwhathasbeenstatedbyallthe

functionariesatthegrassrootlevelasalsowhathasbeenoftstatedbythe

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Courts.AsAndregide,FrenchAuthorandWriter,hasstated:everythinghas
beensaidalreadybutasnoonelistens,wemustalwaysbeginagain.
26.

We,therefore,consideritaptandappropriatetohaveaforward

looking approach to prevent such wanton and egregious callousness to

humanlivesandtohavepreventionratherthanpunishmentastheguiding
factorintheprosecutionofsuchcrime. We,therefore,deemitfittolay

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downguidelinesforthegrantofbailincasesofhumantraffickingthus:
Theapplicationforbailmusttakeintoaccount
Thefundamentalrightofthevictimnottobetrafficked.All

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(a)

elseissubservient.
(b)

TheantecedentsoftheaccusedThetraffickerwouldbeeasily

seentohavebeenearlierapprehendedandarrested.Suchaccusedare
habitualoffenders.
(c)

Therepetitivenessoftheoffencesinceitisacareerincrime,it

isboundtoberepeatedupontheaccusedbeingreleasedonbailthus
traffickingfurthersimilarvictimswhichistheState'sdutytoprevent.
(d)

Theintimidationandthreatthataccompaniestherelationship

between the accused and the victim. The victim is the helpless
chatteloftheaccused,theaccusedbeinginapositiontothreatenher
tolieandcoercehertoturnhostileandthustamperwithevidence.

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(e)

The economic position of the accused, if a trafficker, This

wouldreflectinthebrothelthatheorsherunsandwhichisstatutorily

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requiredtobesealedandclosedbythepolicethiswouldbethemost
potentantidote. Thecrimeoftraffickinginhumansisanorganized
(f)

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crime.Itisoneofthemostprofitablecriminalactivitiesworldwide.

Theviolenceinvolvedinthecasereflectedfromthestatement

ofthevictimandtheotherwitnesses,ifany.Theviolencesufferedby
thevictimwouldshowthestrengthinthepositionoftheaccused.
(g)

Thesubterfugedeployedbytheaccusedindivertingthepolice

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machineryfromhimselforherselfwhennontraffickersandother
docile persons who may be working for the accused in various
positionsmaybekeptinthefrontlineforarrestandwhoneedtobe

releasedonbailasharmlesscoaccused.
27.

Keepinginmindthesediversewaystofrustratejusticeadopted

invariousmodesandafterfullyappreciatingandconsideringtheaforesaid

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aspectstheMagistrate/Judgemustgivethegroundsandthereasonsasto
whyinatransientoffencesuchastraffickingalsohe/shehasdeemeditfitto
grantbail,moreespeciallytothetraffickerandthebrothelowner.

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28.

Upon the aforesaid main aspects being specifically noted, the

Court may proceed to consider the application for bail as in other cases.

HencetheCourtwould,asageneralprinciple,refusebailtoanaccusedwho
isshownasatraffickerinhumanbeingsassuchaccusedpursuesacareerin
such crime, which is prone to reputation, which is expected to have
antecedentsandwhichisgenerallyindisposedtointimidationandthreats.
TheCourtwouldcertainlyreleaseonbailsuchoftheaccusedorcoaccused
asare themselvesnottraffickersbutmaybe showntohave playedsome
minorroleinthecommissionoftheoffence. TheCourtwouldreleaseon
bailabrothelownerbutonlysubjecttotheclosureandsealingofhisbrothel
underSection18oftheITPA.

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29.

Wehavebeeninformedthatevenifanaccusedisrefusedbail,

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heorsheappliesforbailonmedicalground. Wemaymentionthatthe
provisionofmedicalassistanceandmedicalfeesinourprisonshavecomeof

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age. All facilities as would be usually required by the accused must,

therefore,beprovidedforandallowedtobeavailedtotheaccusedwithin
jailprecinctsitself. Experienceintheabovematters,ascontendedbythe
parties,hasshownthatsomeoftheaccusedhaveabscondedevenuponbail
havingbeengrantedformedicalreasons.TheCourtswoulddowellnotto

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allowsuchslipstohappenexceptinthemostdireandemergentcasesof
medicalproblemsdiagnosedbyknownandregisteredmedicalofficersand
certifiedundertheirsignaturesinwhichmedicalaidisnotavailableinjail
and that too under strict supervision and upon specific directions in that

30.

behalf.

BoththepetitionerasalsotheStatehavesubmittedbeforeus

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guidelinesforstreamliningtheprosecutionofcasesofhumantrafficking.It
wouldbeappropriatetosetoutsomeofthemostneededguidelinesthus:
(i)

Bailshouldbedeniedtohabitualoffenders(traffickers)except

upon exceptional, special and compelling reasons upon the most

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stringentconditions.

TheCourt shall call for and consider the antecedents report of the

accused in all trafficking cases before passing any order of bail

maintainedbytheAntiHumanTraffickingUnitandthelocalpolice.
(ii)

Bail should be refused to brothel owner until the brothel is

closedandsealedunderSection18oftheITPA.
(iii)

Bailshouldalsobedeniedifthevictimisaminorexceptincase

of any extraordinary, compelling or special circumstances to be

explainedintheorderitselfanduponthemoststringentconditions.
Hencethebailmaybegrantedonlyafterthevictim'sageisverifiedby
thebirthcertificate(andonlyifitsatisfiestheMagistrate/Judgethatit

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is genuine, carries a presumption of its correctness, being a public

document) and not a school leaving certificate (which would be

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requiredtobeproveduponverificationoftheschoolrecordsbythe
signatory and which never carries any legal presumption of its

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correctness,beingaprivatedocument.) Suchdocumentaryevidence
would, therefore, have to be necessarily verified by the competent
authority issuing them before embarking upon the final decision of
grant of bail if upon a simplicitor look at the victim her age (of
adulthood)beliesthecontentsofthedocumentaryevidenceproduced.

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Even medical evidence is opportune, and in case of doubt, "reage

verification" for having a second opinion would be required to be
directedbeforetheorderofgrantofbail. Whenthevictimisprima
facie ("on the face of it") a minor, the aforesaid medical tests are
forgrantofbail.
(iv)

mandatorybeforetakingtheriskyoptionofdecidingtheapplication
Bail should also be denied its case of violent offence which

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wouldbeseenfromthestatementsofthevictimsandwitnesses.The
Courtwoulddowelltotakeintoaccounttheexpectedintimidation
andthreattothevictimsand/orwitnesses.
(v)

Ifbailisappliedonthegroundofdeathofafamilymemberthe

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Courtshouldensurethatcleardocumentationisproducedtoprovethe
genuinenessoftheground.

(vi)

Bail, upon stringent conditions, (if at all), be granted to the

traffickerorthebrothelownersonlyafterthestatementofthevictim
isrecordedunderSection164oftheCodeofCriminalProcedureand
onlyifallotheraforesaidconditionsaremet.
This would include a victim impact statement which may be
consideredwithregardtotheviolence,ifany,sufferedbythevictimor
theotherpsychologicalandmentaltraumahavingbeenfacedbyher
whilstgrantingbailandfixingtheconditionsofsuchbail.
(vii) AnticipatorybailshouldbedeniedinITPAcases.

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(viii) The Court shall specify the condition of at least weekly

attendanceoftheaccusedpendingthetrialwithafurtherriderthat

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failureoftheaccusedtoattendthePoliceStationshallbeagroundfor
cancellation of bail. A condition be imposed on the Investigating

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Officertosubmitadetailedreportwithregardtoattendanceofthe
accused.
(ix)

Theaccusedmustneverbeallowedtogainaccesstothevictim

asthesafetyofthevictimisofprimeconcernwhentheaccusedis

releasedon bail. The Courtshall give directions andmake special

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conditionsandprovisionsforsupervisiontoensurethattherewould
benocontactbetweentheaccusedandthevictim.
(x)

TheCourtmayalsoconsidertheconditionofexternmentinthe

bailorder.

ThevictimshallnotbeallowedtosignanyVakalatnamawithout

(xi)

thepermissionoftheCourt.

(xii) NoAdvocateshallbeallowedtoappearinITPAcasesonbehalf

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oftheaccusedaswellasthevictim.
(xiii) Thevictimdeservestohavelegalrepresentationandemotional
support.ItmaybementionedthatinthecaseofPrerna(supra)this
CourtheldthatthevictimsofITPAoffencesare"victimsofcrime"and

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shouldnotbetreatedascriminalsorasasourceofevidence. The
stageofbailisthemostimportantasalsothemostfragilewhenthe

victims'rightsbeginandshouldnotbelost.
Hence the Court shall permit any of the known NGOs and legal
officerstoworkforassistingvictimsandprosecutionandtorepresent
thevictims.
(xiv) The Court shall provide a lawyer from the Legal Services
Authorityorfromanyorganizationofserviceproviderstorepresent
thevictimsfromthestageofthefirstremandoftheaccusedandthe
applicationofbailitselforwheneveranorderofdetentionispassed
againstthevictimunderSection17oftheITPAassuchanorderis

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appealable.
(xv) Thepoliceshallappointspeciallytrainedandsensitizedpolice

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officerasspecialpoliceofficerfordealingwithoffenceundertheITPA
asmandatedunderSection13oftheITPA.

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(xvi) Uponthefirstremand,thevictimsshallbesenttotherelevant
statutoryauthoritiesbeingtheChildWelfareCommittee(CWC)incase

ofchildvictimsandtheNational/StateCommissionforwomenincase
ofadultvictims.Theaccusedshallbetakenforinterrogation.

(xvii) No victim shall be released to any person who claims her

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custodyexceptuponverificationoftheidentificationoftheclaimant
alongwithPostCardsizephotographanddetailsofname,age,local
address,nativeaddressandcontactdetailsofsuchclaimantandafter
consentofthevictimisobtained.

(xviii)Womenaccusedwhomaybetrafficker,brothelkeeperorpimp
havethebenefitofnotbeingarrestedaftersunset.Henceifshehasto
bearrestedthenextdayorhastobedirectedtoreporttothepolice

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station the next day, it should NOT be stated to be a reason for

granting bail; she should be arrested during the legally permissible
hoursandherapplicationforbailmustbeconsideredontheaforesaid
parametersthenextday.

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(xix) Itiscommonknowledgethatinacaseinvolvingmorethan1

accused, if an accused is released on bail, another applies on the

principleofparity. Itispertinenttoappreciatewhatparityis. The

dictionary meaning of parity in the New pocket Oxford English
Dictionary,IndianEditionatpage652is:
thestateofbeingequalorequivalent.
Hencethefactsofeachcasemustbeappreciatedtoconsider
parity. Ifamanager,asweeper,whohasbeenchargedorframed
upon a raid being conducted is released on bail, which would be
justifiablygranted,themainaccusedwhoisthetraffickerorbrothel
owner,cannotclaimorbegrantedparity.He/Sheisnotonpar.

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(xx) TheMagistratesandJudgesshallusethefollowingbailcheck
listproformawhiledecidingtheapplicationforbail:
Whether antecedents of the bail applicant have been

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(i)

checked.

Whetherantecedentreporthasbeensubmittedbeforethe

Court.
(iii)

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(ii)

Whetherthe addressofthebailapplicantandthelocal

suretyhasbeenverifiedbythePoliceandwhetherareporthas
beensubmittedbeforetheCourt.

Whetherbailapplicanthashadbailcancelledinthepast.

(v)

If bail is applied for on medical grounds, whether

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(iv)

treatmentwithinthejailispossible.
(vi)

Whetheraccusedislikelytohavecontactwiththevictim

andintimidateorthreatenher.

(vii) Whethertheaccusedislikelytorepeattheoffence;i.e.
whetherhe/shewouldbeabletoreturntoandrunthebrothel.

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(viii) Whether the brothel is already sealed (and if not to

undergo the process of sealing before any order of bail is
passed).

Suchproformachecklistshallbedulycompletedandkeptinthe

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record&proceedingsofthecasesalongwiththeorderofbail.
(xxi) TheStateshallcreateadatabaseofoffenders,whoarehuman

traffickersundertheITPAintheentireStateofMaharashtratogether
withtheirPostCardsizephotographname,age,localaddress,native
address,namesoftheirparentsorguardian,contactdetailsetc.asalso
detailsoftheirantecedentsmaintainedbythePoliceDepartmentmore
speciallytheSocialSecurityBranchoftheofficeoftheCommissioner
ofPoliceineachcitywhichshallbemadeknownandavailabletoall
thepoliceofficers,prosecutorsasalsotheNGOswhorunservicespro
bonoorotherwiseinsupportofthevictimssothattheyareinturn
madeknowntoCourt.

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(xxii) The State shall prepare a database of all the absconding

offendersundertheITPAintheentireStateofMaharashtra.

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The police shall thus maintain an active centralized database

storing antecedents of human trafficking offenders. Whenever an

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applicationforbailispreferredbytheaccusedinsuchcases,itwould
bethedutyoftheInvestigatingOfficer,thePublicProsecutorandthe
Judicial Officer to verify from the centralized database, whether

accused is having any criminal antecedents, as noted in the said

database.Thelistoftheupdateddatabasealsobesentfromtimeto

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time to the Registrar of all the Courts so that whenever such

applicationforbailisfiled,theRegistraroftheCourtwillalsoverify
whetherthenameoftheaccusedappearsinsuchdatabase.
We may also reiterate the functions of police officers,

31.

prosecutorsandjudicialofficers,oftstated,intheconductoftraffickingcases
forconduciveCourtclimatethus:

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Whiledecidingtheapplicationsforbailfiledbythetraffickerincases

undertheITPA,theCourtshouldconsider,withoutfail,thefactorslaiddown
bytheSupremeCourt,namely,thenatureoftheaccusation,thenatureof
the evidence in existence, the severity of punishment, the character,

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behaviour,meansandstandingoftheaccused,circumstancespeculiartothe
accused,thereasonablepossibilityofsecuringthepresenceoftheaccusedat

thetimeoftrialandthereasonablepossibilityofhisinterferencewiththe
witnessesandtamperingofevidence.
Inadditiontothesefactors,theCourtshouldalsoinvariablyinsuch
cases, call for the report of antecedents of the accused and his past
involvement,ifany,insimilaroffences.
The Court should also obtain a report from the Police about
verification of the addressof the accused;whether itisauthenticornot,
whethertheplaceofresidencegivenisarentedaccommodation,thenthe
detailsofthemovableandimmovableproperty,hispermanentaddressetc.

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32.

Needless to mention that once an accused has absconded or

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jumpedbail,hisorherbailmustbecancelledandtreatedascancelled.He
orshewouldbetakenincustodyuponbeingarrestedunderthebailableand

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nonbailablewarrantissuedforhisorherarrest. Suchaccusedcannotbe
released on bail pending the trial upon the facts of the case merely on

accountofdelayintrialexceptunderthelegalandthemostexceptionaland
gravecircumstanceswhichmaybeshowntoCourtinagivencase.Thefact
thatthepetitionerhasbeenconstrainedtofilethispetitionshowsthatthe

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prosecution,whohasthelegitimateweaponofcancellationofbail,hasfailed
touseitinallthecasesevenuponbeingreinforcedofitspositionbyissueof
NBWsindozensofmatters.Suchisthesordidstateofthecriminaljustice

33.

machinerywhichcriesoutforreformsinthoughtandaction.
Henceinconclusion,wemayclarifythatanaccusedwhoisa

traffickerinhumanswhohascriminalantecedents,hasbeenviolentasseen

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fromthestatementsofthevictimsofwitnesses,whohasnopermanentlocal
address,whoisanillegalmigrantornonlocalresidentoraforeignnational
onalapsedtouristvisa,whohastraffickedaminororwhohasabsconded
andisarresteduponNBWissued,orabrothelownerwhosebrothelhasnot

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beensealedafterdueprocedurecannotbegrantedtheprivilegeofbeing
releasedonbail.

34.

If,upontheaforesaidguidelinesanddirectionsbeingfollowed,

an accused is released on bail, the requirements of the sureties and the

conditionsfortheiracceptancebecomeimportanttoconsiderthus:
(a)Legalsuretiesmustbeprovided;Cashbailshallbeasfaras
possiblenottobeallowed.
(b)

Thereshallbe2suretiestobeprovided.Atleast1surety

shall be a permanent resident and having at least 1 property

withinthejurisdictionoftheCourt.

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(c)Nosuretyshallbeacceptedexceptuponproofofrecordof
birth, residence, education, identity, property, contact details

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amongstotherrequirements.

(d) Thepermanentaddressincludingthenativeaddressofthe

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accused as also the surety along with copies of their original

identification documents such as Voter's Card, Ration Card,
Aadhar Card, Passport and Post Card size photographs of the
accused and the surety etc. along with their identification
featuresindetailbecollectedandmaintainedbythepoliceand

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verifiedbeforetheaccusedisreleasedfromcustody. Passport
andtypeofvisaofforeignnationalse.g.Nepalese,Bangladeshis
etc.mustalsobeverified. Itmustberealizedandappreciated
that accused, who are illegal migrants, foreign nationals on

lapsedtouristvisa,nonlocalresidentsetc.aregoodcandidates
forabscondingifreleasedonbailandaredifficulttotrace.
(e)

The details of their immovable property, if any, be

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collectedandtherelevantentrybemadeintheRevenueRecord.
(f)

The verification report of the sureties must have the

permanentaddressofthesuretiesshownintheirAadharCard,

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etcverifiedwiththeircurrentresidencebythelocalpoliceand
attested and approved by the Anti Human Trafficking Unit
(AHTU)/SocialServiceBranch(SSB)/CrimeBranch.
(g)TheRegistrarofDistrictCourtsshallprepareacomputerised
alphabeticalregistermaintainingthedetailsoftheaccusedand
the sureties of all ITPA cases. These details can be fruitfully
sharedwiththeNGOswhorenderservicestothevictims,the
lawyers who represent the victims as also the Centralised
Database,showingtheantecedentsoftheaccusedasandwhen
established.
(h) The Court shall appreciate that the prices of all the
commodities only increase and escalate. So shall be the

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amountsforbaili.e.forsureties,(aswouldalsobeforimposing
finesandcompensation)whichshouldbecommensuratewith

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thedeterrencerequirednottojumpbail.Hencetheamountof
surety should not be meager and be such as to ensure the

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presenceoftheaccusedatalltimesduringthetrial.

(i)Apersonshallstandsuretyonlyfor1accusedatatimei.e.

tilltheendofhis/hertrial.Suchsuretycannotbeallowedto
beasuretyforanyotheraccused.

This direction would rule out the menace of professional

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surety. The database/ computerised register of the sureties

whichwouldshowiftheapplicanthasbeenasuretybeforein
anyotherITPAcase.

(j)Thesuretiesshallnothaveanypriorcriminal antecedents

(whichgoeswithoutsayingalso.)
35.

WewoulddowelltorememberthewordsofVictorHugo

36.

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LiberationisnotDeliverance.
Weareshownthatasmanyas20abscondingaccusedarefrom

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Nepal and have gone back to Nepal. Under Article I of The Treaty of
ExtraditionbetweentheGovernmentofIndiaandtheGovernmentofNepal
dated2nd October,1953boththecountrieshaveagreedtodeliverupthe
personsaccusedofcrimeintheterritoryofonegovernmenttotheterritory

ofanotheronthebasisofstrictreciprocity. Henceinallthecasesofsuch
accusedtheCBIastheNodalAgencyandastheTraffickingPoliceOfficer
underSection13oftheITPAwouldberequiredtobecalledonforobtaining
thepresenceofsuchNepaleseaccusedsincethe localpolicefailsinsuch
endevourdespiteseriousefforts.
37.

We have been informed that an office memorandum dated

30.04.2014hasbeenissuedasanadvisoryofhumantraffickingasorganized

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crime.TheCentralBureauofInvestigation(CBI),GovernmentofIndiahas
been appointed the Nodal Authority in respect of InterState and cross

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borderassistanceasasinglepointofcontacttoactasliaisonbetweenthe
MinistryofExternalAffairsandtheStatepartiesinthesecases. Henceall

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cases in which victims or accused from neighbouring countries such as

Nepal, Bangladesh or any other country are involved and more specially
whenanaccusedfromsuchacountryhasabscondeduponbeinggranted
bail,maybereferredtotheCBIforassistancetoidentifythemandtoarrest
theminexecutionoftheNBWissuedforprocuringtheirpresence.Thecases
policemustbethusreferred.
38.

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shownbythepetitionerinwhichtheaccusedhavenotbetracedbythelocal

WemayappreciatethatIndiaandNepalareamongsttheSAARC

nations who are committed to cooperating in preventing trafficking for

prostitution and for punishing those who are offenders of the crime of
trafficking in humans. (See SAARC convention on Preventing and

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CombatingTraffickinginwomenandchildrenforProstitution,2002).Hence
ifeventheCBIcannotprocurethepresenceoftheaccusedfromNepal,the
State shall have to undertake extradition proceedings to extradite the

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accusedlocatedinNepaltofacethetrialsagainstthem.
39.

WeareinformedthattheaccusedwhoaretraffickersfromNepal

haveabscondedwithoutatraceandhavenotbeenfounddespiteserious
effortsbythelocalpoliceanddespitethe"specialdrive"initiated.Wehave
notedthe deplorable situation ofnadir in asmanyas42casesbeforeus
relatingtothemostfundamentalofhumanrightsoflifeandlibertywhichis
the right not to be trafficked and hence we direct the Commissioner of
Police, Pune to himself set up a team under a Special Police Officer to
continuethevigilagainsttheaccusedinthe42casesreportedinthisPILand
continuethedriveinthefuturecasesandmakewrittenreportsofthework
doneinthatbehalfinthispetitionwithacopytothepetitionerwithwhom

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weexpecttheCommissionerofPoliceandhis(staff)toworkinunisonto
combattheeviloftraffickingandfreethemostvulnerablesectionofour

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societyfromsuchevilandfailingwhichtohandoverthetaskofobtaining

the presence of the accused who are traffickers from the neighbouring

40.

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countriestotheCBI.

A copy of this judgment shall be forwarded to all the

Magistrates, Special Court of ITPA, Sessions Judges, Additional Sessions

Judgesdealingwiththe casesof ITPAbywayofappealorrevisions,the

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Director General of Police for circulation to all the police stations, the
Directorate of Public Prosecutors for circulation to all Additional Public
ProsecutorsasalsotheMaharashtraJudicialAcademy(MJA),Uttan,District
Thane,MaharashtraandtheDistrictLegalServicesAuthority(DLSA),tobe

usedintheperiodicaltrainingofPoliceOfficers,ProsecutorsandJudicial
Officers. TheRegistrarGeneralofthe BombayHighCourtshalltakethe

41.

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necessarystepstotheaboveeffect.
The Public Interest Litigation is disposed of in terms of the

aforesaiddirections.HoweverthePublicInterestLitigationisstoodoverto
14.12.2015 to obtain the report of the work done until then and failing

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whichtocalluponanddirecttheCBItosearchandproducetheabsconding
accusedbeforetherelevanttrialCourtswithareporttothisCourt.

(ROSHANDALVI,J.)

(MRS.SHALINIPHANSALKARJOSHI,J.)

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