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PETITIONER: VISHAKA & ORS.

       Vs.

RESPONDENT: STATE OF RAJASTHAN & ORS.

DATE OF JUDGMENT:       13/08/1997

BENCH: CJI, SUJATA V. MANOHAR, B. N. KIRPAL

ACT:

HEADNOTE:

JUDGMENT:                       J U D G M E N T Verma, CJI:      This Writ  Petition has  been filed for the enforcement of the  fundamental rights  of working  women under Articles 14, 19  and 21  of the  Constitution of India in view of the prevailing climate in which the violation of these rights is not uncommon.  With the increasing awareness and emphasis on gender justice,  there is  increase in  the effort  to guard such violations;  and the  resentment towards  incidents  of sexual harassment  is also  increasing. The present petition has been  brought  as  a  class  action  by  certain  social activists and  NGOs with  the  aim  of  focussing  attention towards this  societal aberration,  and assisting in finding suitable methods  for realisation  of the  true  concept  of ’gender equality’;  and  to  prevent  sexual  harassment  of working women  in all  work places through judicial process, to fill the vacuum in existing legislation.      The  immediate  cause  for  the  filing  of  this  writ petition is  an incident  of alleged  brutal  gang  rape  of social worker  in a  village of  Rajasthan. That incident is the subject  matter of  a separate  criminal action  and  no further mention  of it,  by us,  is necessary.  The incident reveals the  hazards to which a working woman may be exposed and the depravity to which sexual harassment can degenerate; and the  urgency for  safeguards by an alternative mechanism in the  absence of  legislative measures.  In the absence of legislative measures,  the need  is  to  find  an  effective alternative mechanism  to fulfil this felt and urgent social need.      Each  such   incident  results   in  violation  of  the fundamental rights  of ’Gender  Equality’ and  the ’Right of Life and Liberty’. It is clear violation of the rights under Articles 14,  15 and  21 of Constitution. One of the logical consequences of  such an  incident is  also the violation of the victim’s  fundamental right  under Article  19(1)(g) ’to practice any  profession or  to carry  out  any  occupation, trade or  business’. Such violations, therefore, attract the remedy  under  Article  32  for  the  enforcement  of  these fundamental rights of women. This class action under Article 32 of  the Constitution  is  for  this  reason.  A  writ  of

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mandamus in  such a  siltation, if  it is  to be  effective, needs to be accompanied by directions for prevention; as the violation of  fundamental rights of this kind is a recurring phenomenon.  The   fundamental  right   to  carry   on   any occupation, trade  or profession depends on the availability of a  "safe" working  environment. Right  to life means life with dignity.  The primary  responsibility fro ensuring such safety and  dignity through  suitable legislation,  and  the creation of  a mechanism  for its  enforcement,  is  of  the legislature and  the executive.  When, however, instances of sexual harassment  resulting  in  violation  of  fundamental rights of  women workers  under Articles  14, 19  and 21 are brought before us for redress under Article 32, an effective redressal requires  that some guidelines should be laid down for the  protection of  these rights to fill the legislative vacuum.      The notice  of the  petition was  given to the State of Rajasthan and  the Union  of India.  The  learned  Solicitor General  appeared  for  the  Union  of  India  and  rendered valuable assistance  in the  true spirit of a Law Officer to help us  find a  proper solution  to this  social problem of considerable magnitude.  In addition  to Ms. Meenakshi Arora and Ms.  Naina  Kapur  who  assisted  the  Court  with  full commitment, Shri  Fali S.  Nariman appeared as Amicus Curiae and rendered  great assistance. We place on record our great appreciation for  every counsel who appeared in the case and rendered the  needed  assistance  to  the  Court  which  has enabled us  to deal  with this  unusual matter in the manner considered appropriate for a cause of this nature.      Apart from  Article 32 of the Constitution of India, we may refer  to some  other provision  which envisage judicial intervention for  eradication  of  this  social  evil.  Some provisions in  the Constitution  in addition to Articles 14, 19(1)(g) and 21, which have relevance are:      Article 15:      "15. Prohibition  of discrimination      on  grounds   of  religion,   race,      caste, sex or place of birth.-      (1)    The    State    shall    not      discriminate against any citizen on      only of religion, race, caste, sex,      place of birth or any of them.      (2)   xxx                      xxxx      xxxx      (3) Nothing  in this  article shall      prevent the  State from  making any      special  provision  for  women  and      children.      (4)         xxxx               xxxx      xxxx"      Article 42:      "42. Provision  for just and humane      conditions of  work  and  maternity      relief  -   The  State  shall  make      provision  for  securing  just  and      humane conditions  of work  and for      maternity relief."      Article 51A:      "51A.  Fundamental   duties.  -  It      shall be  the duty of every citizen      of India, -      (a) to  abide by  the  Constitution      and   respect    its   ideals   and      institutions, ...      xxxx                           xxxx

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    xxxx      (e)  to  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;      xxx                            xxxx      xxxx"      Before we  refer to  the international  conventions and norms having relevance in this field and the manner in which they  assume   significance  in   application  and  judicial interpretation, we  may advert  to some  other provisions in the Constitution  which permit  such use.  These  provisions are:      Article 51 :      "51.  Promotion   of  international      peace  and  security  -  The  State      shall endeavour to -      xxxx                           xxxx      xxxx      (c)     foster      respect     for      international   law    and   treaty      obligations  in   the  dealings  of      organised people  with one another;      and      xxx                             xxx      xxx" Article 253 : "253.  Legislation   for  giving   effect  to  international agreements  -  Notwithstanding  anything  in  the  foregoing provisions of this Chapter, Parliament has power to make any law for  the whole or any part of the territory of India for implementing any  treaty, agreement  or convention  with any other country  or countries  or any  decision  made  at  any international conference, association or other body."      Seventh Schedule :          "List I - Union List:      xxxx                           xxxx      xxxx      14.  Entering   into  treaties  and      agreements with  foreign  countries      and   implementing   of   treaties,      agreements  and   conventions  with      foreign countries.      xxx                             xxx      xxx"      In the  absence of domestic law occupying the field, to formulate effective  measures to  check the  evil of  sexual harassment of working women at all work places, the contents of International  Conventions and  norms are significant for the purpose  of interpretation  of the  guarantee of  gender equality, right  to work  with human dignity in Articles 14, 15 19(1)(g)  and 21  of the  Constitution and the safeguards against   sexual    harassment   implicit    therein.    Any International   Convention   not   inconsistent   with   the fundamental rights  and in  harmony with  its spirit must be read into  these  provisions  to  enlarge  the  meaning  and content thereof, to promote the object of the constitutional guarantee. This  is implicit from Article 51(c) and enabling power of  the Parliament  to enact laws for implementing the International Conventions and norms by virtue of Article 253 read with  Entry 14 of the Union List in Seventh Schedule of the Constitution.  Article 73  also is relevant. It provides

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that the  executive power  of the  Union shall extend to the matters with  respect to  which Parliament has power to make laws. The  executive  power  of  the  Union  is,  therefore, available till  the parliament  enacts to  expressly provide measures needed to curb the evil.      Thus, the  power of  this Court  under Article  32  for enforcement of  the fundamental  rights  and  the  executive power of the Union have to meet the challenge to protect the working women  from  sexual  harassment  and  o  make  their fundamental rights  meaningful. Governance of the society by the rule  of law  mandates this  requirements as  a  logical concomitant  of  the  constitutional  scheme.  The  exercise performed by  the Court  in this  matter is with this common perception shared  with the  learned Solicitor  General  and other members of the Bar who rendered valuable assistance in the performance of this difficult task in public interest.      The progress  made at  each hearing  culminated in  the formulation of  guidelines to  which the Union of India gave its  consent   through  the   learned   Solicitor   General, indicating that  these should  be the  guidelines and  norms declared by  this Court  to  govern  the  behaviour  of  the employers and  all others  at the  work places  to curb this social evil.      Gender  equality   includes  protection   from   sexual harassment and  right to  work  with  dignity,  which  is  a universally recognised basic human right. The common minimum requirement of  this right  has received  global acceptance. The International  Conventions and  norms are, therefore, of great significance  in the  formulation of the guidelines to achieve this purpose.      The obligation  of this  Court under  Article 32 of the Constitution for the enforcement of these fundamental rights in the  absence of legislation must be viewed along with the role of  judiciary envisaged  in the  Beijing  Statement  of Principles of  the Independence  of  the  Judiciary  in  the LAWASIA region.  These principles were accepted by the Chief Justices of  the Asia  and the Pacific at Beijing in 1995 as those representing  the minimum  standards necessary  to  be observed in order to maintain the independence and effective functioning  of   the  judiciary.   The  objectives  of  the judiciary mentioned in the Beijing Statement are:      "Objectives of the Judiciary:      10. The objectives and functions of      the    Judiciary     include    the      following:      (a) to  ensure that all persons are      able to  live  securely  under  the      Rule of Law;      (b) to  promote, within  the proper      limits of  the  judicial  function,      the observance  and the  attainment      of human rights; and      (c)   to    administer   the    law      impartially   among   persons   and      between persons and the State."      Some provisions  in the  ’Convention on the Elimination of  All   Forms  of   Discrimination  against   Women’,   of significance in the present context are:      Article 11:      "1. States  Parties shall  take all      appropriate measures  to  eliminate      discrimination against women in the      field of  employment  in  order  to      ensure, on basis of equality of men      and  women,  the  same  rights,  in

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    particular:      (a)  The   right  to   work  as  an      inalienable  right   of  all  human      beings;      xxxx                          xxxxx      xxxx      (f)  The  right  to  protection  of      health and  to  safety  in  working      conditions,      including      the      safeguarding  of  the  function  of      reproduction.      xxx                           xxxxx      xxxxx Article 24 :      "States  Parties   undertake  to  adopt  all  necessary measures at  the national  level aimed at achieving the full realization  of   the  rights   recognised  in  the  present Convention."      The general recommendations of CEDAW in this context in respect of Article 11 are :      "Violence    and     equality    in      employment:      22. Equality  in employment  can be      seriously impaired  when women  are      subjected   to    gender   specific      violence, such as sexual harassment      in the work place.      23. Sexual harassment includes such      unwelcome    sexually    determined      behavior as  physical contacts  and      advance, sexually coloured remarks,      showing  pornography   and   sexual      demands,  whether   by   words   or      actions.  Such   conduct   can   be      humiliating and  may  constitute  a      health and  safety problem;  it  is      discriminatory when  the woman  has      reasonable grounds  to believe that      her  objection  would  disadvantage      her   in    connection   with   her      employment, including recruiting or      promotion, or  when  it  creates  a      hostile    working     environment.      Effective complaints procedures and      remedies,  including  compensation,      should be provided.      24. States  should include in their      reports  information  about  sexual      harassment,  and   on  measures  to      protect    women     from    sexual      harassment  and   other  forms   of      violence of  coercion in  the  work      place."      The  Government   of  India   has  ratified  the  above Resolution on June 25, 1993 with some reservations which are not material  in the  present context.  At the  Fourth World Conference on  Women in Beijing, the Government of India has also made  a official  commitment, inter  alia, to formulate and operationalize  a national  policy on  women which  will continuously guide  and inform  action at every level and in every sector;  to set  up a Commission for Women’s Rights to act as  a  public  defender  of  women’s  human  rights;  to institutionalise a  national level  mechanism to monitor the implementation  of   the  Platform   for  Action.  We  have, therefore, no  hesitation in  placing reliance  on the above

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for the  purpose of  construing  the  nature  and  ambit  of constitutional  guarantee   of  gender   equality   in   our Constitution.      The meaning  and  content  of  the  fundamental  rights guaranteed in  the Constitution  of India  are of sufficient amplitude to  compass all  the  facets  of  gender  equality including  prevention   of  sexual   harassment  or   abuse. Independence of Judiciary forms a part of our constitutional scheme. The  international conventions  and norms  are to be read into  them in  the  absence  of  enacted  domestic  law occupying the  fields when there is no inconsistency between them. It  is now  an accepted  rule of judicial construction that regard  must be  had to  international conventions  and norms  fro   construing  domestic   law  when  there  is  no inconsistency between  them and  there  is  a  void  in  the domestic law.  The High  Court of  Australia in Minister fro Immigration and  Ethnic Affairs  vs. Tech.  128 ALR 535, has recognised the  concept of  legitimate  expectation  of  its observance in the absence of contrary legislative provision, even in  the absence of a Bill of Rights in the Constitution of Australia.      In Nilabati Behera vs. State of Orissa 1993(2) SCC 746, a provision  in the  ICCPR was  referred to support the view taken that an enforceable right to compensation is not alien to the  concept of  enforcement of a guaranteed right’, as a public law  remedy  under  Article  32,  distinct  from  the private law  remedy in  torts. There  is no reason why these international conventions  and norms  cannot, therefore,  be used  for   construing  the   fundamental  rights  expressly guaranteed in  the Constitution  of India  which embody  the basic concept  of gender  equality in  all spheres  of human activity.      In view of the above, and the absence of enacted law to provide fro  the effective  enforcement of  the basic  human right  of  gender  equality  and  guarantee  against  sexual harassment  and  abuse,  more  particularly  against  sexual harassment at  work places,  we lay  down the guidelines and norms specified  hereinafter for  due observance at all work places or other institutions, until a legislation is enacted for the  purpose. This  is done  in exercise  of  the  power available  under   Article  32   of  the   Constitution  for enforcement of  the fundamental  rights and  it  is  further emphasised that this would be treated as the law declared by this Court under Article 141 of the Constitution.      The GUIDELINES and NORMS prescribed      herein are as under:-      HAVING REGARD  to the definition of      ’human rights’  in Section  2(d) of      the Protection of Human Rights Act,      1993,      TAKING NOTE  of the  fact that  the      present civil  and  penal  laws  in      India do not adequately provide for      specific protection  of women  from      sexual harassment  in  work  places      and   that    enactment   of   such      legislation will  take considerable      time,      It is  necessary and  expedient for      employers in work places as well as      other   responsible    persons   or      institutions  to   observe  certain      guidelines to ensure the prevention      of sexual harassment of women:      1. Duty  of the  Employer or  other

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    responsible persons  in work places      and other institutions:      It  shall   be  the   duty  of  the      employer   or   other   responsible      persons in  work  places  or  other      institutions to  prevent  or  deter      the commission  of acts  of  sexual      harassment  and   to  provide   the      procedures  for   the   resolution,      settlement or  prosecution of  acts      of sexual  harassment by taking all      steps required.      2. Definition:      For this purpose, sexual harassment      includes  such  unwelcome  sexually      determined    behaviour    (whether      directly or by implication) as:      a) physical contact and advances;      b) a demand or request for sexual      favours;      c) sexually coloured remarks;      d) showing pornography;      e)  any  other  unwelcome  physical      verbal  or  non-verbal  conduct  of      sexual nature.      Where  any   of   these   acts   is      committed  in  circumstances  where      under the  victim of  such  conduct      has a  reasonable apprehension that      in   relation   to   the   victim’s      employment or  work whether  she is      drawing salary,  or  honorarium  or      voluntary, whether  in  government,      public or  private enterprise  such      conduct can  be humiliating and may      constitute  a   health  and  safety      problem. It  is discriminatory  for      instance   when   the   woman   has      reasonable grounds  to believe that      her  objection  would  disadvantage      her   in    connection   with   her      employment   or    work   including      recruiting or  promotion or when it      creates a hostile work environment.      Adverse   consequences   might   be      visited  if  the  victim  does  not      consent to  the conduct in question      or raises any objection thereto.      3. Preventive Steps:      All employers  or persons in charge      of work place whether in the public      or  private   sector  should   take      appropriate steps to prevent sexual      harassment.  Without  prejudice  to      the generality  of this  obligation      they  should   take  the  following      steps:      (a)  Express prohibition  of sexual           harassment as defined above at           the  work   place  should   be           notified,    published     and           circulated   in    appropriate           ways.      (b)   The    Rules/Regulations   of           Government and  Public  Sector

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         bodies relating to conduct and           discipline   should    include           rules/regulations  prohibiting           sexual harassment  and provide           for appropriate  penalties  in           such   rules    against    the           offender.      (c)  As regards  private  employers           steps  should   be  taken   to           include     the      aforesaid           prohibitions in  the  standing           orders  under  the  Industrial           Employment  (Standing  Orders)           Act, 1946.      (d)  Appropriate  work   conditions           should be  provided in respect           of work,  leisure, health  and           hygiene to further ensure that           there    is     no     hostile           environment towards  women  at           work places  and  no  employee           woman should  have  reasonable           grounds to believe that she is           disadvantaged  in   connection           with her employment.      4.   Criminal Proceedings:           Where such  conduct amounts to           a specific  offence under  the           Indian Penal Code or under any           other law  the employer  shall           initiate appropriate action in           accordance with  law by making           a    complaint     with    the           appropriate authority.           In   particular,   it   should           ensure   that    victims,   or           witnesses are  not  victimized           or discriminated against while           dealing  with   complaints  of           sexual harassment. The victims           of  sexual  harassment  should           have  the   option   to   seek           transfer of the perpetrator or           their own transfer.      5.   Disciplinary Action:           Where such  conduct amounts to           mis-conduct in  employment  as           defined   by    the   relevant           service   rules,   appropriate           disciplinary action  should be           initiated by  the employer  in           accordance with those rules.      6.   Complaint Mechanism:           Whether or  not  such  conduct           constitutes an  offence  under           law  or   a  breach   of   the           service rules,  an appropriate           complaint mechanism  should be           created  in   the   employer’s           organization  for  redress  of           the  complaint   made  by  the           victim.     Such     complaint           mechanism should  ensure  time           bound treatment of complaints.      7.   Complaints Committee:

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         The    complaint    mechanism,           referred  to   in  (6)  above,           should be adequate to provide,           where necessary,  a Complaints           Committee,      a      special           counsellor  or  other  support           service,     including     the           maintenance                 of           confidentiality.           The    Complaints    Committee           should be  headed by  a  woman           and not  less than half of its           member   should    be   women.           Further,   to    prevent   the           possibility   of   any   under           pressure  or   influence  from           senior levels, such Complaints           Committee  should   involve  a           third  party,  either  NGO  or           other  body  who  is  familiar           with  the   issue  of   sexual           harassment.           The Complaints  Committee must           make an  annual report  to the           government          department           concerned  of  the  complaints           and action  taken by them. The           employers and person in charge           will  also   report   on   the           compliance with  the aforesaid           guidelines  including  on  the           reports  of   the   Complaints           Committee  to  the  Government           department.      8.   Workers’ Initiative:           Employees should be allowed to           raise   issues    of    sexual           harassment at  workers meeting           and in other appropriate forum           and it should be affirmatively           discussed in Employer-Employee           Meetings.      9.   Awareness:           Awareness  of  the  rights  of           female   employees   in   this           regard should  be  created  in           particular   by    prominently           notifying the  guidelines (and           appropriate  legislation  when           enacted  on  the  subject)  in           suitable manner.      10.  Where sexual harassment occurs           as  a  result  of  an  act  or           omission by any third party or           outsider,  the   employer  and           person in charge will take all           steps necessary and reasonable           to assist  the affected person           in  terms   of   support   and           preventive action.      11.   The Central/State Governments           are  requested   to   consider           adopting   suitable   measures           including    legislation    to           ensure  that   the  guidelines

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         laid down  by this  order  are           also observed by the employers           in Private Sector.      12.  These   guidelines  will   not           prejudice any rights available           under the  Protection of Human           Rights Act, 1993.       Accordingly,  we direct  that the above guidelines and norms would  be strictly observed in all work places for the preservation and enforcement of the right to gender equality of the  working women. These directions would be binding and enforceable in  law until suitable legislation is enacted to occupy the  field. These  Writ Petitions  are  disposed  of, accordingly.