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            REPORTABLE  

IN THE SUPREME COURT OF INDIA

CIVIL APPELLATE JURISDICTION

CIVIL APPEAL NO.11938/2016 (Arising out of S.L.P.(Civil) No.39321/2012)

Reena Banerjee & Anr. ….Appellants

Vs.

Govt. of NCT of  Delhi & Ors.                                   ….Respondents

J U D G M E N T

A.M.KHANWILKAR,J.

Leave granted.

2. This  appeal  arises  from the  judgment  of  the  High Court  of

Delhi at New Delhi in W.P.(c) No.8229/2011 dated 7th September

2012.

3. The appellants  filed an intervention application in the  High

Court,    in  a  disposed  of  suo   moto   Writ  Petition   (Civil)  No.

5621/2012.   The reliefs claimed in the application read thus:

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“ a. For an order calling for the records of the deaths that  have taken place in such homes and also for  information  pertaining  to  the  intake  of juveniles and those released since 2004-08.

b. For an order directing the authorities to conduct an  impartial  inquiry  by  constituting  an independent committee as per the provisions of the Acts regarding the deaths that have taken place  in  observation  homes  and  submitting findings to this Hon’ble Court.  

c. For an order directing strong action against the duty  bearers,  the  concerned  minister  and  the agencies working in the area of child rights who have failed to discharge their duties towards the children  and  prosecute  the  officials  who  are responsible  for  the  deaths  in  various  children homes.  

d. For an order issuing directions to the authorities to ensure all necessary infrastructure and legal entitlements  are  provided  in  the  homes  under the Juvenile Justice regarding the requirements for appropriate staffing, food, medical care and hygiene.  

  e. For an order directing the Respondents to ward compensation to the parents/guardians of those juveniles  who  have  died  in  various  Children Homes  due  to  lapse  or  negligence  of  Home Authorities.  

  f. For an order constituting permanent committee consisting of representatives of persons working on  child  rights  and  institutional  care  to supervise  and  monitor  the  functioning  of  the child-care  institutions  within  juvenile  justice administration  system  and  to  make  periodic reports.

   g. For an order requiring the Delhi Commission for Protection of Child Rights to produce all inquiry reports and findings with respect to Asha Kiran.

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   h. For an order directing the C.B.I. to take over the investigation and prosecution with respect to the allegations as set out in this petition.  

i. Pass such other order or orders as this Hon’ble Court  may  deem  fit  in  the  facts  and circumstances of the case.”

4. This  intervention  application,  however,  was  directed  to  be

delinked from the  disposed of  suo moto  Writ  Petition  and to  be

registered as a fresh Writ Petition. Accordingly, the application was

registered as W.P.(Civil) No.8229/2011.  The principal issue argued

before the High Court  was about the pitiable and pathetic condition

of  Asha  Kiran  Home (the  sole  Delhi  Government  run  Home)  for

differently  abled  men,  women  and  children.  Asha  Kiran  Home

comprises of six institutions within a complex of four buildings for

mentally retarded children and adults. The appellants highlighted

the issues such as inadequate medical treatment, medical services

and  access  to  Doctors,  skewed  ratio  of  staff  to  look  after  the

inmates,  overcrowding,  poor  distribution  and  consumption  of

dietary,  clothing,  bedding  and  other  items  and  also  about  the

abuses of various kinds to the mentally challenged persons residing

in the said Home, in particular the female residents. The appellants

essentially relied on the media reports to buttress their plea about

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the pathetic condition and the cruel  treatment meted out at  the

hands of staff members in Asha Kiran. When the matter progressed

before the High Court,  the management of  Asha Kiran agreed to

consider the suggestions given by the appellants and also to chalk

out a holistic action plea to remedy the deficiencies. They said that

they were not treating the proceedings as an adversarial litigation.

The High Court, therefore, directed the parties to convene a joint

meeting and submit a proposal about the reforms required in Asha

Kiran, if  any. The Government of Delhi, accordingly, submitted a

report about  the action already taken and proposed to be taken

thereat. The High Court in the impugned decision adverted to the

contents of the said report, which reads thus:

“6. Mr. S.D. Salwan, learned Standing Counsel appearing for the Govt. of NCT of Delhi, has placed on record the Report on action taken/proposed to be taken, which are as under:

I) The existing Administrator has been phased out and the process of appointment of a new Administrator has been initiated.  The Government is appointing Dr. V.N. Agarwal,  former  Medical  Superintendent  of Dr.Ambedkar Hospital.  He is MBBS, M.B.B.A, M.B.A, Health  Care  Administration  from  FMS,  Delhi University  and has done  a  post  graduate  Certificate course  in  Hospital  Administration.   Dr.  Agarwal, himself  being  a  medical  doctor  and  having  held administrative  position  of  one  of  the  largest Government  hospitals  would be totally  competent  to work on improvement  of  essential  services,  plight  of

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inmates, and maintenance of infrastructure and day to day  administrative  work  of  Asha  Kiran  Home.   The Administrator with a background of a medico shall be dedicated  to  reduce  vulnerability  of  inmates; prevention  of  untimely  deaths;  and  running  of  an effective medical team at the institution and organize value  added  medical  services  from  the  competent government hospitals.  One of the key purpose is to reduce deaths and increase life  span of  the existing inmates of Asha Kiran.  

II) The Government has approved formation of a strong Governing Council comprising of eminent citizens and experts  (with  core  competencies  in  techniques  of holistic  shelter  and  rehabilitation,  gender,  Human Rights and Socio-Economic Empowerment of the most marginalized sections)  for  the holistic and integrated development  and  improvement  of  management  and monitoring of  the Asha Kiran institution,  as well  as prompt and expeditious implementation of all policies and  recommendations  of  Government  appointed Committee  and  various  other  statutory  institutions, such as NHRC, NCPCR, DCPCR etc.  The process of setting up of the said Governing Council will take at least 2 weeks.  

III) Ms.  Sreerupa  Mitra  Chaudhury,  a  prominent rehabilitation social worker; a Member, Central Social Welfare Board; Chairperson, Committee for Review of National  Policy  for  Empowerment  of  Women; Chairperson, Institute for Gender Justice, Ex-National Advisor,  National  Legal  Services  Authority; Ex-Member,  Delhi  Legal Services Authority;  Ex-Chief Coordinator, Rape Crisis Intervention Centre of Delhi Police,  Founder  of  Sudinalay  Shelter  Homes  for Homeless  and  Destitute  Citizens  Living  with  Mental Disabilities and HIV/AIDS is being nominated as the Chairperson of the said Governing Council.  She is a senior and respected representative of the civil society who  has  dedicated  her  life  for  the  rescue, rehabilitation, shelter and welfare of homeless citizens, particularly,   living  with  acute  forms  of  mental disabilities.   While  selecting  the  Chairperson  of  the Governing Council, adequate care has been taken to choose  a  person  of  subject  knowledge,  integrity,

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dedication,  commitment  and  selfless  humanitarian approach  whose  exposure  of  work  has  ranged  from Civil  Society  to  State  and  Central  Government  in various  acclaimed  capacity.   The  person  who  has direct,  hands-on  experience  of   rescue,  shelter  and rehabilitation  of  abandoned/most  marginalised, poorest  of  the  poor  sections  of  citizens  living  with various  forms  of  mental  disabilities  as  well  as  vast experience  of  formulation  of  policy  initiatives  at  the highest level.  In several related matters, the Hon’ble Supreme Court and High Courts have appointed her as  advisor  and  member  of  monitoring  committees, technical  committees,  steering  committees  and empowered committees to monitor government policies and programs.    

IV) The Governing Council will be fully empowered to take decisions for improvement of the Asha Kiran Home in every manner and taking all issues pertaining to the welfare  and  upkeep  of  residents;  their  protection against  any  forms  of  assault/or  any  coercion  while they are at this home, their health, habitat, education, living  conditions,  medical  care  and  treatment  and personal grooming and hygiene will be given maximum consideration.  

V) The  Governing  Council  under  the  Chairperson,  will take  utmost  care  to  de-congest  the  home;  to rehabilitate and restore the  residents to their homes of families, or create opportunities of foster care and mainstreaming  in  the  society  or  communities;  will uphold the national and international policies and UN covenants pertaining the status of persons living with all  forms  of  mental  disabilities;  to  nurture  the environment of love, care and affection for this section; and to re-affirm the concepts  of  dignity and human rights;  to  initiate   all  such  measures  which  will ameliorate  the  existing  pain  and  congestion;  the typical  sense  alienation  and  the  symptoms  of marginalization; the said Governing Council will gather fresh energies,  resources and friends and volunteers from the civil society and try to amalgamate all those to  achieve  a  vision  of  an  integrated  and  holistic rehabilitation  shelter  home  for  the  most  needy  and

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marginalized.  It will also initiate policy level dialogues and  interdepartmental  cooperation  modules  to converge  benefits  of  various  schemes  of  government and  non-governmental  organizations;  re-write  the policy documents, rule books and manuals to cope up with  the  challenges  of  a  modern  and  contemporary world class institution.  Efforts will be made to prepare individual  care  and  support  sheet  with  micro  level interventions,  to  acquire  dignity  for  each one of  the resident.   The  Governing  Council  will  review  the Budget and analyze the present-day requirements and accordingly  place  before  the  government  for  the rationalization.  It will explore setting up of a Resident Welfare  Fund  to  augment  and  take  care  of  the employment opportunities for the residents.  

VI) The  Governing  Council  shall  be  a  decision-making body and its decisions shall be considered the ultimate and binding by the government for improvement of the essential services as well as the plight of the inmates. The  Chairperson  shall  be  competent  to direct/guide/control  the  implementation  of  policies and proposals and shall be a face and a voice of the so far neglected institution.  The Administrator and the Superintendents  shall  be  responsible  to  assist  the Governing Council and the Chairperson to spearhead the proposed developmental activities.   

VII) The Government has approved proposed development of  a  Terms  of  Reference  for  the  functioning  of  the Governing  Council,  which  shall  be  read  with  a mandate and a vision document.  

VIII) The department had already proposed appointment of 94 House Aunties and appointments shall be made at the earliest.  After the appointments, proper training will be imparted through the Panel of Experts whereby the newly inducted House Aunties shall be sensitized on issues pertaining to health,  hygiene and medical care.  The Governing Council will promptly act to train the  staff  members  with  the  help  of  existing governmental  and  non-governmental  training institutions. Special attention will be given to integrate the voluntary groups in training programs.

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IX) The government has already commissioned the activity of  a  new  Asha  Kiran  Building  and  the  DSIIDC empanelled Architect,   Mr.  Prabhat, involved in Half Way Home construction have been taken on board to assist in formulation of a scientific construction plan, with  national  and  international  rehabilitative standards.   With  regard  to  infrastructural development, it is proposed to shift 100 residents to a new location, i.e. Nirmal Chaya.  The complex of Asha Kiran  will  undergo  radical  changes.   Four  new multistory  cottages,  having  3  floors,  will  be constructed.   Each cottage will  house  100 residents thereby catering to 400 residents.  Mr. Prabath, is very well versed and acquainted with the requirement of the residents of Asha Kiran will design the new cottages, in consultation with the Governing Council as well as the  government  appointed  committee  to  ensure  all necessary inputs are made available for the benefits of the home.  It would be pertinent to state that earlier sanction has been given to more than 15 times of Civil and other Works.  The sanctioned amount is about Rs. 5,50,00,000/-.   This  would need further  revision  as additional  floors  are  being  added  in  the  four  new cottages.   Several  rounds  of  presentations  and meetings have already taken place in the last one year, to create an integrated and holistic space for cluster homes and apartments  for  the beneficiaries  of  Asha Kiran.  

X) The  list  submitted by  Applicants  contains  names  of private  psychiatrists.   Since,  Dr.  Nimesh  Desai (Director,  IHBAS, the statutory regulatory institution for all forms of mental disabilities) and Ms. Sreerupa Mitra Chaudhury ( a mental health activist and expert) are  already  part  of  the  Government  appointed committee,  some  more  psychiatrists  on  board,  is unnecessary inclusion.  

XI) The women and child health specialists from nearby Government  hospitals  are  visiting  the  institution  on regular basis; therefore, adding names of some more is not required.

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XII) The government has instructed the Governing Council to  constitute  an  Advisory  Expert  Group  Panel  for regular  advice,  academic  assistance,  technical  and knowledge  support  and  for  creation  of  voluntary training opportunities at the institution and to make them  part  of  a  new  action  plan  that  shall  be formulated  soon  by  the  Governing  Council.   The matter will be referred to the Advisory panel of experts, which  would  also  include  the  first  four  persons suggested by the petitioners, viz. Ms. Radhika Alkazi, Merry  Barua,  G.  Shyamala  and Shanti  Aulak.   The Advisory panel of experts will provide technical advice and  shall  be  knowledge  partners  of  the  Governing Council.  The Governing Council shall be authorized to expand or empanel more and more experts of proven expertise from various fields to add value.  

XIII) Segregation  of  border  line  and  mild  cases  from moderate severe and profound category cases shall be done on war footing.  Efforts will be made to absorb the Border and Mild category cases in the main stream by sending them to regular schools, NGO Institutions and incase of  adults, they will  be employed as ‘peer mentor’  to  work  upon  the  other  residents. Remuneration would be given to such “peer mentors” at  par  with  the  policy  under  NREGA  or  any  such scheme.   Bank  accounts  of  such  mild  to  moderate residents will be opened wherein their salary shall be deposited, for their use and benefit.  

XIV) The  Government  is  strengthening  staff  members  by providing special training, workshops and sensitizing them  with  all  issues  pertaining  to  the  different categories of residents (4 categories).  

XV) The Government will  prepare a curriculum or co-opt an  already  existing  curriculum  to  train  the  House Aunties  and  Staff  of  Asha  Kiran  and  for  this,  the Advisory Panel’s advise and technical input, in-house training  and  also  developing  administrative  acumen shall be taken. With is exercise, the house aunties as well  as  the  other  staff  will  get  sensitized  to  every aspect  of  care  to  be  provided  to  the  residents.  The advisory Panel will develop the curriculum/content for the  technical  course  proposed  for  professional

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qualification  of  all  house  aunties  and other  staff  of Asha  Kiran  home.   The  ‘Sahyogi’   program  of  the National  Trust,  suitably  modified  by  the  Advisory Panel,  will  be  implemented  for  the  new  as  well  as existing house aunties.  

XVI) The  department  is  contemplating  a  revised  salary structure  with  guarantee  of  minimum wages  to  the personnels employed at Asha Kiran the unpaid dues of the Staff shall be settled within 4-6 weeks.   

XVII) The  neighbouring  government  hospitals  are  being attached to Asha KIran for providing ongoing medical care in case the medical care centre situated within the complex is unable  to cater  to the ailment.   The team of psychiatrists, pediatricians, gynecologists and general  physicians  from  these  hospitals  will  pay regular and routine duties for the care of the residents. The  entire  health  record  will  be  digitalized  for  easy reference in case of any emergency.

XVIII) The  Department  is  contemplating  engagement  of special  educators  for  occasional  training  and consultation.  

XIX) With regard to inspection/supervision,  an inspection committee  constituted  under  the  Section  35  of  the J.J.Act as well as the committee under the DCPCR and NCPCR  are  at  liberty  to  perform  the  statutory obligations  and  their  reports  shall  be  taken  by  the department  of  social  welfare  as  well  as  the  staff  of Asha Kiran in the right direction.    The Government has also requested the Govt. appointed Committee and will  call  upon  the  Governing  Council  to undertake/conduct surprise visits to the institution on odd hours and record the activities and statements of inmates.  

XX) For  proper  surveillance  and  prevention  of  any untoward incident, CCTV system is being   installed at important places.   

XXI) 26 new toilets are under construction in the home and they  shall  be  made  functional  by  30.08.2012.   The requirement of the additional toilets was considered by

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the department in June-July 2011 and the same have been duly implemented.    In so far as renovation of existing infrastructure is concerned, including toilets, the process was initiated in December  2010 and an amount of Rs. 2.50 crores has been spent.  

XXII) The government is contemplating to make Asha Kiran Home  an  autonomous  body  with  a  highly  effective Governing Council.  The appointment of the governing council  at  this  stage  by  the  government  with  Ms. Sreerupa  Mitra  Chaudhury  as  the  Chairperson  is  a step in the right direction.  

XXIII) The  chairperson,  backed  by  the  Governing  Council and the Advisory Groups shall take decisions related to amendments in policy of admission of new cases; and  re-location  of  the  existing  or  new  residents depending on their merit, criterion, requirements etc.; as well  as restoration,  re-integration,  mainstreaming and rehabilitation.  A policy will be developed to assist the homeless, people of the street and the poorest of the poor who have no income.  Consultative meetings and  inter-departmental  dialogues  shall  be  held  to make  space  for  the  poor  and  the  most  deserving. Maximum focus will be laid on the access to the most marginalized.   In  this  connection,  fresh  intake modalities and rule books shall be amended.”  

5. After  adverting  to  the  commitment  made  by  the  State

Government in the aforesaid report, the High Court opined that the

proposed action would go a long way in improving the condition of

Asha Kiran Home. On that basis, the High Court disposed of the

matter  by  expressing  a  hope that  the  Authorities  concerned  will

implement  the  proposed  action  within  assured  time  frame.  As

regards the suggestions given by the appellants in respect of the

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proposed  action,  the  High  Court  clarified  that  the  Government

Authorities may consider the same.  

6. The appellants, however, have approached this Court by way

of present appeal under Article 136 of the Constitution of India. The

principal grievance of the appellants is that the High Court ought

not  to  have  mechanically  accepted  the  suggestions  given  by  the

State Government in toto; and more particularly because the past

experience  shows  that  the  Authorities  had  never  fulfilled  their

commitments  made  before  the  High  Court  in  previous  Writ

Petitions.  Further,  there  was  an  imminent  need  to  drastically

improve  the  condition  of  Asha  Kiran  for  mentally  challenged

persons, keeping in mind the suggestions given by the appellants

before the High Court. The High Court ought to have examined the

suggestions  presented  in  writing  by  the  appellants.  Besides  the

appellants,  by way of  rejoinder  affidavit  filed in this  Court,  have

disputed the correctness of the factual position about the condition

of Asha Kiran Home.  

7. The respondents 1 to 7 (State Government) have filed affidavit

in this Court on 19th April, 2014, disclosing the factual information

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about the action taken in furtherance of the proposal submitted to

the  Delhi  High  Court  and  assured  to  take  measures  to  provide

better facilities to the inmates  and  of improving the condition of

Asha  Kiran Home.  The  respondents  1  to  7  then  filed  additional

affidavit sworn in August 2015, giving information about the action

taken for improving the conditions in Asha Kiran Home and also

having provided better facilities to the inmates. The said affidavit

also  explains  the  aspects  noted  in  the  report  submitted  by  the

Senior Advocate on 26th August 2015, regarding the present status

in Asha Kiran Home for mentally challenged persons. The additional

affidavit,  inter  alia  highlights  the  extent  of  improvisation  of

infrastructure,  the  living  conditions  of  the  inmates  in  the  Home

including  about  the  programmes undertaken for  providing  social

security  to  the  inmates.  It  is  stated  that  the  new  activities

introduced by  the  Management  have  expanded the  opportunities

and exposure to the inmates in relation to new trades and training

programmes. The affidavit also deals with the issues noted by this

Court in its order dated 10th February 2015 and 26th March 2015,

in particular. The thrust of the latest affidavit of the respondents is

that  the  living  conditions  of  the  inmates  in  the  Home  has

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considerably  improved  including  of  providing  new  facilities  and

opportunities  to  them.  Similarly,  the  medical  care  and  health

structure  as  well  as  exposure  to  games  and  sports  has  been

strengthened.  It  is  stated  that  the  activities  undertaken  by  the

Home under the guidance and supervision of the Governing Council

has been acclaimed even by the media.  Further more,  Asha Kiran

has become the first Government Institution in the welfare sector in

Delhi, to be awarded ISO 9001: 2008 for Quality Management in

September  2014.  The  new  initiatives  taken  by  the  Governing

Council  have  been appreciated by one and all.  Significantly,  the

factual position stated in this affidavit has not been countered.  

8. Considering the factual position stated in this latest additional

affidavit and which has not been controverted, it must follow that

the issues agitated by the appellants before the Delhi High Court

have  been  substantially  redressed.  In  case  there  is  still  any

subsisting  deficiency  or  shortcoming  or  a  possibility  of  further

improvisation,  it  is  always  open  to  the  appellants  to  give  their

suggestions to the Governing Council.  The appellants are  free to

do  so.   There  is  no  reason  why  the  Governing  Council  will  not

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consider those suggestions and act upon the same in right earnest,

if the same are reasonable and achievable. This proceeding should

come to an end on this note.

9. However,  this  Court  vide  order  dated 26th March 2015 had

observed that the pitiable condition as obtained in Asha Kiran, in

relation to which the matter had travelled to the Delhi High Court

may be true in respect of Homes in other parts of the country. The

Court,  therefore,  issued notice  to all  the State  Governments and

Union Territories and directed them to file their response about the

ground reality  prevailing in their  respective  State  with particular

reference to the State obligations enunciated in The Persons with

Disabilities  (Equal  Opportunities,  Protection  of  Rights  and  Full

Participation) Act, 1995 (hereinafter referred to as the 1995 Act). In

response  to  the  notice,  in  all  18  affidavits  have  been  filed  by

different  States/Union  Territories  giving  particulars  about  the

prevailing position in their respective State/Union Territory.

10. Having given our anxious consideration to those affidavits, we

are  of  the  view that  analyzing  the  affidavit  of  each State/Union

Territory would be a cumbersome exercise, if not entail in entering

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upon a roving enquiry. Be that as it may, we are of the view that a

comprehensive mechanism and dispensation is  predicated in the

1995 Act and the Rules framed thereunder. Besides the 1995 Act,

even the Mental  Health Act,  1987 (hereinafter  referred to as the

1987  Act)  postulates  a  dispensation  mandating  the  appropriate

Government  to  establish  institutions  for  the  care  of  mentally

challenged  persons  and   maintenance  and  management  thereof

with a view to create an equal opportunity and social security to

them. For that, an organizational structure has been provided for

the Central Government and Union Territories on the one hand and

the respective State Governments on the other. The Authorities so

created have  been fastened with a duty to ensure that the Homes

are  maintained  properly;  and  the  inmates  as  well  as  outdoor

patients  are  looked  after  properly  and  also  to  create  equal

opportunity  and  social  security  in  the  matter  of  education  and

employment  of  such persons.  To wit,  Section 3  of  the  1995 Act

mandates that the Central Government shall constitute a body to

be  known  as  Central  Coordination  Committee  to  exercise  the

powers conferred on it and to perform the functions assigned to it

under the Act. The functions of the said Committee are delineated

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in  Section  8  of  the  Act,  which  not  only  require  it  to  develop  a

national  policy  to  address  issues  faced  by   the   persons  with

disabilities but also to review and coordinate the activities of all the

Departments  of  Government  and  other  Governmental  and

non-Governmental  Organisations  which  are  dealing  with  matters

relating  to  persons  with  disabilities.   The  Central  Coordination

Committee  is  made  responsible  to  oversee  and  monitor  the

functioning of the Central Executive Committee constituted by the

Central Government under Section 9 and to perform the functions

assigned to it under the Act. On similar pattern, under Chapter III,

the  State  Coordination  Committee  is  constituted  by  the  State

Government to exercise the powers conferred on it and to perform

the functions assigned to it  under  the Act.  The functions of  the

State  Coordination  Committee  are  more  or  less  identical  to  the

functions of the Central Coordination Committee which, however is

confined to review and monitoring the situation within the State.

Section 19 of the Act mandates that the State Government shall

constitute  a  committee  to  be  known  as  the  State  Executive

Committee to perform the functions assigned to it under the Act.

The functions of the State Executive Committee are similar to that

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of  the Central  Executive Committee but operate only within that

State and in respect of Homes established by the State Government

or permitted by the State  Government for  the benefit  of  persons

with  disabilities.  Besides  creating  the  vertical  organizational

structure at the Centre and State level respectively, the 1995 Act

also delineates the functions of the respective Authority. As regards

the Apex Coordination Committee - be it  at  the Central or State

level  -  the  Committee is  expected to  serve as the focal  point  on

disability  matters  and  facilitate  the  continuous  evaluation  of  a

comprehensive  policy  towards  solving  the  problems  faced  by

persons  with  disabilities.  Besides  this  general  obligation,  the

specific  functions  of  the  Central  Coordination  Committee  are  as

follows:

“8.  Functions  of  the  Central  Co-ordination Committee:-   

 (1) . . . . . . . . . . .  .

(2)  In  particular  and  without  prejudice  to  the generality of the foregoing, the Central Co-ordination Committee  may  perform  all  or  any  of  the  following functions, namely:-  

(a)  review  and  coordinate  the  activities  of  all  the Departments of Government and other Governmental and  non-Governmental  Organizations  which  are dealing  with  matters  relating  to  persons  with disabilities;

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(b) develop a national policy to address issues faced by persons with disabilities;  

(c) advise the Central Government on the formulation of policies, programmes, legislation and projects with respect to disability;  

(d) take up the cause of persons with disabilities with the  concerned  authorities  and  the  international organizations with a view to provide for schemes and projects  for  the  disabled  in  the  national  plans  and other  programmers  and  policies  evolved  by  the international agencies;  

(e) review in consultation with the donor agencies their funding policies from the perspective  of  their impact on persons with disabilities;  

(f)  take  such  other  steps  ensure  barrier-free environment  in  public  places,  work-places,  public utilities, schools and other institutions;  

(g)  monitor  and evaluate  the  impact  of  policies  and programmes designed for  achieving equality  and full participation of persons with disabilities;  

(h)  to  perform  such  other  functions  as  may  be prescribed by the Central Government.”

11. The functions of the State Coordination Committee are also to

serve as the State focal point on disability matters and to facilitate

the  continuous  evaluation  of  a  comprehensive  policy  towards

solving the problems faced by persons with disabilities. Besides this

general obligation, the State Coordination Committee is expected to

discharge the following functions :

“18.  Functions  of  the  State  Co-ordination Committee –

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(1) . . . . . . . . . . . . . . . .  

(2)  In  particular  and  without  prejudice  to  the generality  of  the  foregoing  function  the  State Co-ordination  Committee  may,  within  the  State perform all or any of the following functions, namely:-

(a)  review  and  coordinate  the  activities  of  all  the Departments of Government and other Governmental and  non-Governmental  Organizations  which  are dealing  with  matters  relating  to  persons  with disabilities;  

(b) develop a State policy to address issues faced by persons with disabilities;  

(c) advise the State Government on the formulation of policies,  programmes,  legislation  and  projects  with respect to disability;  

(d)  review  in  consultation  with  the  donor  agencies, their  funding  policies   from the  perspective  of  their impact on persons with disabilities;

(e)  take  such  other  steps  to  ensure  barrier-free environment  in  public  places,  work  places,  public utilities,  schools and other institutions;  

(f)  monitor  and  evaluate  the  impact  of  policies  and programmes designed for  achieving equality  and full participation of persons with disabilities;  

(g)  to  perform  such  other  functions  as  may  be prescribed by the State Government.”

12. The functions of the Central Executive Committee in terms of

Section 10 of 1995 Act, is to carry out the decisions of the Central

Coordination Committee as its Executive Body; and also to perform

such  other  functions  as  may  be  delegated  to  it  by  the  Central

Coordination Committee. Section 12 of the Act enables the Central

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Executive  Committee to  associate  with itself  any person in such

manner for  such purposes as may be prescribed by the Central

Government, whose assistance or advice it may desire to obtain in

performing any of its functions under the Act. A person associated

with the Central Executive Committee shall have the right to take

part in the discussions of the Central Executive Committee relevant

to that purpose, but shall not have a right to vote at a meeting of

the  said  committee,  and  shall  not  be  a  member  for  any  other

purpose.  Similar  dispensation  is  predicated  in  respect  of  State

Executive Committee, which has to function as the Executive Body

of the State Coordination Committee and is responsible to carry out

the decisions of the State Coordination Committee and to perform

such  other  functions  as  may  be  delegated  to  it  by  the  State

Coordination Committee.  Even the State Executive Committee can

associate any person whose assistance or advice may be required in

performing any of the functions of the State Executive Committee,

in terms of Section 22 of the 1995 Act.

13. Besides  the  dispensation  provided  in  the  1995  Act  for  the

implementation of the avowed objectives of  the said Act,  we find

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that the 1987 Act also provides for a comprehensive dispensation to

fulfill the objectives of that Act. Under the latter Act, the Central

Authority for Mental Health Services is established by the Central

Government and the State Authority for Mental Health Services is

established  by  the  concerned  State  Government.  The  expression

“Mental  Health Services”  has been defined in the Explanation to

Section 3 of 1987 Act. The functions of this Authority have been

delineated in Sub-section (3) of Section 3 of the Act reads thus:-

“ 3. Central Authority For Mental Health Services. –

(1)………………………………………..

(2)………………………………………..  

(3)  The  Authority  established  under  sub-section  (1) shall –  

(a) be in charge of regulation, development, direction and  co-ordination  with  respect  to  Mental  Health Services under the Central Government and all other matters which, under this Act, are the concern of the Central  Government  or  any  officer  or  authority subordinate to the Central Government.  

(b) supervise the psychiatric hospitals and psychiatric nursing  homes  and  other  Mental  Health  Service Agencies  (including  places  in  which  mentally  ill persons may be kept or detained) under the control of the Central Government;  

(c)  advise  the  Central  Government  on  all  matters relating to mental health; and  

(d)  discharge  such  other  functions  with  respect  to matters  relating  to  mental  health  as  the  Central Government may require.

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Explanation.-  For  the  purposes  of  this  section  and section 4, "Mental Health Services" include, in addition to  psychiatric  hospitals  and  psychiatric  nursing homes, observation wards, day-care centers, in patient treatment in general hospitals, ambulatory treatment facilities and other facilities, convalescent homes and half-way-homes for mentally ill persons.”  

As regards the State  Authority,  Section 4 of  the 1987 Act  reads

thus:  

“4. State Authority For Mental Health Services. –  

(1) . . . . . . . . . . . . . . . . . .

(2)  . . . . . . . . . . . . . . . .  .

(3)  The  Authority  established  under  sub-section  (1) shall -

(a)  be  in  charge  of  regulation,  development  and co-ordination with respect  to Mental  Health Services under  the  State  Government  and  all  other  matters which,  under  this  Act,  the  concern  of  the  state Government or any officer or authority subordinate to the State Government;  

(b) supervise the psychiatric hospitals and psychiatric nursing  homes  and  other  Mental  health  Service Agencies  (including  places  in  which  mentally  ill persons may be kept or detained under the control of the State Government :  

(c) advise the State Government on all matters relating to mental health ; and

(d)  discharge  such  other  functions  with  respect  to matters  relating  to  mental  health  as  the  State Government may require.”

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14. Section 5 of the 1987 Act obligates the Central Government or

the State Government as the case may be, to establish or maintain

psychiatric  hospitals  and  psychiatric  nursing  homes  for  the

admission,  treatment  and  care  of  mentally  ill  persons  at  such

places as it thinks fit within the limits of its jurisdiction. Section 5

reads thus:  

“5.  Establishment  or  maintenance  of  psychiatric hospitals and psychiatric nursing homes. – (1) The Central Government may, in any part of India, or the state  government  may,  within  the  limits  of  its jurisdiction,  established  or  maintain  psychiatric hospitals  or  psychiatric  nursing  homes  for  the admission, treatment and care of mentally ill persons at such places as it thinks fit; and separate psychiatric hospitals  and  psychiatric  nursing  homes  may  be established or maintained for, -  

(a) those who are under the age of sixteen years;  

(b) those who are addicted to alcohol or other drugs which lead to behavioural changes in a persons ;  

(c) those who have been convicted of any offence; and  

(d) those belonging to such other class or category of persons as may be prescribed .  

(2) Where a psychiatric hospital or psychiatric nursing home  is  established  or  maintained  by  the  Central Government,  any  reference  in  this  Act  to  the  State Government  shall,  in  relation  to  such  hospital  or nursing  home,  be  construed  as  a  reference  to  the Central Government.”

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15. Section 10 of the 1987 Act postulates that every psychiatric

hospital and psychiatric nursing home shall be maintained in such

manner and subject to such conditions as may be prescribed. The

manner  and  conditions  of  maintaining  psychiatric  hospital  and

psychiatric  nursing home has been spelt  out  in Rule  20 framed

under the said Act. The same reads thus:

“20.  Manner  and  conditions  of  maintaining psychiatric hospital or psychiatric nursing homes.- Every  psychiatric  hospital  or  nursing home shall  be maintained subject to the condition that,-

(A) such hospital or nursing home is located only in an area approved by the local authority;

(B)  such  hospital  or  nursing  home  is  located  in  a building  constructed  with  the  approval  of  the  local authority;

(C) the building, where such hospital or nursing home is situated, has sufficient ventilation and is free from any pollution which may be detrimental to the patients admitted in such hospital or nursing home;

(D) such hospital or nursing home has enough beds to accommodate the patients;

(E)  the  nurses  and  other  staff  employed  in  such hospital  or  nursing  home  are  duly  qualified  and competent to handle the work assigned to them;

(F) the supervising officer-in-charge of such hospital or nursing  home  is  a  person  duly  qualified  having  a post-graduate qualification in psychiatry recognized by the Medical Council of India.”

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16. Section 13 of the 1987 Act envisages that an Inspecting Officer

may,  at  any  time,  enter  and inspect  any  psychiatric  hospital  or

psychiatric  nursing  home  and  require  the  production  of  any

records, which are required to be kept in accordance with the Rules

made in this behalf, for inspection.

17. Suffice it  to observe that the 1995 Act as well  as 1987 Act

make ample provision for not only establishment of Homes for the

admission,  treatment  and  care  of  mentally  ill  persons  but  also

about the maintenance and conditions and facilities to be provided

to the inmates, to ensure that the Homes are properly equipped and

are being run in accordance with the statutory scheme. Authorities

for  monitoring  and  supervision  are  also  in  place  (Central

Coordination  Committee  at  the  top  of  the  pyramid  in  so  far  as

Homes established by the Central Government or permitted to be

established by it). Similarly, for the Homes established by the State

Government  or  permitted  to  be  established  by  it,  the  State

Coordination  Committee  is  at  the  top  of  the  pyramid  of  the

organizational  structure  within  the  State.  The  provisions  in  the

1987 or 1995 Act and Rules framed thereunder, clearly articulate

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the  manner  of  providing  proper  conditions  in  Hospitals/Homes

established  under  the  concerned  enactment  and  also  for  its

maintenance.

18. In  that,  Chapter  V  of  1987  Act  provides  for  inspection,

discharge,  leave  of  absence  and removal  of  mentally  ill  persons.

Chapter VII stipulates the liability to meet the cost of maintenance

of  mentally  ill  persons  detained  in  psychiatric  hospital  or

psychiatric nursing home. Chapter VIII mandates that mentally ill

persons to be treated with dignity and protection of their human

rights. Chapter IX of 1987 Act provides for penalties and procedure.

Section 82 provides for penalty for establishment or maintenance of

psychiatric hospital or psychiatric nursing home in contravention of

Chapter  III.  Section 85 is  a  general  provision for  punishment  of

other offences. Section 94 is a Rule making power of the Central

Government and State Government. Amongst others, it is open to

make Rules with regard to the following matters:

“94.  Power  of  Central  Government  and  State Government to make rules. –

(1) The  Central  Government  may,  by  notification, make rules providing for the qualifications of persons who  may  be  appointed  as  Mental  Health  Authority under section 3 and the terms and conditions subject

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to  which they may be appointed  under  that  section and all other matters relating to such authority.  

(2) Subject to the provisions of sub-section (1), the State Government,  with the previous approval of the Central Government may, by notification, make rules for carrying out the provisions of this Act:

Provided that the first rules shall be made by the Central Government by notification.  

(3)  In  particular,  and  without  prejudice  to  the generality  of  the  foregoing  power,  rules  made under sub-section  (2)  may  provide  for  all  or  any  of  the following maters, namely:-  

(a) the qualifications of persons who may be appointed as  Mental  Health  Authority  and  the  terms  and conditions  subject  to  which  they  may  be  appointed under section 4 and all other matters relating to such authority;  

(b) the class or category of persons for whom separate psychiatric  hospitals  and psychiatric  nursing  homes may be established and maintained under clause (d) of sub-section (1) of section 5;  

(c) . . . . . . . . . . . . . . . . . . . . .. .  

(d) . . . . . . . . . . . . . . . . . . . . . . .

(e) . . . . . . . . . . .  . . . . . . . . . . . .  

(f) the minimum facilities referred to in the proviso to sub-section (5) of section 9 including,  –  

(i) psychiatrist-patient ratio;

(ii) other medical or para-medical staff;  

(iii) space requirement;  

(iv) treatment facilities; and  

(iv). equipment:  

(g) the manner in which and the conditions subject to which  a  psychiatric  hospital  or  psychiatric  nursing home shall be maintained under section 10;

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(h)  . . . . . . . . . . . . . . . . . ..  

(i)  the manner in which records shall  be maintained under sub-section (1) of section 13.

(j) the facilities to be provided under section 14 of the treatment of a mentally ill person as an out-patient;  

(k). . . . . . . . . . . . . . . . . . .

(l)  the qualification of persons who may be appointed as  Visitors  and  the  terms and conditions  on  which they  may be  appointed,  under  section  37  and their functions;

(m)  . . . . . . . . . . . . . . . . . .  

(n) any other matter which is required to be, or may be, prescribed.”

19. We have  already adverted to  Rule  20 of  the  Rules  of  1990

providing for the manner of maintenance of psychiatric hospital and

psychiatric nursing home. Besides that provision, it may be useful

to  refer  to  Chapter  V  of  the  same  Rules  of  1990,  providing  for

minimum  facilities  for  treatment  of  patients  in  the  psychiatric

hospital and psychiatric nursing home.  

20. Reverting to the 1995 Act, there are ample provisions in this

Act  to  ensure  proper  functioning  of  the  Homes  accommodating

mentally  challenged persons.  This  Act,  no  doubt,  deals  with the

aspirations  of  persons  inflicted  with  disability  generally.  The

expression  “disability”  is  defined  in  Section  2(i)  which  includes

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mental  retardation  and  mental  illness.  The  regime  for  proper

maintenance and upkeep of the Homes established under this Act

for  mentally  challenged persons,  would apply proprio vigore. The

appropriate  Government  is  not  only  required  to  establish  such

Homes but also to create an environment to impart education to the

inmates  as  predicated  in  Chapter  V  of  the  said  Act  and  also

opportunities of employment for the inmates in terms of Chapter VI.

Chapter  VII  of  the  1995  Act  deals  with  affirmative  action  and

Chapter VIII stipulates measures for non-discrimination. Chapter IX

of  the  Act  obligates  the  appropriate  Government  and  Local

Authorities to promote and sponsor research on matters referred to

therein. Chapter XI provides for establishment of an institution for

persons with severe disabilities by the appropriate Government. The

Chief  Commissioner  and  the  Commissioners  For  Persons  with

Disabilities are required to be appointed for overseeing the stated

matters including regarding the conditions  of  nursing Homes for

mentally ill persons.

21. As the attention of this Court was invited to issues concerning

institutions established under the 1995 Act in different states,  we

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would  first  deal  with  such  institutions.   The  concerned

States/Union  Territories  have  filed  affidavit  disclosing  the

conditions prevailing in the Homes established under the 1995 Act

within their jurisdiction. All those  affidavits be placed before the

Central Coordination Committee established under the 1995 Act.

Similarly, the affidavit of the State concerned be placed before the

State  Coordination  Committee  of  the  concerned  State.  The  said

Authorities  have  ample  power  to  monitor  and  evaluate  the

implementation  of  the  programmes  including  to  review  and

coordinate with the appropriate Government on matters relevant for

improvisation of the conditions of the Home within the State or for

introducing welfare measures for the inmates therein. Section 8 of

1995 Act obligates the Central Coordination Committee to review

and  coordinate  the  activities  of  all  the  Departments  of  the

Government  and  other  Governmental  and  non-Governmental

Organizations which are dealing  with matters relating to persons

with  disabilities.  The  Central  Coordination  Committee  also

discharges an advisory role including to develop a national policy to

address issues faced by persons with disabilities. It has to advise

the  Central  Government  on  the  formulation  of  policies,

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programmes, legislation and projects with respect to disability.  As

the factual position stated in the affidavits filed by the respective

State/Union Territory before this Court will become available to the

Central Coordination Committee, it will be in a better position to

formulate a comprehensive  national policy on matters relevant to

address the issues.   It may develop a national policy or modify the

existing  national  policy,  programmes  or  schemes,  as  may  be

required. That  in turn can be implemented at the micro level. The

recommendations  to  be  made  by  the  Central  Coordination

Committee  at  the  micro  level   must  ideally  focus  on  zone  wise

necessity of the four regions of the country and in particular State

wise  requirements.  Further,  on  identifying  issues  about

non-implementation  or  non-compliance,  the  concerned  State

Coordination  Committee  can  be  directed  by  the  Central

Coordination Committee in exercise of its power under Section 23 of

the 1995 Act. Section 23 of the 1995 Act reads thus:  

“23. Power to give directions. – In the performance of its functions under this Act,-  

(a)  the  Central  Co-ordination  Committee  shall  be bound by such directions in writing,  as the Central Government  may  give  to  it;  and  (b)  the  State Co-ordination  Committee  shall  be  bound  by  such

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directions  in  writing,  as  the  Central  Co-ordination Committee or the State Government may give to it:

Provided  that  where  a  direction given  by  the  State Government is inconsistent with any direction given by the Central Co-ordination Committee, the matter shall be referred to the Central Government for its decision”.

Thus,  direction  issued  by  the  Central  Coordination  Committee

would be binding on the concerned State Coordination Committee.

In case, direction given by the State Government to the concerned

State Coordination Committee is in any manner inconsistent with

the  direction  given by  the  Central  Coordination  Committee,  that

matter must be referred to the Central Government for its decision,

as mandated by the proviso to Clause (b) of Section 23 of the 1995

Act. This exercise be completed  within a reasonable time but not

later than six months.   

22. In addition, the Secretary of the concerned Department of the

respective  State/Union  Territory  must  place  the  affidavit  filed  in

this  Court  before  the  State  Coordination  Committee  of  the

concerned State,  who in turn must undertake similar exercise of

evaluation of the conditions of the local Homes and take remedial

measures within a reasonable time but not later than six months.

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The direction so issued by the State Coordination Committee to the

local  institution/Home  established  under  the  1995  Act  must  be

forwarded  contemporaneously  to  the  Central  Coordination

Committee for information so that even the Central Coordination

Committee would be abreast of that development,  which can be

reckoned  by  it  while  issuing  direction  to  the  concerned  State

Coordination Committee.

23. From the legislative scheme of 1995 Act, it is amply clear that

the  State  Coordination  Committee  is  primarily  responsible  for

ensuring compliance of  the mandate regarding the infrastructure

and other facilities to be provided in the Homes established under

the 1995 Act and also for overseeing that the same are properly

maintained  from time to  time  and comply  with  the  policies  and

programmes designed for achieving equality and full participation of

persons with disabilities. The provisions of the 1995 Act provide for

checks and balances for which hierarchy of Authorities have been

created to ensure that persons with disabilities are provided with

opportunity  of  full  participation and equality  in  the  region.  That

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being the obligation of the State,  must be  implemented through

these Authorities.  

24. Besides the State  Coordination Committee in the concerned

State is made primarily responsible for ensuring that institutions

which  fulfill  all  the  criteria  alone  are  established  and  properly

maintained as per the specified norms, the Central  Coordination

Committee is also equally responsible to ensure that the policies

and programmes designed for achieving full participation of persons

with disabilities is taken to its logical end by all the duty holders

without  any  exception.  It  is  for  that  reason,  the  Central

Coordination Committee is fastened with the function of review and

coordination of activities of all the Departments of the Government

and  other  Governmental  and  non-Governmental  Organisations

which are dealing  with matters relating to persons with disabilities;

and including bestowed with the power to issue directions in terms

of  Section  23  of  the  Act  -  which  are  binding  on  the  State

Coordination  Committee.  Failure  to  comply  with  such  directions

must be taken serious note of by the concerned State Government.

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25. Further, the Secretary of the Union of India, Ministry of Health

and Social Welfare shall  be personally responsible for monitoring

and  overseeing  the  progress  and  action  taken  by  the  Central

Coordination  Committee  in  respect  of  establishments  registered

under  the  1995  Act  and  under  the  control  of  the  Central

Government.

26. The  Authorities  may  explore  the  possibility  of  using  IT

Technology for capturing and retrieving real  time information about

the  conditions  of  concerned  institution,  which  will  facilitate  the

Authority   to  closely  monitor  the  conditions  of  the  concerned

hospital/Home and the facilities made available to the inmates.

27. In our opinion,  six months time frame given to the Central

Coordination  Committee  and  the  concerned  State  Coordination

Committee is sufficient to enable them to  take necessary remedial

measures and ensure that deficiencies in the respective institutions

established under the 1995 Act are cured within such period. In

addition  to  the  issues  that  have  come on record in  the  form of

affidavit of the concerned  State  and also other material  which

has come  on  record  in  the present proceedings or any further

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inputs  to  be  received  by  the  Committee(s)  and  including  after

conducting  inspection  of  the  institution(s),  the  concerned

Committee/Authority  must take sufficient measures to remedy the

deficiencies within the time frame of not later than six months.  

28. The Chairperson of  the  State  Coordination  Committee  shall

submit compliance report not later than eight months from today in

the Registry of this Court after providing advance copy thereof to

the  Central  Coordination  Committee.  The  Central  Coordination

Committee shall then submit State/Union Territory wise report with

its comments,  if  any,  within ten months in the Registry of  this

Court.  

29. In so far as hospitals and nursing homes established under

the  1987  Act,  similar  procedure  can  be  followed.  All  the

affidavits/materials filed in this proceedings be made available to

the Central Authority for Mental Health Services. The affidavit of the

concerned State be additionally  forwarded to the respective State

Authority  for  Mental  Health  Services.  The  Central  Authority  for

Mental  Health  Services  shall  cause  to  inspect  and  evaluate  the

conditions of the psychiatric hospital and psychiatric nursing home

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and other Mental Health Service Agencies under the control of the

Central Government. Similarly,  the concerned State Authority for

Mental  Health  Services  shall  cause  to  inspect  and  evaluate  the

conditions  of  the  psychiatric  hospitals  and  psychiatric  nursing

homes and other Mental Health Service Agencies under the control

of  the  State  Government.  The  respective  Authorities  shall  issue

necessary directions to the institution(s) under its jurisdiction  and

ensure its implementation not later than six months from today. A

compliance report in this behalf be filed by the Central Authority for

Mental  Health Service and the State  Authority for  Mental  Health

Service of the concerned State, as the case may be, in the Registry

of this Court not later than eight months from today.  

30.  We  make  it  clear  that  the  Secretary  of  the  concerned

Department  of  the  respective  State/Union  Territory  shall  be

personally responsible for monitoring and overseeing the progress

and action taken  by the State Authority for Mental Health Service

within its State.  Similarly,  the Secretary of  the Union of India of

Health  and  Social  Welfare  shall  be  personally  responsible  for

monitoring  and  overseeing  the  progress  made  by  the  Central

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Authority  for  Mental  Health  Services  and  compliance  of  the

directions in relation to the establishments under the control of the

Central Government.  

31. The Appeal is disposed of in the above terms with no order as

to costs.

…………………………………CJI.     (T.S. Thakur)

……………………………………J.  (A.M. Khanwilkar)

New Delhi, Dated: December  08, 2016