12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

FE ATURE D

Flashback: What
the Constituent
Assembly Debates
Tell us About
AFSPAs Problems
BY GAUR AVVIVEK BHAT NAGAR ON11/0 9/20 16LEAVEACOMMENT

The draconian lawis almost as old as independent

India and thecriticisms being made of it today were
anticipated by many of the countrys
rstlegislators.

ThefirstdayoftheConstituentAssemblyofIndia.Credit:WikimediaCommons

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

1/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

Atatimewhendemandsarebeingraisedfromacrossthecountryto
repealtheArmedForces(SpecialPowers)Act(AFSPA),TheWire
takesalookathowtheissuewasfirstdebatedintheConstituent
AssemblyofIndiaandthecircumstancesthatledtothe
controversiallawsadoption.
Theinformationhasbeenobtainedfromparliamentslibraryby
VenkateshNayak,coordinatoroftheAccesstoInformation
Programme(http://www.humanrightsinitiative.org/content/accessto
information)oftheCommonwealthHumanRightsInitiative.Nayak

said:Thepurposeofplacingthesedebatesinthepublicdomainis
toenablepeopletodebatetheissueinaninformedmannerwith
knowledgeoftheconcernsoflawmakersinthepast.

TheSupremeCourtinJulydealtapotentiallyheavyblowtothe
immunityenjoyedbysecuritypersonnelunderAFSPA,whenitheld
thatthereisnoconceptofabsoluteimmunity
(http://thewire.in/50110/armyexcessiveforceafspascmanipur/)fromtrialbya

criminalcourtifasoldierorarmyofficerhascommittedanoffence.
Italsoheldthattherewasaneedtoenquireintoeverydeathcaused
bythearmedforcesinadisturbedarea,irrespectiveofwhetherthe
victimisadreadedcriminal,oramilitant,oraterrorist,oran
insurgent.
MorerecentlyonSeptember7,theNationalHumanRights
Commissionalsoexpresseditsexasperation
(http://www.thehindu.com/news/national/supremecourtconcernedoverrights
violationsintenseareas/article9082249.ece)beforetheSupremeCourt

overthearmedforcestakingprotectionundertheAct.Inhis
submission,senioradvocateandNHRCcounselGopalSubramanium
notedhowthesecurityforcesresorttoAFSPAwhenfacedwitha
humanrightscomplaint.InManipur,ittookthreeyearstoget
informationregardingacaseofallegedhumanrightsviolation.The
NHRCisaresponsiblefactfindingbody.Nogovernmentcansayitis
notaccountablefortheviolationofhumanrights,Subramaniumhad
stated.
Tracingthelegislativehistoryofthelaw

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

2/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

Fromparliamentsarchives,Nayakobtainedascannedcopyofthe
debateonAFSPA(https://www.scribd.com/document/323611541/CALDebates
1947AFSPAdiscussion),1948,whichwasheldintheconstituentassembly

in1947.HealsoobtainedtheDisturbedAreasAFSPOrdinancesof
Bengal(https://www.scribd.com/document/323611821/BengalDisturbedAreas
AFSPOrdinance1947),EastPunjabandDelhi
(https://www.scribd.com/document/323611604/EastPunjabDelhiAFSPOrdinance
1947)andtheNorthWestFrontierProvince
(https://www.scribd.com/document/323611864/NWFPDistrubedAreas
AFSPOrdinance1947)(NWFP).Ofthesetheordinances,Bengaland

NWFPhadnotempoweredthearmedforcestouseforcetotheextent
ofcausingdeath.ThatpowerwasgrantedonlyintheEastPunjaband
Delhiordinances.AlltheseordinanceswerereplacedbytheAFSPA
Actof1948,whichempoweredthearmedforcestoshootandkillif
necessary.Lateron,theAFSPAof1958wasenacted.
TheArmedForces(SpecialPowers)Billwasintroducedinfirst
sessionoftheconstituentassemblyofIndiabythefirstdefence
minister,SardarBaldevSingh.Itwasdebatedinthehousein
December1947.
Objectivesandreasons
SinghsreasonsforintroducingtheBillwerethatinthebeginningof
thisyearwhencommunalriotsbrokeoutinPunjabonan
unprecedentedscale,theadministrationofthatpartofthecountry
completelybrokedown.Thepolicetherefailedtoperformitsduties
andinsomecasestheyevenrefusedtowork.Anotherfactorwhich
mustbeborneinmindisthatinthatpartofthecountrythepolice
was90%ofonecommunity.Thecommunalriotstookaveryugly
shapeandtheprovincialgovernmentrequestedthegovernmentfor
militaryhelp.Wesentalargenumberoftroops,butthepresenceof
troopstheredidnotimprovethesituationmuch.Itwasnoton
accountoftheinadequacyofthetroops,butbecausethetroopswere
spreadoverthewholeofthatpartofthecountryandunderthelaws
thenprevailingtheywerenotinapositiontotakeanyaction.
Henotedthat,representationsweremadetothegovernmentof
Indiabyseveralpeople,bytheSection98administrationofthe
Punjabprovinceandalsobypublicmen,thatadditionalpowers
shouldbegiventothearmedforces.Hetoldthehouse:In
http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

3/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

deferencetothewishesofthelocaladministrationandotherbodies,
anordinancewaspromulgatedwhichisbeforethehouse.This
ordinance,sir,expiresearlyinJanuaryorsometimeinthemiddleof
FebruaryandifwedonotpassthisBill,theordinancewilllapseand
thearmedforceswillfindthemselvesinadifficultposition.Itisfor
thisreasonsthatthisBillisplacedbeforethehousesothatwedonot
havetoresorttoanordinanceagain.
TheprovisionsoftheBill,Singhadmitted,maylookdrastic,butI
wishtopointoutthatuptillnow,theyhaveworkedwithoutany
hardshiptoanybody.Thepowerscannotbeusedunilaterallybythe
armedforces.Firstly,theprovincialgovernmenthastodeclarean
areaasadisturbedareaandsecondly,theprovisionsoftheBillare
onlyforayear.Ifattheendofthisyear,weconsiderthatitis
necessarytoextendtheprovisionsoftheBillforanotherperiodof
oneyear,onlythenwilltheBillbesoextended.
Theneedforcoveringmoreareas
OnhowandwhytheBillsoughttocovermoreareas,Singhsaid:
UptonowthisordinancewasinforceinthePunjabandlateron,
whenthecommunalsituationinotherspartsofthecountry
deterioratedthegovernmentsofUP,BengalandAssamaskedthe
governmentofIndiatoextendtheprovisionsofthisordinanceto
thosepartsofthecountryalso.
So,atpresentthepositionisthatthisordinanceisinforceinfour
provincesofIndia.UnderthisBillwewillbetakingpowerwhichwill
applytothewholeofIndia,butitwillbeopentotheprovincial
governmentstoenforcethisBillinanywaytheylike.Theyhave
completepower,firsttodeclareanareaasadisturbedareaandonly
thenwilltheprovisionsofthisBillcomeintooperation.
ThatinshortisthehistoryofthisBillandtheprovisionsthatare
containedintheBillseemtoberatherdrasticbutIassurethehouse
thataftertheexperiencewehaveuptillnow,weareconvincedthat
thepowershavenotbeenunnecessarilyusedandtherehavebeenno
complaintsfromanyoftheprovinces.Ihopethehousewillbe

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

4/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

convinced,ifamendmentsaremoved,thatthesepowerswillbeused
intherightwayandtherewillbenocomplaintaboutit.
AFSPAwasoriginallymootedforoneyearonly
Ironically,AFSPAisalmostasoldasindependentIndia.Ithasbeen
repeatedlymodifiedandextendedthoughitwasoriginallymeantto
beinforceforonlyayear.AsSinghhadtoldthehouse,Wehaveno
intentionatalltoextendtheperiodbeyondoneyear.Some
honourablemembersmayhaveafeelingthatperhapswewillgoon
extendingitbeyondoneyearorevenlater.Icanassurethehousethat
wehaveabsolutelynosuchdesireanditwillbeextendedonlyifthe
communalsituationdoesnotimprove.

MaharajaHariSinghofKashmir,whosignedtheInstrumentofAccessionthatmade
KashmirapartofIndia.KashmirhasbeenunderAFSPAforseveralyears.Credit:
WikimediaCommons.

Strongopposition
DuringthediscussionoftheBill,PanditThakurdasBhargavaofEast
Punjabhadpointedoutthateitherthecivilauthoritiescanfunction
ortheycannotfunction.Iftheycannotfunction,itisacaseofgiving
overthecommandtothemilitaryauthorities.

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

5/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

Healsospokeaboutacontingency:Supposethemagistrateorcivil
authoritiescalltheaidofthemilitaryandthequestionarisesabout
quellingthedisturbanceortheriot,wouldtheprovisionofthisAct
applyortheprovisionsoftheCriminalProcedureCode?
Providingtheanswertothesame,hesaid,Accordingtothe
provisionsofthisAct,irrespectiveofwhetherthemagistrateisthere
ornot,themilitaryhavethelastsayandtheycanshootandkillany
onetheyplease.
Misconceivedandmischievous
Bhargavahadalsomadeastrongcaseagainstthelaw,saying,now
letusseetowhatcasesandcontingenciesthisBillshallapplyandI
wishtoreadtoyouthefirstsectionwhichshallshowhow
misconceivedandmischievousthisBillis.
HewentontoaddthattheBillprovidesthat:

Anycommissionedofficer,warrantofficerornon
commissionedofficerofHisMajestysmilitaryorairforces
may,inanyareainrespecttowhichaproclamationundersub
section(1)ofsection15ofthePoliceAct,1861,isforthetime
beinginforce,whichisforthetimebeingbyanyformofwords
declaredtheprovincialgovernmentunderanyotherlawtobea
disturbedordangerousareaifinhisopinionitisnecessaryto
dosoforthemaintenanceofpublicorder,aftergivingsuch
warning,ifany,ashemayconsidernecessary,fireuponor
otherwiseuseforce,eventothecausingofdeathagainstany
personwhoisactingincontraventionofanylawororderfor
thetimebeinginforceinthesaidarea,prohibitingthe
assemblyoffiveormorepersonsorthecarryingofweaponsor
ofthingscapableofbeingusedasweapons.

Onareadingofthis,Bhargavasaidthefirstpointisthatany
commissionerofficerneednotgiveanywarningatall,becausethe
wordsareaftergivingsuchwarning,ifany.Accordingtothe
provisionsoftheCriminalProcedureCodethemagistratehastogive

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

6/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

warning,thepoliceofficerhastogivewarningeverypersonwho
dispersesanunlawfulassemblyhastogiveawarning.

PanditThakurDasBhargava.Credit:policypulse.com

Butaccordingtotheseprovisions,hecautioned,itwillbetherightof
thiscommissionedofficertoshootorkillpeopleinanymannerhe
likes.
Bhargavahadalsoarguedthatthedefinitionofwhatconstitutedan
assemblyofpeoplewasalsovague.InGurgaonsometimeback,
therewasariotanditwasafairlyseriousriot.Afterthreeorfour
days,IwenttoGurgaonbecauseIreceivedawirefromalawyer
friendofmine.Theauthoritieshadtakenuponthemselvestoarrest
hundredsofpersons.Manyofthemwerelawyers.Icalledsome
lawyerstoknowfromthemwhatthematterwasbuttheycouldnot
cometomyplacebecausetheysaidthatfivepersonscouldnot
assemble...ifsuchanordinanceismade,Ithinkacommissioned
officerwillbewithinhisrighttogointoapersonshouseandshoot
thepeoplethere.
ThememberfromEastPunjabsaidthatthewordswhoisactingin
contraventionofanylawwerealsotoovagueandanyinnocent
personcancomewithintheclutchesoflaw.Heexplainedthatunder
theprovisions,ifoneortwopersonsareengagedintheactoflooting
theycannotbefiredat.butiftheyareactinginsuchamanner
thattheymakeanassemblyoffiveormorepersons,howeverlawful,
thentheycanbefiredat.
http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

7/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

Bhargavahadfurtherstatedthatifapersonwascommittingmurder,
arsonorlootandthenhegotfiredat,Icouldunderstandit.Butto
definetheoccasioninsuchavaguemannerthatanyinnocentperson
couldbefiredat,bythesweetwillofacommissionedofficer,istoo
much.
Healsoreferredtotheanomaliesinclause(b),whichspokeaboutthe
powerstoarrestwithoutwarrantanypersonwhohascommitteda
cognisableoffence,oragainstwhomareasonablesuspicionexists
thathehascommitted,orisabouttocommitacognisableoffence,
sayingthearmedforcesofacountryusuallyhavethesamecharacter
asthepeopleofthatcountry.
Ifthepolicearebad,thenIcannotsaythatourtroopswillbefound
topossessmuchhighercharacter.Accordingtotheadmissionofthe
honourablemover,thepoliceiscorruptandpolicerulehasfailedand
thereforethemilitaryiscalledin.Whathappenedduringthe
disturbancesinPunjab?WhentheMuslimpolicefailed,theBaluchis
cameinanddidthingswhichthepolicecouldnotdo.Sofarasthese
powersareconcernedIamoftheopinionthatifthesepowerscanbe
abusedbythepolice,theycanbeabusedmuchmorebythearmed
forces.
Observingthatclause(b)coveredapersonabouttocommita
cognisableoffence,hesaidaccordingtotheprovisionsofthe
CriminalProcedureCode,nopoliceofficeisgivenpowerstoarresta
personwhoisabouttocommitacognisableoffence.
Itisaverydangerouspowerthatapersonshouldbeauthorisedto
arrestamanwhoisabouttocommitacognisableoffence..itis
toogreatandarbitraryapower,hesaid.
Bhargavahadalsoarguedthatthereisnosuchsafeguardherethat
themilitaryshoulddoaslittleharmaspossible.Onthecontrary
powerisgiventokillorbehaveinanymannertheyplease.
InthisBill,hesaid,theofficerconcernedhasbeenvestedwithavery
largediscretion.Ifhethinksnecessarytodoaparticularactforthe
maintenanceofpublicorder,hecandoso..noprosecution,suitor
otherlegalproceedingcanbebroughtagainsthim.
http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

8/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

Bhargava,whohadseentheriotsinwhatisnowPakistan,hadalso
warnedthatthisBillwillnotgoalongwayinprovidingasolutionto
thedifficulties.Onthecontrary,assoonastheemergencyisover,
therewillbesuchareignofterror,ashappenedinPunjab,whichwill
bemoreterriblethantheemergencyitselfwhenthekillingswere
goingon.
Soundinganoteofcaution,healsoobservedthatthismeasure
appliestothewholeofIndia.Thereforeitisallthegreaterreason
thatweshouldbecircumspectandnotinflictanygreathardshipon
thepeoplewhomyouarenottakingintoconsideration.Itisavery
drasticmeasure..Itreallyaffectstherightsofthepublicingeneral.
Itgivesmorepowertothearmythanweareaccustomedto.

Sikhrefugeesescapingcommunalviolencein1947.Credit:WikimediaCommons

Essentialforprovisionalgovernments
Activist,writer,lawyerandeducationist,K.M.MunshifromGujarat,
however,defendedtheBillsayingitwasessentialthattheprovincial
governmentsshouldbegiventhepowertodeclareanareadisturbed
inwhichtheycansecuretheassistanceofthemilitary.
AskedbyShibbanLalSaksenawhattheguaranteewas,thatthelaw
willnotbeusedagainstlabourmovements,hereplied:ifalabour
struggleassumessuchproportionsthatitthreatenstheexistenceof
http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

9/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

publicorderorthestate,not
onlythisActbutthewhole
forceofIndiamustbeusedto
suppressit.Irefusetobe
frightenedbywordsWe
knowwhatlabourstruggles
meaninsomehands:should
governmentsinpowerbe
madesoweakandso
frightenedinthenameofcivil
libertiesthatitmaynottake
anydrasticactionand
totter?
Asforthefearsexpressedvis

K.M.Munshi.Credit:Wikimedia
Commons

visthearmy,hesaid,I
claimforthemthatwhentheywilldischargetheirduty,theywilldoit
notasaninstrumentofaforeignpowertokeepthiscountryin
subjugation,butaspatrioticcitizenswhosesoleinterestistoseethat
lawandorderismaintained.
Inhisresponsetothedebate,thedefenceministersaidnowshortof
martiallaw,thisistheonlyalternativethatwecanresortto.
Agreeingwiththeconcernsexpressed,Singhsaid:Hardlythree
monthsagowegotourindependenceafter150yearsofslavery.Andif
wecannotmanagetheaffairsofthiscountrysuccessfullywewill
standcondemnedintheeyesoftheworld.Itisthereforeinorderto
enhancetheprestigeofthegovernmentandtosaveinnocentlives
thatitisnecessaryforustohavethesepowers.
Thelawwaspassedintheformthegovernmentwanted,anddespite
thepromiseofaoneyeartimelimit,AFSPA,inavirtuallysimilar
avatarremainsonthestatutebookstothisveryday.
Drasticandextraordinarypowers
Onememberwhoopposedthemeasureatthetime,H.V.Kamath,
saidthateventhoughthemeasurewasintendedtobetemporary,if
duringthatperiodacertainsectionofourforcesbetheythepolice
http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

10/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

orthearmyisgoingtobeinvestedwithverydrasticand
extraordinarypowers,thenitisamatterforthought.
Anticipatingthefutureimpactofthelawastheyearswentby,
Kamathsaid:
Powerisallrightsolongasitisusedforthebenefitandthegoodof
thepeople.Butareourtroopssoperfectthattheymaynotabusesuch
powersconferreduponthem?hehadasked.
HealsoreferredtotheAzadHindFauj(http://www.aazad.com/azadhind
fauj.html)ofNetajiSubhasChandraBoseinthiscontextandsaid,in

additiontoordinarymethodsofmilitarytraining,theyweregiven
whatwascalledspiritualtraining.Thatwaswhythatarmydidsuch
wonderfulthings.
When
coaxedby
Pandit
Balkrishna
Sharmato
speak
about
internal

H.V.Kamath.Credit:punjabimanch.com

aggression,Kamathreplied,intheCentralProvincesandBerar
whenceIcome,someareasweredeclaredasdisturbedordangerous
intheveryflimsiestpretext.Afterall,youallknowthattheCPand
Berarhavebeenveryfreefromcommunaldisturbances.
KamathalsosaidthatAFSPAwentagainstthespiritoffundamental
rights.Iremember,sir,ifmymemorydoesnotbetrayme,thatthe
http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

11/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

fundamentalrightsatleastsomeofwhichwereadoptedbythe
constituentassemblyonlyafewmonthsagodidregardtheprivacy
ofahomeasmoreorlesssacrosanctbuthere,sir,isameasurewhich
confersuponthearmedforcesthispowertoenterandsearchwithout
warrantanypremises,makeanyarrests,recoveranyperson,any
propertyreasonablysupposedtobestolenproperty,oranyarmskept
inthepremises.
Kamathalsosaidthatpoliceshouldnotgetthefeelingthattheyare
nottrusted.HealsosaidthattheBillwasnotbeinglegislatedinwar
time,butwhenthereispeaceinIndia.Questioningwherethe
safeguardswereforpeopleassemblingpeacefullyandtheprotection
owedtothemfromanarmyofficer,whomayhavebeenannoyedby
certaincivilianmembers,hesaid,weareclothingthearmywith
suchpowersthatwemustseethedarkestsidepossibleofthis
picture.

Whattoreadnext:

CentreDirectedto
UploadAllLawsand
AmendmentsonOfficial
Website
In"Law"

DataRevealsDeclinein
AccesstoInformation
SinceBJPCameto
Power
In"Featured"

ThreePublicSector
BanksWithHighNon
PerformingAssets
RejectedMostRTI
Requestsin201415:
Study
In"Featured"

Categories:Featured(http://thewire.in/category/featured/),Law
(http://thewire.in/category/law/),Politics(http://thewire.in/category/politics/)

Taggedas:AccesstoInformationProgrammeofCommonwealthHumanRights
Initiative(http://thewire.in/tag/accesstoinformationprogrammeofcommonwealthhumanrights
initiative/),AFSPA(http://thewire.in/tag/afspa/),AzadHindFauj(http://thewire.in/tag/azadhind
fauj/),BalkrishnaSharma (http://thewire.in/tag/balkrishnasharma/),ConstituentAsse
(http://thewire.in/tag/constituentasse/),GopalSubramanium (http://thewire.in/tag/gopal
subramanium/),H.V.Kamath (http://thewire.in/tag/hvkamath/),KMMunshi
(http://thewire.in/tag/kmmunshi/),NHRC(http://thewire.in/tag/nhrc/),PanditThakurdas

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

12/13

12/09/2016

AFSPAwasStronglyOpposedintheConstituentAssemblyDebates

Bhargava(http://thewire.in/tag/panditthakurdasbhargava/),SardarBaldevSingh
(http://thewire.in/tag/sardarbaldevsingh/),ShibbanLalSaksena (http://thewire.in/tag/shibbanlal
saksena/),VenkateshNayak(http://thewire.in/tag/venkateshnayak/)

0Comments
Recommend 1

TheWire

Share

Login

SortbyBest

Startthediscussion

Bethefirsttocomment.

ALSOONTHEWIRE

Jiopolitics:TenQuestions
ReliancesTVChannelForgot

HowWilltheSanders
RevolutionWorkifHillary

http://thewire.in/65313/afspawasstronglyopposedintheconstituentassembly/

13/13