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PETITIONER: RAMESH KAUSHIK

       Vs.

RESPONDENT: B. L. VIG, SUPERINTENDENT AND ANR.

DATE OF JUDGMENT30/04/1980

BENCH: KRISHNAIYER, V.R. BENCH: KRISHNAIYER, V.R. REDDY, O. CHINNAPPA (J) SEN, A.P. (J)

CITATION:  1981 AIR 1767            1980 SCR  (3) 929  1980 SCC  Supl.  183

ACT:      Jail Jurisprudence-Prison  torture  and  Constitutional Jurisdiction of  the Court-Treatment  for ’B’  class and ’C’ class in  Tihar Jail  whether  offends  Article  14  of  the Constitution-Constitution of India Articles 21, 19 and 14.

HEADNOTE:      Kaushik, a  lifer lodged  in Tihar  Jail moved  a quasi habeas corpus  petition bitterly  complaining with facts and figures, of  the terror  and horror,  physical, and psychic, let loose  on him  and other jail mates by a crypto criminal combination of  senior  officials  and  superior  prisoners, thereby making the prison life within that walled world such a trauma  and torment the law never meant under the sentence suffered at  the hands of the Court. Briefly, the petitioner alleged that  his life  in jail is subjected to intimidation by overbearing  ’toughs’ inside,  that he  is forced  to  be party to  misappropriation of  jail funds  by and bribery of officers, that  homosexual and  sexual  indolence  with  the connivance of  officials are going on, that smuggling in and out is  frequent and  drug racket common, that alcoholic and violent misconduct  by gangs  like those  involved  in  Bank Robbery and  other notorious  cases are  a menace to quieter prisoners and  the whole goal of reformation of sentences is defeated by  this supercrime  syndrome. On  this  the  Court appointed Sri  Subodh Markedneya as amicus curiae to inquire into the  allegations and  submit a  report. The  respondent Delhi  Administration   transversed  the   grounds  in   the petition.      Allowing the petitions, the Court ^      HELD: 1.  Prison torture is not beyond the reach of the Supreme Court in its constitutional jurisdiction. [931 F]      Were there  a modicum  of truth in the disclosures made of vice  and violence, overt and covert, in the goings on in Tihar  such   an  institutional   outrage  would   make  our constitutional culture  blush and  our  judicial  punishment ’guilty’ procedure.  And on  the materials placed before the Court there is ground enough to exercise our exceptional but undoubted jurisdiction  to ensure  some  minimum  of  social hygiene and  banishment  of  licentious  excesses  lest  the

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sentence  of  court  be  frustrated  in  its  dual  ends  of deterrence and rehabilitation by prison pathology. [932 B-C]      2. When  police and prison torture is escalating in our human rights era, courts owe a duty to society not to ignore such  a   dangerous   reality.   Under   our   Constitution, deprivation of personal liberty as penal policy is purposive and the  Penal Code itself is valid because the imprisonment of  the  criminal  is  reasonable,  not  arbitrary,  and  is sanctioned as  a measure  of social  defence and  individual rehabilitation.  A  court  sentence  does  not  deprive  the prisoner of  his fundamental rights. To reform and deter the criminal and  to work  out that  process  geared  to  social defence, the  convict is  cast into  prison-not to  make him more hardened,  more brutal,  more cunning  and dangerous to society. This 930 raison d’etre  of penological  institutions in  our Gandhian country,  with  humanism  as  basic  to  the  constitutional scheme, cannot  be written  off without peril. A Prison term in Tihar  Jail is  not a  post graduate  training  in  tough crime. No  sentencing judge,  high and  low should  hang his helpless  head   in  frustration   and  humiliation  because institutional alternations  and personnel  perversions  have sullied and  stultified the justice of his sentence. [932 F- H, 933 A, B, C]      Sunil Batra  v. State  (Delhi Administration), [1980] 2 SCR 557; referred to.      3. The  human rights  of  common  prisoners  are  at  a discount and,  in our  Socialist Republic  moneyed ’B’ class convicts operate  to  oppress  the  humbler  inmates.  There cannot be  inequality in  prison too  on the score of social and financial status. Bank robbers in ’B’ class because they are rich  by robbery  and nameless  little men  in ’C’ class because  they   are  only  common  Indians!  Article  14  is suffocated if  this classification  is  permitted,  and  yet that, according to rule itself, is prevalent. Therefore, the Supreme Court must act, will act, to restore the rule of the law and  respect of  the residual  fundamental rights of any harassed petitioner. [933 D-F].      4. The  writ jurisdiction  of the Supreme Court must be equal to  the needs  of human  rights and  human wrongs.  In Sunil Batra  (1) v.  Delhi Administration,  [1979] 1  S.C.R. 393, this Court held that fundamental rights did not forsake prisoners and  that the  penological purpose of sentence was importantly, reformatory  even though  deterrent too. In the second Sunil  Batra’s case after a long discussion covering. American Rulings U.N. specifications of the Standard Minimum Rules for  prisons and  the implications  of Articles 21, 19 and 14  read in  the light of Maneka Gandhi’s case, [1978] 1 S.C.C. 248,  this Court  accented on  the habilitative value contained in  Rule 58  of the International Standard Minimum Rules. Jural  justice thus  set make  the Court  an activist instrument of jail Justice. [934 A-B, 935 A-B, 938 G]      5. In  the instant  case, even  after making  a liberal allowance for  adulteration and  distortion,  the  miasmatic process  and   restore  basic  humanism  inside  this  penal institution where  sentences, punitively  sent by court, are subjected to  unbearable  tensions  and  torments  on  their physical and  moral fibre, thanks to the prison milieu being what it is. [938 G-H, 939 A]      ’B’ class status for prisoners is going by averments in the petition,  a pampering  process much abused by officials and, in  a ’class’  culture, obnoxious  to the Constitution. Equality  before  the  law  cannot  co-exist  with  affluent blackguards being  looked after  with luxury  and solicitude

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and lawly  indigents being  treated as  pariahs  inside  the prison. There  is reference  in the  petition to  the  three dangerous criminals  involved in a big Bank Van Robbery Case being lodged  in Ward 14 as ’B’ Class VIPs, who have, on top of other  advantages, certain facilities. It is fairly clear that  many   vices,  including   drug  rackets,   occasional violence,  smuggling   and   trafficking   in   many   other impermissible  things,   have  hospitable   home   in   this penitentiary.   The    Administration   has    conscientious responsibility for the decency and dignity, for correctional obligations and  social hygiene inside prison houses and the time is  long overdue  for a thorough overhaul of the prison management in Tihar. [940 C-E, 941 E-F].      6. The crisis in our prisons, the collapse of values in these campuses,  the inner  tension ’red in tooth and class’ the corruption that makes for sensual indul- 931 gences, the  barbarities that  harden the convicts and never heal  them-all   these  processes   can  be   reviewed   and humanization resorted  if, only  if, our  philosophy towards crime and  punishment change.  If vengeance is the spirit of punishment violence  will be the prison way of life. [944 C- D]      [The Court,  keeping in  view the  principle of natural justice and the limitation of Court time directed a judicial enquiry by the District and Sessions Judge of Delhi who is a member of  the Board  of Visitors stressing the points to be covered in particular.]

JUDGMENT:      [ORIGINAL JURISDICTION: Writ Petition Nos. 393 & 549 of 1980.            (Under Article 32 of the Constitution)      S. Markendaya (Amicus Curiae) for the Petitioner.      M. N.  Abdul Khader  and Miss  A.  Subhashini  for  the Respondents.      The Judgment of the Court was delivered by.      KRISHNA IYER  J. Is a prison term in Tihar Jail a post- graduate course  in crime?  Such is  the poignant issue that emerges from the facts of this case.      ’The fundamental  human right  is not to a legal system that is  infallible but  to one  that is  fair’-these  great words of  Lord Diplock  in Maharaj  v. Attorney  General  of Trinidad and  Tobago  (No.2)  trigger  our  jurisdiction  to ensure a  fair legal  deal to the prisoner whose petition to this Court makes frightening exposures about the insiders of Delhi’s Central Jail.      Kaushik, a  ’lifer’ (to use jail jargon), now lodged in the Tihar,  Central Jail, has moved this quasi-habeas corpus petition  wherein  he  bitterly  complains  with  facts  and figures, of the terror and horror, physical and psychic, let loose on  him and  other  jail-mates  by  a  crypto-criminal combination of  senior  officials  and  superior  prisoners, thereby making the prison life within that walled world such a trauma  and torment the law never meant under the sentence suffered at  the hands  of the  court. Prison torture is not beyond  the  reach  of  this  Court  in  its  constitutional jurisdiction and  so we  appointed Shri Subodh Markandeya as amicus curiae and directed the Superintendent of the Jail to make available  for him  facilities  to  meet  the  prisoner Kaushik and  to present, after a brief fact-finding enquiry, the facts  necessary for taking further action, if any. Shri Markandeya has,  with a  gush of gusto, executed his work of

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assisting this  Court and  made a  report, and we record our appreciation therefor.  What makes  law a  force is a lawyer with a cause. 932      The Delhi  Administration has responded through counsel and traversed  the grounds  in the  petition but  Shri Abdul Khader, appearing  for the State, has fairly agreed that the Superintendent of the Central jail, far from fighting shy of a  probe   into  the  prison  management  and  the  shocking aspersions cast on it would welcome a judicial investigation where he  could prove  his innocence  of  the  foul  charges levelled.      Were there  a modicum  of truth in the disclosures made of vice  and violence, overt and covert, in the goings-on in Tihar  such   an  institutional   outrage  would   make  our constitutional culture  blush and  our  judicial  punishment ’guilty’ procedure.  And on  the materials  placed before us there is  ground enough  to  exercise  our  exceptional  but undoubted jurisdiction  to ensure  some  minimum  of  social hygiene and  banishment  of  licentious  excesses  lest  the sentence  of  court  be  frustrated  in  its  dual  ends  of deterrence and rehabilitation by prison pathology.      Briefly, the  petitioner alleges  that his life in jail is subjected to intimidation by overbearing ’toughs’ inside, that he  is forced  to be  party to misappropriation of jail funds by and bribery of officers, that homosexual and sexual indulgence with  the connivance  of officials  are going on, that smuggling  in and  out  is  frequent  and  drug  racket common, that  alcoholic and violent misconduct by gangs like those involved in Bank Robbery and other notorious cases are a  menace  to  quieter  prisoners  and  the  whole  goal  of reformation of  sentences is  defeated  by  this  supercrime syndrome.  Maybe,  like  Oscar  Wilde,  the  petitioner,  in flinging allegations,  considers that "moderation is a fatal thing. Nothing  succeeds like excess". Making a large margin for unveracious  dilution, still  if  a  fragment  of  truth survives something  is rotten in the state of Denmark’. This Courts’ writ  must remove  from Tihar  face  such  indelible stain and incurable wound.      When police  and prison  torture is  escalating in  our human rights era, courts owe a duty to society not to ignore such a  dangerous reality. "At this time the lack of law and order is  especially of  prime concern. Our courts must bear their share of blame and shame for this condition".      Under our Constitution, deprivation of personal liberty as penal  policy is  purposive and  the Penal Code itself is valid  because   the  imprisonment   of  the   criminal   is reasonable, not arbitrary, and is sanctioned as a measure of social  defence   and  individual  rehabilitation.  A  court sentence does  not deprive  the prisoner  of his fundamental rights as  a Constitution  Bench.,  in  Sunil  Batra’s  case recently expounded. 933 To reform  and deter  the criminal  and  to  work  out  that process geared  to social  defence, the convict is cast into prison-not to  make him  more hardened,  more  brutal,  more cunning and  dangerous to  society. This  raison  d’etre  of penological  institutions  in  our  Gandhian  country,  with humanism as  basic to  the constitutional  scheme, cannot be written off  without peril. And so it is that, after reading the fearful  circumstances revealed in this case we focussed sharply, right  at the outset, the grave issue;, Is a prison term in  Tihar Jail a post-graduate training in tough crime? Is an invisible ’carser’ mafia in defacto management of this penal institution?  Should every  sentencing judge, high and

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low, hang  his helpless  head in frustration and humiliation because institutional  aberrations and personnel perversions have sullied and stultified the justice of his sentence?      We have been told by counsel for the State that several hundreds of VIPs have (ceremonially) visited and, of course, complimented the  jail  management.  These  conducted  tours cannot, in  themselves, contradict  the contention that this campus of  correction has  degenerated into  a human zoo. We keep an  open mind  and examine  the facts  but must confess that the  Tihar Jail has come up for unhappy judicial notice too often  in the  past. We  must also stress that the human rights of  common prisoners  are at  a discount  and, in our Socialist Republic,  moneyed ’B’  class convicts  operate to oppress the  humbler inmates.  Can there  be  inequality  in prison too on the score of social and financial status? Bank robbers in  ’B’ class  because they  are rich by robbery and nameless little  man in  ’C’ class  because  they  are  only common  Indians!   Article  14   is   suffocated   if   this classification is  permitted, and yet that according to rule itself, is prevalent as this Court has even in earlier cases pointed out.  This Court  must act, will act, to restore the rule of  law and  respect the residual fundamental rights of any harassed petitioner.      We  are   aware  that   general  charges  and  sweeping complaints may  tarnish innocent  officers. We do not intend to find  fault with  any until  proof is forthcoming. We are conscious  that   correctional  orientation   and   cautious humanization  have   changed  the  attitudes  of  many  jail officials. To  blame them is beyond our purpose or power but to protect  the caged  humans from torture, gross or subtle, beyond what  the law  permits is  our function,  indeed, our duty. From  this  perspective  we  may  rapidly  survey  the circumstances and mould the reliefs.      Prison Jurisprudence,  developed through  case-law  and derived  from  constitutional  law,  already  exists.  As  a jurisdictional matter  and background-setter  we may briefly refer to some of these aspects 934 before we  discuss the controversial questions. In the Sunil Batra Case  the Constitution  Bench brushed aside the ’hands off prisons’  doctrine, upheld  the  fundamental  rights  of prisoners, though  circumscribed severely  by the reality of lawful  custody.  Desai,  J.,  speaking  for  three  of  his colleagues and  broadly concurring with the fourth clarified two positions  (a) that  fundamental rights  did not forsake prisoners, and  (b) that the penological purpose of sentence was, importantly, reformatory, even though deterrent too. In a later  case, Sunil  Batra v.  Delhi Administration (supra) another bench explained:          The court has a continuing responsibility to ensure      that the  constitutional purpose  of the deprivation is      not defeated  by the  prison administration.  In a  few      cases, this  validation  of  judicial  invigilation  of      prisoners’ condition  has been voiced by this Court and      finally reinforced  by the  Constitution Bench in Batra      (supra).          The  Court need  not adopt  a "hands  off" attitude      ....in regard  to the problem of prison administration.      It is  all the  more so  because a convict is in prison      under the order and direction of the Court. Under the  caption "Retention  of Authority over Prisoner by Sentencing Judge" (Krantz notes).          As  noted by Judge Lay in a Judicial Mandate, Trial      Magazine (Nov.-Dec. 1971) at p. 15          It  should be  the responsibility  of the  court in

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    imposing the  sentence to  set forth as it would in any      equitable decree,  the  end  to  be  achieved  and  the      specifics necessary  to achieve  that purpose. If then,      we are  to have  accountability in the execution of the      sentence, courts  must make  clear what  is intended in      the imposition  of the  sentence. Every sentence should      be couched  in terms similar to a mandatory injunction.      In this  manner, the  penology system  is to be held to      account if  the government  does not faithfully execute      the order.          In  other words,  the sentencing  court  should  be      required to  retain jurisdiction  to  ensure  that  the      prison system responds to the purposes of the sentence.      If it  does not,  the sentencing  court could  arguably      have the authority to demand compliance with 935      the sentence  or even  order the  prisoner released for      non-compliance.         Whether inside prison or outside, a person shall not      be deprived  of his guaranteed freedom save by methods,      ’right, just and fair’.      A  long  discussion  covering  American  rulings,  U.N. specifications of the Standard Minimum Rules for Prisons and the implications of Arts. 21, 19 and 14 read in the light of Maneka Gandhi’s  case led  this Court in Sunil Batra (supra) to accent on the habilitative value contained in Rule 58. of the International Standard Minimum Rules:           The  purpose  and  justification  of  sentence  of      imprisonment  or   a  similar  measure  deprivative  of      liberty is ultimately to protect society against crime.      This  end  can  only  be  achieved  if  the  period  of      imprisonment is  used to  ensure, so  far as  possible,      that upon  his return  to society  the offender  is not      only willing  but able  to lead a law-abiding and self-      supporting life.      The action-oriented  conclusion in that judgment, which bind the  State, need  re-emphasis since die-hard, practices persist. We repeat some of them here :           Lawyers  nominated  by  the  District  Magistrate,      Sessions Judge,  High Court  and the Supreme Court will      be given  all facilities  for  interviews,  visits  and      confidential communication  with prisoners  subject  to      discipline and  security considerations. This has roots      in the  visitorial and  supervisory judicial  role. The      lawyers so designated shall be bound to make periodical      visits and  records and  report to  the concerned court      results which have relevance to legal grievances.           Within the  next three  months, Grievance  Deposit      Boxes shall be maintained by or under the orders of the      District Magistrate  and the  Sessions Judge which will      be opened  as frequently  as is deemed fit and suitable      action taken  on complaints  made. Access to such boxes      shall be afforded to all prisoners.           District Magistrates  and Sessions  Judges  shall,      personally or  through  surrogates,  visit  prisons  in      their jurisdiction  and afford  effective opportunities      for   ventilating    legal   grievances,   shall   make      expeditious enquiries  there  into  and  take  suitable      remedial action.  In appropriate cases reports shall be      made 936      to the  High Court for the latter to initiate, it found      necessary, habeas action.           XX                  XX                  XX

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    No solitary or punitive cell, no hard labour or dietary      change as  painful additive,  no  other  punishment  or      denial of  privileges and  amenities,  no  transfer  to      other prisons with penal consequences, shall be imposed      without judicial  appraisal of  the Sessions  Judge and      where such  intimation, on  account  of  emergency,  is      difficult, such  information shall  be given within two      days of the action.           XX                  XX                  XX           The State  shall take  early steps  to prepare  in      Hindi a  Prisoner’s Handbook  and circulate  copies  to      bring legal  awareness home  to the inmates. Periodical      jail   bulletins    stating   how    improvements   and      habilitative programmes are brought into the prison may      create  a  fellow-ship  which  will  ease  tensions.  A      prisoners’ wall  paper,  which  will  freely  ventilate      grievances will  also  reduce  stress.  All  these  are      implementary of s.61 of the Prisons Act.           XX                  XX                  XX           The prisoners’  rights shall  be protected  by the      court by  its writ jurisdiction plus contempt power. To      make this  jurisdiction viable,  free legal services to      the  prisoner   programmes   shall   be   promoted   by      professional organisations recognised by the Court such      as for e.g. Free Legal Aid (Supreme Court) Society. The      District Bar  shall, we  recommend,  keep  a  cell  for      prisoner relief. How far  have these  directives been implemented, especially to the  extent they  affect the  present petitioner? We will examine it  presently, but before that, some materials about this jail  and its way of life is needed to appreciate where the truth lies, as between assertions and denials.      In the  2nd Sunil Batra case- the Superintendent of the Tihar Jail testified:           A number  of  prisoners  in  the  Tihar  Jail  are      habitual offenders,  professional  criminals  who  have      been inmates  of the  Jail from  time to time....It has      been noticed  that these  types of  prisoners have been      able to develop a certain rapport with some 937      of the  lower staff  in the  jail namely  Head Warders,      Warders etc.  and obtain  certain facilities  illegally      including smuggling  of number of items e.g. drugs etc.      for their  use. It  may also  submitted that  to  check      smuggling  of  narcotic  drugs  against  prisoners  who      indulge  in   such  activities  30  cases  of  narcotic      offences were got registered against the prisoners with      the Janakpuri  Police Station during this year...It may      also be mentioned that due to paucity of accommodation,      the said  jail is  occupied by  double  the  number  of      prisoners than it is otherwise authorised. In that very case, the Court had occasion to observe, on the materials present there:           "Since  many   officers   busy   themselves   with      production of  prisoners in  court,  the  case  of  the      Superintendent is  that the  other prisoners "try to do      mischief, make  thefts of  other prisoners  who  go  to      work, smuggle things and even resort to assaults."           The crowning  piece is  that  the  jail  officials      themselves are  allegedly in  league with the criminals      in the  cells. That  is, there  is a  large network  of      criminals, officials  and non-officials in the house of      corrections   Drug   racket,   alcoholism,   smuggling,      violence, theft,  unconstitutional punishment by way of      solitary cellular  life and transfer to other jails are

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    not uncommon." In that  case, Dr.  Chitale, who  appeared for the prisoner, brought to our notice a literary work written by Shri Kuldip Nayar "In Jail" where the author has recorded :      "......one could  get as  much money as one wanted from      outside against  a price.  There was  a money order and      mail service that perhaps was more dependable than what      the postal department could offer.           For instance,  when a  prisoner in  my ward wanted      two hundred  rupees, he sent a note through a warder to      his people  in old  Delhi and  in less than twenty-four      hours he  had the  money. He  paid sixty-six  rupees as      collecting  charges-thirty-three   per  cent   was  the      prescribed  "money-order  charges.".......Dharma  Teja,      the shipping  magnate who served his sentence in Tihar,      for instance, had thousands of rupees delivered to him,      we  were   told.  And   if  one   could  pay  the  jail      functionaries one  could  have  all  the  comforts  one      sought. Teja  had all the comforts-he had an air cooler      in his cell, a radio-cum-record player set and even the      facility of using the 938      phone......Haridas Mundhra,  a  business  man  who  was      convicted of fraud, was another rich man who spent some      time in Tihar. Not only did he have all the facilities,      but he could also go out of the jail whenever he liked,      at times  he would  be out  for several days and travel      even up to Calcutta. All this, of course, cost a lot of      money. An  even richer  prisoner was Ram Kishan Dalmia;      he spent  most of  his jail  term in  hospital. He  was      known for  his generosity  to jail authorities, and one      doctor received a car as a gift.           But more  than businessmen  it was  the  smugglers      jailed in  Tihar who  were lavish  spenders. Their food      came from  Moti Mahal  and their  whisky from Connaught      Place. They had not only wine but also women. "Babu ji,      not tarts but real society girls," one warder said. The      women would be brought in when "the sahiblog" went home      for lunch,  and their  empty offices became "recreation      rooms".           Corruption in  jail was  so well  organised and so      systematic that everything went like clockwork once the      price had  been paid.  Jail  employees  at  almost  all      levels were  involved, and  everyone’s share was fixed.      There  was  never  a  dispute;  there  has  to  be  the      proverbial honour among thieves."      This backdrop  to the  Tihar  lifestyle  is  disturbing enough.  (Have   other  States   their  Tihars?)   The  writ jurisdiction of  this Court  must be  equal to  the needs of human rights and human wrongs. Relying upon legal literature in the  American  jurisdiction  especially  the  crystalised statement in  American jurisprudence,  this Court  has  laid down :           The writ  is not  and never  has  been  a  static,      narrow formalistic  remedy.  Its  scope  has  grown  to      achieve  its   purpose-the  production  of  individuals      against erosion  of the  right to be free from wrongful      restraints on their liberty. Jural perspectives,  thus set,  make the  Court an  activist instrument of  Jail Justice.  We proceed  on this basis to a consideration of  the issues raised before us. But to clothe these issues  with flesh  and blood  and  to  make  abstract poignancies into concrete problems, we may excerpt at random some of  the allegations made by the petitioner, perhaps, by mixing fiction  with  fact.  Even  after  making  a  liberal

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allowance for  adulteration and  distortion,  the  miasmatic residue presses  upon our  judicial conscience  to  use  the court processes and restore basic humanism inside this penal institution where sentences, punitively 939 sent by  court, are  subjects  to  unbearable  tensions  and torments on  their physical  and moral  fibre, thanks to the prison milieu  being what  it is. The petitioner states that he had  sent to  one of  the Judges of this Court complaints about "atrociously  unwholesome". treatment  in the jail, on September 21, 22 and 24, 1979. He alleges that he had lodged a complaint  against the  Superintendent with  the vigilance Department of the Delhi State. His further version is better projected by quoting a few paragraphs from his own petition:           That the Superintendent and Deputy Superintendent,      under  a   severe  threat   of  dire  consequences  and      infliction   of   punitive   torture,   pressured   the      petitioner into  signing an  affidavit, denying  having      lodged any  such complaints  in the  Supreme Court, the      Delhi Administration and the Vigilance Department.           That, judging  from the  incidents of  corruption,      torture and  drug-distribution, there  can  be  no  two      opinions   about    the   Superintendent   and   Deputy      Superintendent, brought  from the adjoining province of      Haryana, performing  only in  a  manner  of  predators.      Torture and  drug-distribution are  merely the means to      corruption to achieve their ultimate end.           That there  is a  foreign convict  confined in the      Tihar Jail, along with a woman, who he claims to be his      wife. They  are both wanted by the Interpol. This man’s      criminal biography  has been  published in  two  books,      written  by   foreign  authors,  wherein  the  criminal      exploits  of  this  criminal  are  admitted  facts.  He      performs in  the Tihar Jail as though he is the virtual      administrator  thereof.  He  retains  a  portable  tape      recorder, strapped  of his  calf, wherein he has filled      incriminating evidence  against the  Superintendent and      the Deputy  Superintendent. By  virtue of  this  black-      mailing  hold   upon  them   he  enjoys  the  following      privileges:      (a) Free  movements all over the jail compound from his      own place of confinement in Ward 2.      (b) At  least a  dozen visits  are made by him daily to      the B class Ward 14. Here he holds periodic conferences      to plan  his furtive  strategy in  company  with  three      intimate associates-all co-accused in the six-lacs Bank      Van Robbery Case.      (c) The  petitioner has  himself seen the tape recorder      kept hidden by him and his B class criminal associates. 940      (d)  This   foreigner  is   especially  encouraged  and      protected   by    the   Superintendent    and    Deputy      Superintendent. He  can be seen visiting these officers      and holding private conferences in the private retiring      rooms at the back of their offices almost daily.      (e) So  much so,  that the  Deputy Superintendent  even      allows  this   foreign-convict  to   consummate  sexual      intercourse in his private back-room from time to time-      the Deputy  Superintendent performing as though he were      this foreign-convict’s pimp.      (f) Naturally,  for conceding  such and many more extra      facilities,  both   the   Superintendent   and   Deputy      Superintendent charge  heavy amounts  from his  foreign      convict, who  has now struck rich after the publication      of his two books.

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    ’B’ Class  status for  prisoners is, going by averments in  the   petition,  a  pampering  process  much  abused  by officials and,  in  a  ’class’  culture,  obnoxious  to  the Constitution. Equality  before the  law cannot co-exist with affluent black-guards  being looked  after with  luxury  and solicitude and  lawly indigents  being  treated  as  pariahs inside the prison. There is reference in the petition to the three dangerous criminals involved in a big Bank Van Robbery Case being lodged in Ward 14 as ’B’ Class VIPs, who have, on top of other advantages, certain facilities like being.           "Specially allowed  the privilege  of  having  two      young and  handsome habitual drug-addicts locked in his      cell at  night, to  serve him as passive agents for the      appeasement  of  his  homosexual  lust,  (e)  has  been      provided with  a TV set in his cell exclusively for his      and  his  associates’  entertainment,  (f)  smuggled-in      alcohol is  being regularly  consumed by the so-locked-      together several  prisoners in his cell, being rich, it      is these  so-locked-together associates who finance the      drug-and-alcohol racket.      Another shocking  allegation of corruption is that even from sentences  undergoing rigorous  imprisonment  money  is collected by high officials           "for allotting  hard labour  (of soft  types ?) in      the course of serving rigorous imprisonment and placing      the convicts in the general barracks or private cells."      The  petitioner   further  complains   of  having  been physically assaulted  and the  averments relating  to it run thus: 941           That the  agents appointed  by the  Superintendent      and Dy.  Superintendent to  sell narcotics in the Tihar      Jail, (written complaint to this effect lodged with the      Superintendent, who passed the matter on far enquiry to      the  Dy.   Superintendent,  who   in   turn   took   no      disciplinary   action)    physically   assaulted    the      petitioner on  December 25,  1979  and  January  6  and      February 7,  1980. However,  no action  has so far been      taken  and  the  culprits,  being  the  agents  of  the      Superintendent and  Dy. Superintendent  were  skilfully      shielded.  In   fact,  the   matter  was   deliberately      suppressed because  of the  involved personal financial      interests of the officers.      Apart from  these statements  there are serious charges of misappropriation,  corruption, bribery  and the  like and the artful stratagem adopted in that behalf. Shri Markandeya contended that  there  was  truth  in  the  allegation  that mandrex, charas  and opium  are  freely  available,  thereby trying to  establish that  the sub-culture  in  the  Central Jail, far  from being  reformatory is  de-formatory  of  the morals of  the  prisoners.  Indeed,  many  more  things  are mentioned in  support of  the petition,  including newspaper reports, of  the vices of the jail. But we are/not concerned in these  proceedings with  a general  enquiry into the jail affairs  and,  therefore,  confine  ourselves  to  what  has bearing on the ill-treatment of the petitioner.      It is  basic fairness  that we  should not  come to any conclusion  without   remembering  the  fact  that  detailed counter-affidavits  have   been  filed   on  behalf  of  the Superintendent and  the Dy.  Superintendent with  supportive materials calculated to exonerate them. Even so it is fairly clear that  many vices,  including drug  rackets, occasional violence,  smuggling   and   trafficking   in   many   other impermissible  things,   have  a  hospitable  home  in  this penitentiary.   The    Administration   has    conscientious

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responsibility for the decency and dignity, for correctional obligations and  social hygiene inside prison houses and the time is  long overdue  for a thorough overhaul of the prison management in  Tihar. In  an earlier  judgment, late in 1979 (W.P. 1009 of 1979), the Supreme Court had, in the strongest terms, stressed  the imperative and urgent need for carrying out certain  reforms and added the imprimatur of the court’s authority for  certain directives contained in Sunil Batra’s case. Shri  Markandeya complained  that the  injunctions  of this Court  have not  been  carried  out  while  a  contrary version is given by the Superintendent. While we express our consternation at  the deterioration  of  the  conditions  in Tihar Jail  despite its  being in  the capital  city of  the country, we  are disturbed  that no  major measure of reform has yet taken place in the prison order or, 942 for that  matter, in  the prison  manual. Such  indifference cannot deter  the writ of this court running into the prison and compelling  compliance, however  tough  the  resistance, however high the officials.      Natural justice  and  the  limitations  of  court  time persuade us  to avoid  a  detailed  investigation  into  the charges and  the defences,  by us  directly. We,  therefore, adopt the  alternative and more feasible method of directing a judicial enquiry by the District & Sessions Judge of Delhi who  is  a  member  of  the  Board  of  Visitors  and  whose responsibilities in  this behalf have been outlined by us in both the Sunil Batra cases.      The petition  contains specific  grievances of physical assault  and   psychic  torture,  of  tense  atmosphere  and delinquent pressure  for which  some ’B’ class prisoners and superior officers  are responsible.  This matter  has to  be investigated. Furthermore,  in the Sunil Batra case (Supra), precisely to  obviate the  pernicious  potential  of  prison torture, remedial  mechanics had been worked out, formulated and  translated  into  mandates.  Whether  these  have  been complied with,  and if  not, why not, require to be enquired into. When  this Court  issues a  writ recusant parties will have to  pay the  penalty for noncompliance. This means, the violations and  violators will  have to  be identified after due investigation.  Having regard  to all these instructions we make the following directions:      (1) The  District  and  Sessions  Judge,  Delhi,  will, within three  months from today, hold an open enquiry within the jail  premises, into  the allegations  contained in  the petition of the prisoner Kaushik and in the report submitted to this Court by Advocate, Shri Subodh Markandeya.      (2) He will further enquire, with specific reference to the  charges   of  personal   assault  and   compulsion  for collaboration in  canteen swindle  and otherwise made by the prisoner   against    the   Superintendent   and   the   Dy. Superintendent.      (3) He  will go  into the  question of  the  directives issued in  the concluding  portion  of  Sunil  Batra’s  case (supra) with  a view  to ascertain  whether these directions have been  substantially complied  with and  to  the  extent there  is   shortfall  or   default  whether  there  is  any reasonable explanation therefor.      (4) Being  a Visitor  of the  jail, it  is part  of his visitorial functions  for the  Sessions  Judge  to  acquaint himself with the condition of tension, vice and violence and prisoners’ grievances.  He will  take  this  opportunity  to enquire into  those aspects  also with  a  view  to  suggest remedial action. 943

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    The result of this investigation will be crystalised in the shape  of findings,  followed by  specific  instructions with a  view to  see that the petitioner and others like him are  not  burdened  by  additional  acerbities  and  harsher pressures than  a legal  sentence of  rigorous  imprisonment geared  to   reformation   and   intended   for   deterrence necessarily implied.  The Sessions  Judge will  also give  a specific time  to the  jail authorities for carrying out his directives, and  after the  period for  compliance is  over, will make  a fresh  visit to  verify whether  those mandates have been  fulfilled. In  the  event  of  non-fulfilment,  a report will  be made to this Court before September 30, 1980 whereupon appropriate  action to  enforce compliance will be taken by this Court in its jurisdiction.      We may  make it perfectly clear that the Sessions Judge will allow  any person  or official  who wants  to make  any representations to  him in the course of his enquiry to meet him publicly  or in camera, but outsiders and strangers will not be allowed except Shri Subodh Markandeya or Government’s Counsel. Of  course, it  will be  open to  the Judge  if  he considers that  such a  step will  advance the  interests of justice to  allow any other public organisation or legal aid society.      The sessions  judge, whom  we  have  charged  with  the responsibility   for   enquiry,   will   make   constructive suggestions to  protect prisoners’  rights  and  to  promote prisoners’ habilitation and thus disprove Oscar Wilde:      This two I know-and wise it were       If each could know the same-      That every prison that men build       is built with bricks of shame,      And bound with bars lest Christ should see       How men their brothers main.           *         *         *         *         *      The wilest deeds like poison weeds       Blowm well in prison air:      It is only what is good in Man’       That wastes and withers there.                                 (The Ballad of Reading Gaol)      In this context, the focus of the Sessions Judge should not be  solely upon  the warden and warders of the jail, but also on the medical officers, whose connivance may, perhaps, explain how drugs like mandraix are officially indented. 944      Our immediate  concern is to protect the petitioner and others of  his ill-from physical assaults by fellow-prisoner or warders,  from moral  stress by being forced to assist in falsification   and    manipulation   for    canteen   sales misappropriation, from  discrimination in being subjected to hard labour  of a  harsh type  if he does not oblige the ’B’ class ’bosses’  or senior  officer’s, from  pressure against transmitting grievances  to the  Sessions Judge  through the Grievance Box  or  directly  to  this  Court  by  post.  But remedial perspectives and procedures, to be successful, must be holistic,  collective and  not individualistic.  So,  the human canvas has to be spread wider, the diagnosis has to be deeper and the recipe must senitize the environ.      The crisis  in our  prisons, the  collapse of values in these campuses,  the inner  tension ’red in tooth and claw’, the corruption  that  makes  for  sensual  indulgences,  the barbarities that harden the convicts and never heal them-all these processes can be reviewed and humanization resorted if only if, our philosophy towards crime and punishment change. If vengeance  is the  spirit of punishment, violence will be the prison  way of  life. That  is why Karl Menninger in his

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"The Crime of Punishment" exposes this folly:      .......Punishment is in part an attitude, a philosophy.      It is  the deliberate infliction of pain in addition to      or in  lieu of  penalty .....What is gained for anybody      when a  man who has forged a check for sixty dollars is      sentenced to  the penitentiary for thirty years.....The      judge’s rationalization  was that  the man had offended      in this  way twice  before (!)  and had  served shorter      sentence without reforming:      .......This  is   not   penalization.   This   is   not      correction. This  is not public protection. This is not      reformation. It is sadistic persecution of the helpless      at  public   expense,  justified   by  the   punishment      principle.      From this  new angle,  the hospital-setting approach to prisons   Gandhiji    advocated,   the   therapeutic   touch penologists argue  for and  the  raising  of  the  level  of consciousness, institutional  and individual,  of  officials and prisoners-all  these woven into a composite strategy-may well be the highway to higher awareness and socialisation of feeling inside  correctional homes. This technology takes us to method  like transcendental  meditation,  self-expression through  work,   facilities   for   studies   and   artistic development. The  warden’s drill  the warder’s  billy or the VIP’s ’good chit’ cannot work magic.      Shri  Markandeya’s  further  report  substantiates  the thesis we  have set  out that prison violence and escalating criminality directly 945 flow from  the anti-rehabilitative  strategies and  counter- productive  life-style  prevalent  in  the  Tihar.  The  VIP criminals in  league with other prison toughs are alleged to have organised  the beating  up of one prisoner. The part of the prison officials may or may not be direct, but is surely vicarious. Not  until a  transformation in  the awareness of the  top-brass,  not  until  new  techniques  of  instilling dignity and  mutual respect among the prisoners, not until a hospital setting  and curative  techniques pervade the staff and the  inmates, can  there be  any human  right  conscious reformation in  the Tihar  prison. All  that we  need say is that in the enquiry that we have directed the Sessions Judge to hold  this perspective will inform his interrogations and investigations.      We  have  drawn  the  broad  lines  indicative  of  the direction  of   correction  and   leave  it   at  that.  The fundamental  fact   of  prison   reforms  comes   from   our constitutional recognition  that every  prisoner is a person and personhood holds the human potential which, if unfolded, makes a robber a Valmiki and a sinner a saint. S.R.                                       Petition allowed. 946