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REPORTABLE

IN THE SUPREME COURT OF INDIA

CRIMINAL APPELLATE JURISDICTION

CRIMINAL APPEAL NO.652 OF 2012

Union of India …Appellant

Versus

Mohanlal & Anr. …Respondents

JUDGMENT

T.S. THAKUR, J.

1. When this appeal came up for hearing before us on 11th  

April,  2012,  it  was  contended  by  learned counsel  for  the  

appellant-Union of India that Standing Order No.1 of 1989  

dated 13th June, 1989 which prescribes the procedure to be  

followed for seizure, sampling, safe keeping and disposal of  

the seized Drugs, Narcotics and Psychotropic substances is  

being  followed  throughout  the  country.  It  was  also  

contended that Ministry of Finance, Department of Revenue,  

Government of India, has in terms of a Circular dated 23rd  

February,  2011 impressed upon the Chief  Secretaries  and  

the  concerned  police  heads  of  the  State  Governments  to  

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ensure that instructions given and the procedure prescribed  

in the Standing Order aforementioned was strictly adhered  

to.  These  submissions  notwithstanding,  doubts  about  the  

procedure being actually followed persisted. Pilferage of the  

contraband goods and their return to the market place for  

circulation being a major hazard, this Court appointed Mr.  

Ajit Kumar Sinha, Senior Advocate, as Amicus Curiae, with a  

view  to  making  a  realistic  review  of  the  procedure  for  

search,  disposal  or  destruction  of  the  narcotics  and  the  

remedial steps that need to be taken to plug the loopholes,  

if any.  

2. On 3rd July, 2012 this Court after hearing the Amicus  

Curiae  prima  facie  came  to  the  conclusion  that  the  

procedure prescribed for the destruction of the contraband  

seized in different States was not being followed resulting in  

a  very  piquant  situation  in  which  accumulation  of  huge  

quantities of the seized drugs and narcotics has increased  

manifold the chances of their pilferage for re-circulation in  

the market. This Court also noted a report published in the  

timesofindia.indiatimes.com under  the  heading  “Bathinda’s  

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police stores bursting at seams with seized narcotics” from  

which it appeared that large quantities of seized drugs had  

accumulated over the years including opium, poppy husk,  

charas  etc.  apart  from  modern  narcotic  substances.  The  

report  suggested  that  39  lakhs  sedatives  and  narcotic  

tablets, 1.10 lakhs capsules, over 21,000 drug syrups and  

1828 sedative injections apart from 8 kgs. of smack and 84  

kgs.  of  ganja  were  awaiting  disposal  in  Bathinda  Police  

stores alone.  The position was, according to Mr. Sinha, no  

better  in  other  States  especially  those  situate  along  the  

international borders. It was argued by the Amicus Curiae  

that without proper data from the authorities concerned, it  

was  not  possible  to  take  stock  of  the  magnitude  of  the  

problem no matter challenges posed by rampant drug abuse  

had acquired alarming proportions affecting the youth, some  

of whom are driven to commission of crimes on account of  

deleterious effects of drug abuse.   

3. It was in the above backdrop that by an order dated 3rd  

July, 2012 passed in Criminal Appeal No.652 of 2012 this  

Court  directed  collection  of  information  from  the  police  

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heads  of  each  one  of  the  States  through  the  Chief  

Secretaries concerned in regard to seizure, storage, disposal  

and  destruction  of  the  seized  contraband  and  judicial  

supervision over the same. Specific queries were formulated  

in  the  order  passed  by  us  with  a  direction  to  the  Chief  

Secretaries of the States concerned to serve the same upon  

the Directors General of Police for a report to be forwarded  

through the Registrars  General  of  the High Courts  of  the  

States concerned who were appointed Nodal Officers for that  

purpose.  Registrars  General  were  also  asked  to  

independently secure from the District and Sessions Judges  

concerned in their respective States, answers to the queries  

specified  under  the  head  “Judicial  Supervision”.  Chiefs  of  

Central Government Agencies viz. Narcotics Control Bureau,  

Central Bureau of Narcotics, Directorate General of Revenue  

Intelligence  and  Commissionerates  of  Customs  &  Central  

Excise  including  the  Indian  Coast  Guard  were  directed  to  

issue similar queries to the officers concerned and to submit  

their respective reports detailing the information required in  

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terms of the orders passed by this Court. The queries raised  

by this Court were in the following words:    

“12.1. Seizure

(i) What narcotic drugs and psychotropic substances   (natural and synthetic) have been seized in the last   10 years and in what quantity? Provide yearwise and   districtwise  details  of  the  seizure  made  by  the  relevant authority. (ii) What are the steps, if any, taken by the seizing   authorities to prevent damage, loss and pilferage of   the  narcotic  drugs  and  psychotropic  substances   (natural and synthetic) during seizure/transit? (iii)  What  are  the  circulars/notifications/directions/guidelines,  if  any,   issued to  competent  officers  to  follow any specific   procedure in regard to seizure of contrabands, their   storage  and  destruction?  Copies  of  the  same  be   attached to the report.

12.2. Storage

(i) Is there any specified/notified store for storage of   the seized contraband in a State, if so, is the storage  space available in each district or taluka? (ii) If a store/storage space is not available in each  district or taluka, where is the contraband sent for   storage  purposes?  Under  what  conditions  is   withdrawal  of  the  contraband  permissible  and  whether  a  court  order  is  obtained  for  such   withdrawal? (iii) What are the steps taken at the time of storage  to  determine  the  nature  and  quantity  of  the  substance being stored and what are the measures   taken to prevent substitution and pilferage from the  stores? (iv) Is there any check stock register maintained at   the site of storage and if so, by whom? Is there any   periodical check of such register? If so, by whom? Is   any  record  regarding  such  periodic  inspection   maintained and in what form?

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(v) What is the condition of the storage facilities at   present? Is there any shortage of space or any other   infrastructure lacking? What steps have been taken   or  are  being  taken  to  remove  the  deficiencies,  if   any? (vi)  Have  any  circulars/notifications/directions/guidelines  been  issued to competent officers for care and caution to   be  exercised  during storage? If  so,  a  copy of  the   same be produced.

12.3. Disposal/Destruction

(i) What narcotic drugs and psychotropic substances   (natural and synthetic) have been destroyed in the   last 10 years and in what quantity? Provide yearwise   and districtwise details of the destruction made by  the relevant authority. If  no destruction has taken   place, the reason therefor. (ii) Who is authorised to apply for permission of the   court to destroy the seized contraband? Has there   been  any  failure  or  dereliction  in  making  such  applications? Whether  any person having technical   knowledge  of  narcotic  drugs  and  psychotropic   substances (natural and synthetic) is associated with  the actual process of destruction of the contraband? (iii)  Was any action taken against the person who  should  have applied  for  permission to  destroy the   drugs or should have destroyed and did not do so? (iv)  What  are  the  steps  taken  at  the  time  of   destruction to determine the nature and quantity of   the substance being destroyed? (v)  What  are  the  steps  taken  by  competent   authorities  to  prevent  damage,  loss,  pilferage and   tampering/substitution  of  the  narcotic  drugs  and   psychotropic  substances  (natural  and  synthetic)   during  transit  from  point  of  storage  to  point  of   destruction? (vi) Is there any specified facility for destruction of   contraband in the State? If so, a list of such facilities   along  with  location  and  details  of  maintenance,   conditions and supervisory bodies be provided. (vii)  If  a  facility  is  not  available,  where  is  the  contraband  sent  for  destruction  purposes?  Under   whose supervision and what is the entire procedure   thereof?

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(viii) Is any record, electronic or otherwise prepared  at the site of destruction of the contraband and by   whom? Is there any periodical check of such record?   What are  the ranks/designation of  the  supervising   officers charged with keeping a check on the same?

12.4. Judicial supervision

(i)  Is  any  inspection  done  by  the  District  and   Sessions Judge of the store where the seized drugs   are  kept?  If  drugs are lying in  the store,  has the   Sessions Judge taken steps to have them destroyed? (ii)  Is  any  report  of  the  inspection  conducted,   submitted to the Administrative Judge of  the High   Court or the Registry of the High Court? If so, has   any  action  on  the  subject  being  taken  for  timely   inspection and destruction of the drugs? (iii)  Are  there  any  pending  applications  for   destruction of drugs in the district concerned, if so,   what is the reason for the delay in the disposal of   such application? (iv) What level officers including the judicial officers   are associated with the process of destruction? (v)  At  what  stages  are  the  Magistrates/judicial   officers/any other officer of the court associated with   seizure/storage/destruction of drugs? (vi)  Are  there  any  rules  framed  by  the  Court   regarding its supervisory role in enforcement of the   NDPS Act as regards seizure/storage/destruction of   drugs? (vii) What is the average time for completion of trial   of NDPS matters?”

4. In compliance with the above directions, reports have  

been  submitted  by  all  the  States  except  the  States  of  

Arunachal  Pradesh,  Jammu and Kashmir,  Dadar  & Nagar  

Haveli,  Lakshadweep,  Nagaland and Pondicherry.  From a  

perusal of the reports so received the position that emerges  

in  regard  to  disposal/destruction  of  narcotic  drugs  and  7

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psychotropic substance qua each State for the last 10 years  

may be summarised as under:

DETAILS OF SEIZURE AND DISPOSAL OF DRUGS  (STATEWISE)

1) ANDHRA PRADESH

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 2,20,977.191 Kg 3910.70 Kg 217066.491 kg  (98.23%)

Opium 22.925 kg 0 22.925 Kg  (100%)

Charas 6.5 kg 0 6.5 kg (100%)

Cocaine 851.096 kg 0 851.096 kg  (100%)

Others 85.125 kg + 103  Capsules + 81  Injections 26 Amp

0

2. ASSAM (The Information pertains only to the period of 2010-2012)

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 203.54 Kg 136 Kg 67.54 (33.18%)

Heroin .614 kg 0 .214 Kg  (34.853%)

Opium 30 gms 0 30  gms  (100%)

Others 755662 41472 Nos. 714190 Nos.  (94.5%)

3. BIHAR 8

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Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 45 Kg 0 45 kg

Heroin 3.74 kg 0 3.74 kg

Charas 48.853 kg 0 48.853 kg

Poppy  Straws

100 kgs 0 100 kgs

Methqualo ne

1676 kgs 0 1676 kgs

Note:- No destruction of narcotic drugs and psychotropic  substances have taken place at Patna zonal unit.

4. CHHATTISGARH

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 1,03,622.140 kg  Kg

3281.570 kg 1,00,340.57  (96.77%)

Cannabis  Plants

52478 (Nos) 380 (Nos) 52098 (Nos) (92.7%)

Brown  Sugar

3.120 kg 0 3.129 kg (100%)

Opium 1.460 kg 0 1.460 kg (100%)

Opium  Poppy Plant

1558 pieces 0 1558 pieces  (100%)

Green  Opium Plant

3600 kg 0 3600 kg (100%)

5. CUSTOMS AND CENTRAL EXCISE

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Opium 367.007 kg 658.525 kg Destroyed more  than seized

Morphine 58.393 kg 190 kg + 88930 Pcs 58.203 kg  9

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Injections (99.6%) Heroine 1658.099 kg 739.687 kg 918.412 kg  

(55.3%) Ganja 484124.056 kg 8,43,008.559 kg Destroyed more  

than seized Hashish 77350.076 kg 12298.578 kg Destroyed more  

than seized Cocaine 640.569 kg 0 640.569 kg  

(100%)

6. CHANDIGARH

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraband By relevant  authorities 3205.623 Kgs

900.179 Kgs 2305.444 Kgs  (71%)

Morphine 58.393 kg 190kg + 88930 Pcs  Injections

58.203 kg  (99.6%)

Heroine 1658.099 kg 739.687 kg 918.412 kg  (55.3%)

Ganja 484124.056 kg 8,43,008.559 kg Destroyed more  than seized

Hashish 77350.076 kg 12298.578 kg Destroyed more  than seized

Cocaine 640.569 kg 0 640.569 kg  (100%)

7. DELHI • Delhi has provided two responses.  One response has been provided  by the NCB, Delhi and the other by the police heads of each of the district.

• The response by NCB, Delhi is as follows :-

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba nd

8891.8373 680.376 kg 8211.4613 kg  (92.34%)

• The Response by the police heads are as follows:-

Item Total  Quantity  Seized  (In  10  

Total  Quantity  Destroyed  (in  10  

Difference

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years) By  relevant  authorities

years)

Contraban d  (Hashish,  Cocaine,  Ganja,  Heroin  etc.)

52944.577 kg 32443.456 kg 20500.601  (38.72%)

Contraban ds  (Chemical  Substance s in  Tablets,  Injections )

1020669 0 1020669  (100%)

8. DAMAN AND DIU

The UT Daman and Diu has informed the Total quantity by way of a  detailed chart:

Item Total  Quantity  Seized  (In  10  years) By  relevant  authorities

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba nd

25.827 kgs 000 kgs 25.827 Kgs  (100%)

9. DIRECTORATE OF REVENUE INTELLIGENCE

Item Total  Quantity  Seized  (In  10  years) By  relevant  authorities

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba nd

174185.687 kg 2859.448 Kg 171326.239  (98.3%)

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10. GUJARAT • The Response of the state is divided into two parts.

• One has been provided by the office of the Ministry of Home  Affairs.

• As per the said response the total amount of contraband  seized in 10 years are 28340.047 Kg. No division of the type has  been provided.

• The total destruction in the last 10 years however is only  132.375 Kg

• The total amount of Contraband still in custody of the  authorities is 28207.672 Kgs, i.e. 99.53% of the seized amount.

• The response of the NCB Zonal Unit is as follows: Item Total  Quantity  

Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Charas 1421.14 kg 15.056 kgs 1406.084 kg  (98.9%)

Opium 17.505 kg 0 17.505 kg  (100%)

Brown  Sugar

2.03 kg 0 2.03 kg (100%)

Heroin 3.066 kg 0 (981 gms of Heroin  was destroyed in  2000, however all the  seizures have been  made post 2003)

3.066 kg  (100%)

Others 3766.126 kg +  299 ltrs. + 1022  Tablets

525 kgs 3241.126 kgs  (86.05%) + 229  ltrs (100%) +  1022 Tablets  

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(100%) 11. GOA

The UT Chandigarh has informed the Total quantity by way of a  detailed chart:

Item Total  Quantity  Seized  (In  10  years) By  relevant  authorities

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba nd

548.746 kgs. 000 kgs 548.7476 kgs  (100%)

12. HARYANA

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 2604.077 kg 521.133 kg 2082.944 kg  (79%)

Charas 7252.513 kg 533.46 kg 6719.053 kg  (92.64%)

Opium 1086.387 kg 1972.860 Destroyed more  than seized

Smack 8200.00 kg 4169.919 kg 4030.081 kg  (49.14%)

Heroine 1.046 kg 1.300 kg Destroyed more  than seized

Brown  Sugar

2.001 kg 1.003 kg 998 kg  (49.87%)

Cocaine .325 kg 0 .325 kg (100%)

13. HIMACHAL PRADESH The State of Himachal Pradesh has informed the Total quantity by way of  a detailed chart:

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

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Contraba nd

17026.714 1856.913 15169.801  (89.09%)

14. JHARKHAND

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 1793.381 kg 0 (area of cultivation  has been destroyed)

1793.381 kg  (100%)

Opium 360.59 kg 0 360.59 kg  (100%)

Brown  Sugar

1.576 kg 0 1.576 kg  (100%)

Heroine 546 kg 0 546 kg (100%)

15. KERALA Item Total  Quantity  

Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 7588.543 Kg 2740.926 kg 4847.617 kg  (63.88%)

Heroine .536 kg 0 .536 kg (100%) Hashish 12.368 kg 0 12.368 (100%) Charas .063 kg 0 .063 kg (100%) Brown  Sugar

8.432 kg 12.058 kg Destroyed more  than seized

Opium 23.697 kg 0 23.697 kg  (100%)

16. KARNATAKA

• The state of Karnataka divided its response in two parts.  One is  seizure by Police and the Other is seizure by NCB

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba nd

By NCB    

366.838 Kgs 000 kgs 366.838 Kgs(100%) 14

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By relevant  authorities  27291.633 Kgs

12140.592 15151.041 (55%)

17. MAHARASHTRA Item Total  Quantity  

Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 1,14,082 kg 8750 kg 1,14,074 kg  (92.33%)

Heroin 654 kg 228 kg 426 kg  (65.13%)

Charas 2364.90 kg 471.735 1893.165  (80.05%)

Opium 613.044 kg 47.135 kg 565.909 kg  (92.31%)

Cocaine 11.049 kg 0 kg 11.049 kg  (100%)

18. MANIPUR Item Total  Quantity  

Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Heroin 37.534 kg. 12.498 kg 25.036 kg  (66.072%)

Ganja 45343.25 kg 41963.389 kg  (Kindly refer to  the Note)

3379.861 kg  (7.45%)

Opium 233.985 kg 0 233.985 kg  (100%)

Hashish 3.05 kg 0 3.05 kg  

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(100%)

Note:  The  Total  amount  of  Ganja  seized  post  2005  was  25913.225 kgs and the same is still lying with the authorities  since the last pretrial disposal in 2005. 19. MADHYA PRADESH

• Madhya Pradesh has divided its response in two parts.  One is  seizure by Police and the other is seizure by NCB.

Item Total  Quantity  Seized  (In  10  years)  In Kgs

Total  Quantity  Destroyed  (in  10  years)  In Kgs

Difference    In Kgs   

Contraba nd

By Police- 804376.528

BY NCB          348 kg

By Police 61384.805

By Police  -742991.723  Kgs (92%)

Destroyed  more than  seized

20. Ministry of Home Affairs NCB Item Total  Quantity  

Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraban d

By relevant  authorities

5344.12 Kgs. 4476.482 kgs 867.638 (16%)

21. ORISSA

• Orissa has divided its response in two parts.  One is seizure by Police and  the Other is seizure by Excise Officials.

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba By Police 0.000 By Police- 16

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nd 88241.741 Kgs

By Excise 34520.854 Kgs  (100%)

0.000

88241.741 Kgs  (100%)

By Excise 34520.854 Kgs  (100%)

22. PUNJAB

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Poppy  Husk

8,93,948.452 kg 4,00,678.069 kg 4,93,270.383 kg  (55.17%)

Opium 4936.031 kg 965.818 kg 3970.213 kg  (80.43%)

Smack 20045.293 kg 104.631 kg 19940.662  (99.47%)

23. RAJASTHAN

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Brown  Sugar

146.996 kg 23.381 kg 123.615 kg  (84.094%)

Heroine 173.216 kg 3.25 kg 169.966 kg  (98.12%)

Smack 275.246 kg 82.423 kg 192.823 kg  (70.05%)

Opium 6687.081 kg 2006.745 kg 4680.335 kg  (69.99%)

Charas 935.602 kg 1192.309 Destroyed more  than seized

Ganja 176289.677 kg 2578.712 kg 174250.965 kg  (98.84%)

Poppy 99684.05 kgs 1,34,652.55 kg Destroyed more  17

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Straw than seized. 24. SIKKIM

Item Total  Quantity  Seized  (In  10  years) By   relevant  authorities

Total  Quantity  Destroyed  (in  10  years)

Difference

N-10 Capsure 9156 ** 9156 (100%)

Spasmo  Proxyvon  Capsule

277367 ** 277367  (100%)

Corex/  Phensidylere codex

3033 ** 3033 (100%)

Others ** 203.92 gms.

** The State Government of  Sikkim has replied that the  destruction is done as per the orders of the Trial Court on  the  conclusion  of  Trial.  However,  no  details  related  to  disposal has been provided. 25. TAMIL NADU

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja  (Dry +  Green)

656778 kg 19366.98 kg 637411.02 jg  (97.051%)

Charas 13 kg 1 kg 12 kg (92.30%)

Heroin 66.42 kg 66.425 kg 0 Cocaine 1 kg 15.4 kg Destroyed more  

than seized Brown  Sugar

0.015 kg 0 0.015 kg (100%)

Opium 30.4 kg 1.738 kg 29.262 kg  (96.25%)

Hash Oil 10 kg 1 kg 9 kg (90%) Tidigesic  inj.

13627 vials 4095 vials 9532 vials  (69.94%)

Norphine 112 amps 0 112 amps  18

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(100%) Bosikka 9 0 9 (100%) Diazepa m

9.085 kg + 2706  vials

4.51 (kg or vial not  sure)

Poppy  Cap/Stra ws

246.75 kg 125.05 kg 121.7 kg  (49.32%)

Avil 350 tabs + 55  vials  

0 350 tabs + 55  vials

26. TRIPURA Item Total  Quantity  

Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Ganja 9178.8 2642.5 kg 6536.3 kg  (71.21%)

Ganja  Dust

436 kg 87 kgs 349 kgs  (80.04%)

27. UTTAR PRADESH • There is huge discrepancy between the Quantity seized and  the Quantity destroyed.

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Opium 1278.016 kg 198.025 kg 1079.99 kg  (84.5%)

Smack 455.543 kg 244.443 kg 211.1 kg  (46.3%)

Heroin 503.664 kg 13.759 kg 489.905 kg  (97.2%)

Ganja 92525.859 11,820.191 kg 80705.668 kg  (87.22%)

Charas 9099.432 kg 2234.481 kg 6864.951 kg  (75.44%)

Intoxicati ng  Powder  

3658.065 kg 1035.275 kg 2622.79 Kg  (71.69%)

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(Cocaine) Brown  Sugar

51.455 kg 1.1 kg 51.355 kg  (99.8%)

Posta  Drug

16224.591 kg 5081.988 kg 11,142.603 kg  (68.67%)

28. UTTARAKHAND

Item Total  Quantity  Seized  (In  10  years)

Total  Quantity  Destroyed  (in  10  years)

Difference

Charas 1252.091 kg 330.459 kg 921.632 kg  (73.60%)

Doda 6783.765 kg 330.459 kg 6453.306  (95.12%)

Opium 28.899 kg 1.859 kg 27.04 kg  (93.567%)

Heroine 154.454 kg 0 154.454 kg  (100%)

Intoxicati ng  Tablets

22413 Nos 4668 Nos. 17745 Nos  (79.17%)

Ganja 1121.740 kg 508.300 kg 613.44 kg    (54.686%)

Smack 8.761 kg + 1022  packets

0.432 kg + 530  Packets

8.329 kg  (95.06%) + 492  Packets  (48.140%)

Injection 1924 Nos 5 Nos. 1919 Nos  (99.74%)

Brown  Sugar  

.389 kg 0 .389 kg (100%)

29. WEST BENGAL Item Total  Quantity  

Seized  (In  10  years) By  relevant  authorities

Total  Quantity  Destroyed  (in  10  years)

Difference

Contraba nd

88520.3317 kg 0 88520.3317 kg  (100%)

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Note:-  West  Bengal  has  stated  that  it  does  not  have  any  immediate records available of destruction.

5. In regard to the storage of NDPS substances, the State  

Governments  and  the  Central  Agencies  have  furnished  

information which the learned Amicus Curiae has tabulated  

as under:                          

Annexure D

Delhi Govt. Gujarat Govt. Guwahati Govt. Yes,  specified  store  for  storage  of  the  seized  contraband  in  Delhi  Zonal  Unit.

No specific store. NBC Guwahati Zonal Unit is  running  from  a  rented  house  and  one  secured  room  is  earmarked  as  storage place.   

Imphal Govt. Mizoram Govt. Tripura Govt. Stored  in  godown  of  NCB -1 after sealing.

No specific store No specified store.  

Meghalaya Govt. Uttar Pradesh Govt. Maharashtra Govt.,  Goa and Daman Diu

Excise  Malkhana  is  generally  used  to  store  contrabands. All  district  Excise  office  have  their  own  Malkhana  rooms.

UP has no specific place for  storage  of  the  narcotic  drugs.  

No  specific  store  in  Maharashtra for storage.

In Goa: Malakhana at Police  Station.

Daman & Diu and Dadar &  Nagar  Haveli:  Kept  in  Malkhana  Police  Station.  Then  sent  to  storage  of  competent  Court  after  chargesheet is filed.    

Himachal Pradesh  Govt.

Chhattisgarh Govt. Andhra Pradesh  Govt.

No specified area. No separate storage. No specified area.

Rajasthan Govt. Sikkim Govt. Uttarakhand Govt. No specific store. No storage. No specific store.  

Jharkhand Govt. Kerala Govt. Karnataka Govt. No specific store. No specific storage. No notified store.  

Madhya Pradesh  Govt.

Orissa Govt. Bihar Govt.

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Yes, NCB Zonal Unit Indore  ahs  well-secured  specific  maalkhana (Submissions by  NCB Indore Zonal unit) No specific Store for storage  after  seizure  by  Police  Station.  (Submissions  by  Police Heads)

No specific store. Patna Zonal Unit of NCB has  specified room.

Withdrawal  only  under  order of the Court.

Punjab Govt. Haryana Govt. Chandigarh Govt. No specified store. Malkhana  in  all  police  

stations  for  storage  of  contraband Narcotics Drugs  and  Psychotropic  Substances.

A Room called  Malkhana  is  specifically  designated  to  keep  the  seized  contrabands.   

Tamil Nadu Customs and Central  Excise

Directorate of  Revenue  

Intelligence No Specific storage space. No  specific  storage  is  

available  No specific store of its own.  

NCB, Jodhpur Zone NCB, Chandigarh  Zone

West Bengal

Yes,  But  no  sub-zone  available.

A separate  room has been  specified  for  storage  of  seized contraband.

The seized goods are stored  in  Police  Station  Malkhana  under  the  charge  of  a  designated  Police  Officer  and supervision of officer in  charge of Police Station.

6. Similarly, in answer to the query as to the steps taken  

at  the  time  of  storage  to  determine  the  nature  and  the  

quantity  of  the  substance  being  stored  and  measures  to  

prevent  substitution  and/or  pilferage from the stores,  the  

State Governments have sent their replies which too have  

been  summarised  by  the  Amicus  Curiae  in  the  following  

words:

ANNEXURE-F

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iii. What are the steps taken at the time of storage to determine the nature and  quantity of the substance being store and measures to prevent substitution and  pilferage from stores?

Delhi  Govt.

Gujarat  Govt.

Guwahati  Govt.

Imphal  Govt.

Mizoram  Govt.

Tripura  Govt.

Proper  entry  in  malkhana  register  and  malkhana  incharge  and  properly  locked  and  guarded

@Pg  10  of  Delhi  Govt.  submission

Writer  head  of  Police  station  maintains  muddamal  register  which  has  complete  details.   All  subsequent  withdrawal  and  redisposition  are  also  reflected  in  the  muddamal  register  @Pg.2  of  Gujarat  Govt.  submission

Complete  process of  classification  and  weighing of  drugs along  with  measures of  prevention  of pilferage  mentioned  at

@  Pg.No.52  of  Guwahati  Govt.  submission

Complete  process  of  classification  and  weighing  of  drugs  along  with  measures  of  prevention  of  pilferage  mentioned  at

@ Pg. No. 74  of  Imphal  Govt.  submission

Utmost care in  weighing and  measurements  by officer-in- charge.

@page 101 of  submissions by  Mizoram Govt.

Malkhana  officer  incharge  carefully  keeps the  contrabands  in the  malkhana  after  maintaining  register.

@Pg.No.3 of  submission  by Tripura  Govt.

Meghalaya  Govt.

Uttar  Pradesh  

Govt.

Maharashtr a Govt., Goa  and Daman  

Diu.

Himachal  Pradesh  

Govt.

Chhattisgar h Govt.

Andhra  Pradesh  

Govt.

General  duty  of  detecting  officer  to  weigh,  seal  the  contraband  with  signatures  of  civilian  witnesses  with  proper  entry  in  register  and lock it.

@pg.7  Annex-A-2  

After Seizure  the  concerned  drug  is  weighed.

Subsequentl y a sample is  taken  out  of  the  bag  and  both  are  weighed  separately.

Contraband  is packed and  kept  safe  with  Muddemal  Clerk  in  separate  cupboard.

@ Pg.6.

Goa:  Contraband  packed  and  sealed at the  spot  of  

NDPS  is  seized  by  investigatin g  officer.  After  samples are  taken,  the  same  is  seized  by  I.O.  affixing  his own seal  and  later  resealed  by  SHO  before  consigning  it  to  the  safe  

Details  of  all  steps  to  determine  the  nature  and  quantity  of  the  substance  being  store  and measures  to  prevent  substitution  and  pilferage  from  stores  elaborated  @  Pg.No.  3  of  submissions  by  

During  the  storage  the  details  are  entered  in  storage  room  register.  Store room is  duly  sealed  and  armed  guards/statio n  watch  are  posted.  

@ pg.no. 2 of  A.P.  Govt.  

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of  Meghalaya  Govt.  Submission /

---------

Acc.  To  Report  of  Comm.  Of  Customs  @  Pg.67:

Stored  in  Central  Godown  in  safes  and  vaults  with  double  locking  system  under  command  of  a  Gazetted  Officer.

Both  the  sample  and  main  stock  are  wrapped  in a piece of  cloth and are  sealed.

The  sample  is  sent  for  forensic  testing  and  the  main  packed  is  sealed  and  kept  in  the  malkhana.

@  Pg.6  of  submissions  by  U.P.  Govt.

seizure.  Entry  in  Mudamma,  register  to  show chain of  movements  and  its  custody.   @  pg. 8.

Daman  &  Diu  and  Dadar  &  Nagar  Haveli:  there  are  very  remote  chances  of  substitution/  pilferage  as  the  stored  goods  are  subject  to  periodical  inspection.

Page 9 of the  Response

custody  in  police  malkhana of  the  Police  Station.

@  Pg.No.3  of  HP Govt.  submission.

Chhattisgarh  Govt.

submission

Rajasthan  Govt.

Sikkim  Govt.

Uttarakhand  Govt.

Jharkhand  Govt.

Kerala  Govt.

Karnataka  Govt.

No  specific  answer.  However  packing  resources for  storage  are  used  according  to  quantity  and  nature of the  contraband.

@  Pg.No.  2  of  submission  by Rajasthan  Govt.

NDPS  is  packed and  sealed  under  stamp  of  IO  and  nature  and  quantity  recorded in  presence of  individual  witnesses.

Page  11  of  the  Response.

NDPS sample  is  sent  to  forensic  laboratory.  For  preventing  substitution,  details  entered  into  station  diary  of  the  concerned  police  station.  Complete  safety  measures  mentioned in  Annex-3 with  the  govt.  

Material  objects  is  sealed and  packed  properly.

Page  9  of  the  Response

During  recovery  a  pinch  of  the  substance  is  tested with the  help  of  field  drug  test  kit  for  an  indicative  test.  After  positive  indicative  result,  the  officer  makes  detailed  inventory.  The  seized  goods  are  stored  in  the  departmental  godown  or  the  

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submission.

Page 5 of the  Response

judicial godown  and  only  a  representative  sample  is  sent  to  the  laboratory  for  chemical  analysis.

@  pg.  10  of  submission  by  Karnataka  Govt.

Madhya  Pradesh  

Govt.

Orissa  Govt.

Bihar Govt. Punjab  Govt.

Haryana  Govt.

Chandigarh  Govt.

By  NCB  Indore  Zonal  Office.

Seized  contraband  wrapped  in  transparent  polythene  and  then  in  white  cloth  before  sealing  and  signing  it.  Quality  and  amount  of  seized  drug  is  also  mentioned  in  the packet.   

@  Pg.  5  of  submissions  by M.P. Govt.

By  police  heads  of  districts:

A  seizure  memo  is  again  prepared  u/s  

Seized  drugs  are  sealed  in  such  a  manner  as  to  minimize  the  chances  of pilferage.

After  producing  the  seized  goods  with  permission  of  court  the  drugs  are  deposited in  maalkhana  in  sealed  condition  with  proper  entry  and  under  the  custody  of  Maalkhana  Officer.

Page  2  and  3  of  the  Response.

Seized  drugs  are  sealed  and  produced  before  the  Court  and  then  stored  in  Maalkhana  after  entry  in registers.

Pg. No. 3 of  submission  by  Bihar  Govt.

Police  officials  deployed  at  all  NDPS  Maalkhana  stores.  Case  property  register  No.  19  is  maintained.  Procedure  as  per  and  Punjab Police  rules  1934.  Inspection  by  gazette  officers.

@ pg.no.  16  and  17  of  submission  by  Punjab  Govt.

Weekly  and  fortnightly  reports  obtained  from  all  concerned  regarding  seized/  storage  of  NDPS.  Stock  Register  is  maintained  by  field  units  and  periodical  checking  is  done.

@  pg.  121  of  submission  of  Haryana  Govt.  

Seized  contraband  is  safely  kept  in  Malkhana  under lock.

No  more  details  mentioned.

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55  of  NDPS  Act  at  the  time  of  storage  in  the  police  station  malkhana  and  sealed  by  Station  House  Officer.

Necessary  entries  are  made  in  the  Rojnamcha  and  seized  property  register  maintained in  the  police  station.

At page 4 of  the  Response.

Tamil Nadu Directorate of  Revenue  

Intelligence

NCB Zonal  Officer,

Jodhpur

NCB Zonal  Office,  

Chandigarh

Customs  and Central  

Excise

No  such  instance  has  arisen.

The  sealed  contained  containing  the  seized  goods  is  handed  over  to  Custodian  under  proper  documentation.  The  inventory,  seizure  memo  as  well  as  the  paper  seals  on  the  sealed  container  are  duly  signed  by  the  panch  witnesses,  accused  and  seizing  officer.  The  custodian  are  responsible  for  appropriate  

As  per  Government  of  India  Notification,  circular  1/89  page 3 of the  Response.

The  seized  goods  are  stored lot wise  and  stored  under  proper  lock  and  key  under  the  supervision  of  ITBP  Guard.  No  one  other  than the store  in  charge  is  authorized  to  enter  the  store.

Page 6 of the  Response.  

The  seized  contraband  is  deposited  in  the  godown/  malkhana  on  the  basis  of  the  particulars  mentioned  in  the  seizure  memo/  panchnama.  Proper  and  secured  packing  and  sealing of the  contraband  ensures  its  safety.

Page  11  of  the Response.  

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action  to  prevent  substitution  and  pilferage.

West Bengal

The  seized  goods  are  packed  labeled  and  sealed  by  the  Officer  and  are  handed  over  to  the  officer  in  charge  with  copy  of  seizure  list.  Details  are  also  incorporated  in  the  Malkhana  Register  having  counter  signed  of  dealing  officer.  

7. The reports submitted by the State Governments and  

the  Central  Agencies  further  claim  that  stock  registers  

maintained at the storage sites are periodically checked by  

the staff  mentioned in  the reports.  Another  question  that  

was  asked  from the  State  Governments  and  the  Central  

Agency  relates  to  the  condition  of  the  storage  facilities,  

shortage of storage facilities, if any, and whether any steps  

have  been  taken  or  are  being  taken  to  remove  the  

deficiencies.  Answers  to  those  queries  suggest  that  no  27

Page 28

proper storage facilities are available in most of the States.  

For  instance,  in  Gujarat  no  special  storage  facility  is  

available  for  keeping  the  contraband,  which  is,  therefore,  

stored  in  general  muddamal  room.  In  Assam  the  NBC  

Guwahati  Zonal  Unit  is  said  to  be running from a rented  

house and one secured room is earmarked for storage with  

triple  locking  system  under  the  supervision  of  the  

Superintendent.  In  Imphal,  the  store  room is  overflowing  

with contraband. Since there is shortage of space, pre-trial  

disposal process has been initiated to decrease congestion in  

godowns.  Although Mizoram Government claims that there  

is  no  lack  of  storage  facility,  no  information  as  to  any  

specific storage facility being earmarked for the purpose has  

been provided. In Tripura the enforcement branch is said to  

be  maintaining  the  malkhana  used  for  storage  of  

contrabands. In Himachal Pradesh there is no storage facility  

except  an  old  building  used  for  the  purpose,  while  in  

Chhattisgarh  the  storage  facility  is  satisfactory  but  not  

sufficient for bulk storage. Similarly, Rajasthan has scarcity  

of storage facility. Jharkhand has no separate storage facility  

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at all whereas Kerala has satisfactory storage facilities only  

in  some of  the districts.  In  Orissa  and Bihar  the storage  

facilities are totally insufficient and unsatisfactory. States of  

Haryana, Madhya Pradesh,  Goa,  Daman Diu and Dadar &  

Nagar Haveli and Andhra Pradesh claim to have no problems  

with storage facility  while  Tamil  Nadu does  not  have any  

separate storage.  

8. Directorate  of  Revenue Intelligence  has  not  provided  

any  information  while  NCB  Zonal  Office,  Jodhpur  has  no  

shortage  of  space.  NCB  Zonal  Office,  Chandigarh  has  

reported insufficiency of space and has started the process  

for construction of a specified storage facility. Customs and  

Central Excise Authority has reported that their godown is  

full and no more space is available.  

9. In answer to the question as to who is authorised to  

apply  to  the Court  to  destroy  the  seized  contraband and  

whether there has been any failure or dereliction in making  

such applications and whether any person having technical  

knowledge  of  narcotic  drugs  and  psychotropic  substance  

(natural  and  synthetic)  is  associated  with  the  process  of  

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destruction of the contraband, the reply submitted by the  

State  Governments  suggest  that  different  persons  in  

different  States  have  been  authorised  to  make  such  

applications to the Courts concerned except in Tripura where  

no particular person is authorised. In some cases Officer-in-  

charge of the Police  Station has been authorised while  in  

others the I.O. is also empowered to apply for permission to  

destroy the contraband. In answer to the question whether  

any action has been taken against anyone who should have  

applied for permission to destroy the narcotics but had not  

done  so,  State  Governments  have  all  answered  in  the  

negative implying thereby that either no dereliction of duty  

has occurred on the part of any officer competent to apply  

for  destruction or no action has been taken for  any such  

dereliction.  

10. Similarly,  regarding  the  steps  taken  at  the  time  of  

destruction  to  determine  the  nature  and  quantity  of  the  

substance  being  destroyed,  the  reports  submitted  by  the  

State  Governments  give  varying  answers.  There  is  no  

uniformity in the procedure adopted by those associated or  

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in charge of the process of destruction. The reports suggest  

as  if  adequate  steps  are  taken  to  prevent  damage,  loss,  

pilferage  and tampering/substitution  of  the  narcotic  drugs  

and psychotropic substances from the point of search to the  

point of destruction but there is no uniformity or standard  

procedure prescribed or followed in that regard. Having said  

that  we  must  mention  that  we  are  in  these  proceedings  

concerned  with  the  following  three  issues  only  for  the  

present:

(ι) Seizure and sampling of the Narcotic drugs and  Psychotropic substances  

(ιι) their storage and

(ιιι) their destruction

Seizure and sampling:

11. Section 52-A(1) of the NDPS Act, 1985 empowers the  

Central  Government  to  prescribe  by  a  notification  the  

procedure to be followed for seizure, storage and disposal  

of  drugs  and  psychotropic  substances.  The  Central  

Government have in exercise of that power issued Standing  

Order  No.  1/89  which  prescribes  the  procedure  to  be  

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followed while conducting seizure of the contraband. Two  

subsequent standing orders one dated 10.05.2007 and the  

other dated 16.01.2015 deal with disposal and destruction  

of seized contraband and do not alter or add to the earlier  

standing order that prescribes the procedure for conducting  

seizures.  Para 2.2 of the Standing Order 1/89 states that  

samples must be taken from the seized contrabands on the  

spot at the time of recovery itself.  It reads:

“2.2.  All  the  packages/containers  shall  be  serially   numbered and kept in lots for sampling.  Samples   from the narcotic drugs and psychotropic substances   seized, shall  be drawn on the spot of recovery, in   duplicate,  in  the  presence  of  search  witnesses  (Panchas)  and  the  person  from whose  possession   the drug is recovered, and a mention to this effect   should invariably be made in the panchnama drawn   on the spot.”

Most  of  the  States,  however,  claim  that  no  samples  are  

drawn  at  the  time  of  seizure.  Directorate  of  Revenue  

Intelligence  is  by  far  the  only  agency  which  claims  that  

samples are drawn at the time of seizure, while Narcotics  

Control Bureau asserts that it does not do so.  There is thus  

no  uniform  practice  or  procedure  being  followed  by  the  

States or the Central agencies in the matter of drawing of  

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samples. This is, therefore, an area that needs to be suitably  

addressed  in  the  light  of  the  statutory  provisions  which  

ought to be strictly observed given the seriousness of the  

offences under the Act and the punishment prescribed by  

law in case the same are proved. We propose to deal with  

the  issue  no  matter  briefly  in  an  attempt  to  remove the  

confusion  that  prevails  regarding  the  true  position  as  

regards drawing of samples.

12. Section 52A as amended by Act 16 of 2014, deals with  

disposal of seized drugs and psychotropic substances.  It  

reads:

“Section 52A : Disposal of seized narcotic drugs  and psychotropic substances.

(1) The Central Government may, having regard to   the  hazardous  nature  of  any  narcotic  drugs  or   psychotropic substances, their vulnerability to theft,   substitution, constraints of proper storage space or   any  other  relevant  considerations,  by  notification   published  in  the  Official  Gazette,  specify  such  narcotic drugs or psychotropic substances or class of   narcotic  drugs  or  class  of  psychotropic  substances   which shall, as soon as may be after their seizure,   be disposed of by such officer and in such manner as   that Government may from time to time, determine   after following the procedure hereinafter specified.

(2)  Where  any  narcotic  drug  or  psychotropic   substance  has  been  seized  and  forwarded  to  the  officer-in-charge of the nearest police station or to   the officer empowered under section 53, the officer   referred  to  in  sub-section  (1)  shall  prepare  an  

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inventory  of  such  narcotic  drugs  or  psychotropic   substances containing such details relating to their   description,  quality,  quantity,  mode  of  packing,   marks, numbers or such other identifying particulars   of the narcotic drugs or psychotropic substances or   the  packing  in  which  they  are  packed,  country  of   origin and other particulars as the officer referred to   in  sub-section  (1)  may  consider  relevant  to  the   identity  of  the  narcotic  drugs  or  psychotropic   substances  in  any proceedings  under  this  Act  and  make  an  application,  to  any  Magistrate  for  the  purpose of-

(a)  certifying  the  correctness  of  the  inventory  so   prepared; or

(b)  taking,  in  the  presence  of  such  Magistrate,   photographs  of  such  drugs  or  substances  and   certifying such photographs as true; or  

(c) allowing to draw representative samples of such   drugs  or  substances,  in  the  presence  of  such  Magistrate and certifying the correctness of any list   of samples so drawn.

(3) When an application is made under sub-section   (2), the Magistrate shall, as soon as may be, allow   the application.

(4) Notwithstanding anything contained in the Indian   Evidence  Act,  1872  (1  of  1872)  or  the  Code  of   Criminal Procedure, 1973 (2 of 1974), every court   trying  an  offence  under  this  Act,  shall  treat  the  inventory,  the  photographs  of  [narcotic  drugs,   psychotropic  substances,  controlled  substances  or   conveyances] and any list of samples drawn under   sub-section (2) and certified by the Magistrate, as   primary evidence in respect of such offence.]”        

13. It  is  manifest  from  Section  52A  (2)(c)  (supra)  that  

upon  seizure  of  the  contraband  the  same  has  to  be  

forwarded  either  to  the  officer  in-charge  of  the  nearest  

police station or to the officer empowered under Section 53  

who  shall  prepare  an  inventory  as  stipulated  in  the  said  34

Page 35

provision  and  make  an  application  to  the  Magistrate  for  

purposes of (a) certifying the correctness of the inventory  

(b) certifying photographs of such drugs or substances taken  

before the Magistrate as  true and (c) to draw representative  

samples in the presence of the Magistrate and certifying the  

correctness of the list of samples so drawn. Sub-section (3)  

of Section 52-A requires that the Magistrate shall as soon as  

may be allow the application.  This implies that no sooner  

the seizure is effected and the contraband forwarded to the  

officer  in  charge  of  the  Police  Station  or  the  officer  

empowered, the officer concerned is in law duty bound to  

approach the Magistrate for the purposes mentioned above  

including  grant  of  permission  to  draw  representative  

samples in his presence, which samples will then be enlisted  

and the correctness of the list of samples so drawn certified  

by the Magistrate.  In other words, the process of drawing of  

samples has to be in the presence and under the supervision  

of the Magistrate and the entire exercise has to be certified  

by him to be correct. The question of drawing of samples at  

the time of seizure which, more often than not, takes place  

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in  the  absence  of  the  Magistrate  does  not  in  the  above  

scheme of things arise.  This is so especially when according  

to Section 52-A(4) of the Act, samples drawn and certified  

by the Magistrate in compliance with sub-section (2) and (3)  

of Section 52-A above  constitute primary evidence for the  

purpose  of  the  trial.   Suffice  it  to  say  that  there  is  no  

provision in the Act that mandates taking of samples at the  

time of seizure.  That is perhaps why none of the States  

claim to be taking samples at the time of seizure. Be that as  

it may, a conflict between the statutory provision governing  

taking  of  samples  and  the  standing  order  issued  by  the  

Central Government is evident when the two are placed in  

juxtaposition. There is no gainsaid that such a conflict shall  

have  to  be  resolved  in  favour  of  the  statute  on  first  

principles  of  interpretation  but  the  continuance  of  the  

statutory notification in its present form is bound to create  

confusion in the minds of the authorities concerned instead  

of helping them in the discharge of their duties. The Central  

Government  would,  therefore,  do  well,  to  re-examine the  

matter and take suitable steps in the above direction.  

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14. Mr.  Sinha,  learned  Amicus,  argues  that  if  an  

amendment of the Act stipulating that the samples be taken  

at the time of seizure is not possible, the least that ought to  

be done is to make it obligatory for the officer conducting  

the seizure to apply to the Magistrate for drawing of samples  

and certification etc.  without any loss of time. The officer  

conducting the seizure is also obliged to report the act of  

seizure and the making of the application to the superior  

officer  in  writing  so  that  there  is  a  certain  amount  of  

accountability  in  the  entire  exercise,  which  as  at  present  

gets  neglected  for  a  variety  of  reasons.   There  is  in  our  

opinion  no  manner  of  doubt  that  the  seizure  of  the  

contraband must be followed by an application for drawing  

of samples and certification as contemplated under the Act.  

There is equally no doubt that the process of making any  

such  application  and  resultant  sampling  and  certification  

cannot be left to the whims of the officers concerned. The  

scheme of the Act in general and Section 52-A in particular,  

does  not  brook any delay  in  the matter  of  making of  an  

application or the drawing of samples and certification. While  

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we see no room for prescribing or reading a time frame into  

the  provision,  we are  of  the view that  an  application  for  

sampling and certification ought to be made without undue  

delay and the Magistrate on receipt of any such application  

will  be  expected  to  attend  to  the  application  and  do  the  

needful, within a reasonable period and without any undue  

delay or procrastination as is mandated by sub-section (3)  

of Section 52A (supra).  We hope and trust that the High  

Courts will  keep a close watch on the performance of the  

Magistrates in this regard and through the Magistrates on  

the  agencies  that  are  dealing  with  the  menace  of  drugs  

which has taken alarming dimensions in this country partly  

because of the ineffective and lackadaisical enforcement of  

the laws and procedures and cavalier manner in which the  

agencies and at times Magistracy in this country addresses a  

problem of such serious dimensions.     

STORAGE:

15.    The Narcotic Drugs and Psychotropic Substances Act,  

1985 does not make any special provision regulating storage  

of the contraband substances. All that Section 55 of the Act  

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envisages is  that the officer  in charge of a Police Station  

shall  take charge of  and keep in  safe custody the seized  

article pending orders of the Magistrate concerned. There is  

no provision nor was any such provision pointed out to us by  

learned counsel for the parties prescribing the nature of the  

storage  facility  to  be  used  for  storage  of  the  contraband  

substances.  Even  so  the  importance  of  adequate  storage  

facilities  for  safe  deposit  and  storage  of  the  contraband  

material has been recognised by the Government inasmuch  

as Standing Order No.1/89 has made specific provisions in  

regard to the same. Section III of the said Order deals with  

“Receipt of Drugs in Godowns and Procedure” which  inter  

alia  provides  that  all  drugs  shall  invariably  be  stored  in  

“safes and vaults” provided with double locking system and  

that the agencies of the Central and the State Governments  

may  specifically  designate  their  godowns  for  storage  

purposes and such godowns should be selected keeping in  

view  their  security  angle,  juxtaposition  to  courts  etc.  We  

may usefully extract paras 3.2 to 3.9 comprising Section III  

supra at this stage for ready reference:  

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“3.2.   All  drugs  invariably  be  stored  in  safes  and  vaults  provided  with  double-locking  system.  Agencies  of  the  Central  and  State  Governments,   may specifically, designate their godowns for storage  purposes. The godowns should be selected keeping   in view their security angle, juxtaposition to courts   etc.  

3.3   Such godowns, as a matter of rule, shall be   placed under the over-all supervision and charge of   a  Gazetted  Officer  of  the  respective  enforcement   agency,  who  shall  exercise  utmost  care,   circumspection  and  personal  supervision  as  far  as   possible.  Each seizing officer shall deposit the drugs   fully  packed  and  sealed  in  the  godown  within  48   hours  of  such  seizure,  with  a  forwarding  memo  indicating  NDPS  Crime  No.  as  per  Crime  and   Prosecution  (C  &  P  Register)  under  the  new law,   name  of  the  accused,  reference  of  test  memo,   description  of  the  drugs,  total  no.  of   packages/containers etc.

3.4    The  seizing  officer,  after  obtaining  an   acknowledgement  for  such  deposit  in  the  format   (Annexure-I), shall hand acknowledged over such to   the Investigation Officer of the case along with the   case dossiers for further proceedings.

3.5   The  officer-in-charge  of  the  godown,  before   accepting the deposit of drugs, shall ensure that the   same are properly packed and sealed.  He shall also   arrange the packages/containers (case-wise and lot- wise) for quick retrieval etc.

3.6  The godown-in-charge is required to maintain a   register wherein entries of receipt should be made as   per format at Annexure-II.

3.7   It  shall  be  incumbent  upon  the  Inspecting   Officers  of  the  various  Departments  mentioned  at   Annexure II to make frequent visits to the godowns   for  ensuring  adequate  security  and  safety  and for   taking  measures  for  timely  disposal  of  drugs.  The   Inspecting  Officers  should  record  their   remarks/observations against Col. 15 of the Format   at Annexure-II.

3.8   The  Heads  of  the  respective  enforcement   agencies (both Central and State Governments) may  

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prescribe  such  periodical  reports  and  returns,  as   they  may  deem  fit,  to  monitor  the  safe  receipt,   deposit, storage, accounting and disposal of seized   drugs.  

3.9   Since  the  early  disposal  of  drugs  assumes   utmost  consideration  and  importance,  the   enforcement agencies may obtain orders for pre-trial   disposal  of  drugs  and  other  articles  (including  conveyance,  if  any)  by  having  recourse  to  the  provisions of sub-section (2) of Section 52A of the   Act.”      

It is evident from a plain reading of para 3.2 (supra) that  

storage  of  all  drugs  in  safes  and  vaults  has  been  made  

mandatory and that agencies of the Central and the State  

Governments  have  been  permitted  to  designate  their  

godowns for storage purposes. It is also clear that keeping  

in  view  the  importance  of  protecting  the  seized  drugs  

against  theft,  substitution  or  pilferage  the  Central  

Government  has  prescribed  that  such  godowns  shall  be  

placed  under  the  overall  supervision  and  charge  of  a  

gazetted officer of the respective enforcement agencies who  

shall  exercise  utmost  care,  circumspection  and  personal  

supervision  over  the  storage  facilities.  The  provision  

contained in paras 3.5, 3.6, 3.7 and 3.8 also are aimed at  

ensuring that the godown or storage facility is satisfactory  

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and those in-charge of the same are made accountable for  

its  upkeep  and  effective  management.  Subsequent  

Notification including Notification dated 16th January, 2015  

have in no way diluted the above requirement. The result is  

that  there  is  a  statutory  framework  which  governs  the  

storage of drugs and matters relating and incidental thereto.  

The question is whether the said statutory mechanism has  

been  effectively  implemented  by  the  Central  Government  

agencies  and  by  the  State  Governments.   Our  answer  

regretfully  is  in  the  negative.   It  is  evident  from  the  

responses  received  from  the  State  and  the  Central  

Government  agencies  that  no  notified  storage  facility-

godown  has  been  established  for  storage  of  the  seized  

drugs. Even the Narcotics Control Bureau has admitted to  

using  mallkhana  of  the  Courts  for  storage  of  the  seized  

drugs  in  certain  cases  and  in  certain  circumstances.  The  

Customs and Central Excise Department and DRI have also  

stated  that  they  have  no  designated  storage  facility  for  

storage  of  contraband.  The  position  in  the  States  is  no  

different. Due to non-availability of any designated godown-

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facility  with  adequate  vaults  and double  lock  system,  the  

seized contraband is stored in police maalkhana which is a  

common storage facility for all kinds of goods and weapons  

seized  in  connection  with  all  kinds  of  offences  including  

those specified by the IPC. This  is  a  totally  unhappy and  

unacceptable  situation  to  say  the  least.   It  is  indeed  

unfortunate  that  even  after  a  lapse  of  26  years  since  

Standing  Order  No.  1/89  was  issued,  the  Central  

Government  or  its  agencies  and  the  State  Governments  

have paid  little  or  no attention  to the need for  providing  

adequate storage facilities of the kind stipulated in Standing  

Order  No.  1/89 with the necessary supervisory and other  

controls  prescribed  in  Section  III  of  the  said  order.  The  

result is that while Standing Order No. 1/89 very early in  

point  of  time recognized the need for  providing adequate  

and effective storage facilities by the States and the Central  

Government agencies, the failure on the part of the Central  

Government and the State Governments to provide for such  

storage has  defeated,  if  not  completely  negated the very  

purpose underlying the said notification and the provisions  

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made  therein.  There  is  as  on  date  hardly  any  credible  

protection  against  theft,  replacement,  pilferage  and  

destruction  of  the  seized  drugs  on  account  of  the  wholly  

unsatisfactory and unscientific method of storage of drugs  

and  psychotropic  substances  which  at  times  hit  the  

headlines  in  newspapers  on  account  of  what  is  often  

described  by  the  agencies  as  “big  catch”  worth  crores  of  

rupees  in  the  international  market.  What  has  defied  our  

understanding  is  the  neglect  on  the  part  of  the  Central  

Government and its agencies and the State Governments in  

realizing  the  importance  of  the  storage  facilities  and  in  

providing for the same to prevent hazardous and at times  

lethal substances with great potential to do harm to those  

who use the same from being replaced, pilfered, stolen or  

siphoned out on account of very poor supervision, control or  

invigilation over such storage facilities.  The learned amicus  

has in that view very rightly argued that there is a complete  

failure  on  the  part  of  the  Central  Government  and  its  

agencies as also the State Governments in taking adequate  

steps  for  providing  proper  storage  facilities  with  proper  

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system of supervision and control over the drugs that are  

stored in the same.  It was contended by Mr. Sinha, and in  

our  opinion  rightly  so,  that  the  cumulative  effect  of  the  

reports submitted by the States and the Central agencies is  

that only 16% of the contrabands seized between 2002 to  

2012 have been actually disposed of. What happened to the  

remaining 84% of such seizures is anybody’s guess and if it  

is still lying in the police maalkhana, why has nobody ever  

bothered  to  apply  for  their  disposal  according  to  the  

procedure established by law is  hard to fathom. The fact  

that the States and the Central Government agencies have  

accepted that no specific register is maintained by the State  

Police and that general  maalkhana register  alone is  being  

maintained  for  the  seized  drugs  shows the  neglect  of  all  

concerned towards  this  important  aspect  and the cavalier  

manner in which the issue regarding storage of ceased drugs  

is approached by them.  Absence of periodical inspection of  

the storage facility and the absence of any record suggesting  

that  any  inspection  has  been  carried  out  by  any  of  the  

officers  shows  a  complete  failure  bordering  criminal  

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negligence by officers who are supposed to be taking action  

in this regard but have failed to do so.   

16. The  menace  of  drugs  in  this  country,  as  observed  

earlier  has  alarming  dimensions  and  proportions.  Studies  

based on conferences and seminars have very often shown  

that the menace is deep rooted not  only because drug lords  

have  the  money  power  and  transnational  links  but  also  

because  the  enforcement  agencies  like  the  Police  and  at  

times politicians in power help them in carrying on what is  

known to be a money spinning and flourishing trade.  We  

only  hope  that  the  failure  of  the  Central  Government  

agencies and the State Governments in providing what is  

the  bare  minimum in  terms  of  infrastructure  required  to  

arrest  the growing menace and prevent  pilferage and re-

circulation of drugs back into the market is not on account of  

any unholy  connect  between the drug traffickers  and the  

enforcement  agencies.   We  would  comfort  ourselves  by  

presuming  them  to  be  relatable  only  to  apathy  and  

indifference  and  hope  that  the  system  does  not  get  

corrupted by continued neglect lest all hopes are lost in the  

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fight against drug menace which are eating into the vitals of  

our society.  It is in that spirit that we deem it necessary to  

issue  appropriate  directions  to  the  Central  Government  

agencies  and  to  the  States  to  set  up  adequate  storage  

facilities  with effective supervisory and regulatory controls  

as prescribed in Notification No. 1/89.

Disposal of Drugs  :   

17. Section 52A as amended provides for disposal of the  

seized  contraband  in  the  manner  stipulated  by  the  

Government  under  Clause  1  of  that  Section.  Notification  

dated 16th January, 2015 has, in supersession of the earlier  

notification dated 10th May, 2007 not only stipulates that all  

drugs and psychotropic substances have to be disposed off  

but also identifies the officers who shall  initiate action for  

disposal and the procedure to be followed for such disposal.  

Para 4 of the Notification inter alia, provides that officer-in-

charge of the Police Station shall within 30 days from the  

date  of  receipt  of  chemical  analysis  report  of  drugs,  

psychotropic  substances  or  controlled  substances apply  to  

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any Magistrate under Section 52A(2) in terms of Annexure 2  

to the said Notification.   

18. Sub-para  (2)  of  Para  (4)  provides  that  after  the  

Magistrate  allows the application under  sub-section (3) of  

Section 52A, the officer mentioned in sub para (1) of Para  

(4) shall preserve the certified inventory, photographs and  

samples drawn in the presence of the Magistrate as primary  

evidence for the case and submit details of seized items to  

the Chairman of the Drugs Disposal committee for a decision  

by the Committee on the question of disposal.  The officer  

shall also send a copy of the details along with the items  

seized to the officer in-charge of the godown.  Para (5) of  

the  notification  provides  for  constitution  of  the  Drugs  

Disposal  Committee  while  para  (6)  specifies  the functions  

which  the  Committee  shall  perform.  In  para  (7)  the  

notification  provides  for  procedure  to  be  followed  with  

regard  to  disposal  of  the  seized  items,  while  para  (8)  

stipulates the quantity or the value upto which the Drugs  

Disposal Committee can order disposal of the seized items.  

In  terms  of  proviso  to  para  (8)  if  the  consignments  are  

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larger in quantity or of higher value than those indicated in  

the table, the Drugs Disposal Committee is required to send  

its  recommendations  to  the  head of  the  department  who  

shall then order their disposal by a high level Drugs Disposal  

Committee specially constituted for that purpose. Para (9)  

prescribes  the  mode of  disposal  of  the  drugs,  while  para  

(10) requires the Committee to intimate to the head of the  

Department  the  programme  of  destruction  and  vest  the  

head  of  the  Department  with  the  power  to  conduct  a  

surprise check or depute an officer to conduct such checks  

on destruction operation. Para (11) deals with certificate of  

destruction while paras (12) and (13) deal with details  of  

sale  to  be  entered  into  the  godown  register  and  

communication to be sent to Narcotic Control Bureau.   

19. There are two other aspects that need to be noted at  

this stage. The first is that notification dated 16th January,  

2015 does not in terms supersede Standing Order No. 1/89  

insofar  as  the  said  Standing  Order  also  prescribes  the  

procedure to be followed for disposal of Narcotic Drugs and  

Psychotropic  and  controlled  Substances  and  Conveyances.  

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Specific overriding of the earlier Standing Order would have  

avoided a certain amount of confusion which is evident on  

account  of  simultaneous  presence  of  Standing  Order  No.  

1/89 and notification dated 16th January, 2015. For instance  

in para (1) of Standing Order No. 1/89 only certain narcotic  

drugs  and  psychotropic  substances  enumerated  therein  

could be disposed of while notification dated 16th January,  

2015  provides  for  disposal  of  all  Narcotic  Drugs  and  

Psychotropic  and  controlled  Substances  and  Conveyances.  

Again in terms of Standing Order No. 1/89 the procedure for  

making of application was marginally different from the one  

stipulated in Notification dated 16th January, 2015 not only  

insofar as the procedure related to the officers who could  

make the application is concerned but also in relation to the  

procedure  that  the  DDC  would  follow  while  directing  

disposal.  In both the notifications are prescribed the limits  

upto which the disposal could be directed.  In case of excess  

quantity the disposal under the Standing Order No. 1/89 had  

to be done in the presence of the head of the Department  

whereas according to notification of  2015 in  the event of  

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excess quantity or value the disposal has to be by a high  

level Drug Disposal Committee to be constituted by the head  

of the Department.  Again while Standing Order No. 1/89  

specifically required the approval of the Court for disposal,  

notification dated 16th January, 2015 does not stipulate such  

approval as a specific condition. Be that as it may, to the  

extent  the  subsequent  notification  prescribes  a  different  

procedure, we treat the earlier  notification/Standing Order  

No. 1/89 to have been superseded. In order to avoid any  

confusion  arising  out  of  the  continued  presence  of  two  

notifications  on  the  same  subject  we  make  it  clear  that  

disposal of Narcotic Drugs and Psychotropic and controlled  

Substances  and  Conveyances  shall  be  carried  out  in  the  

following manner till such time the Government prescribes a  

different procedure for the same:    

(1) Cases where the trial is concluded and proceedings in    appeal/revision have all concluded finally:  

In  cases  that  stood finally  concluded at  the  trial,  appeal,  

revision and further appeals, if any, before 29th May, 1989  

the  continued  storage  of  drugs  and  Narcotic  Drugs  and  

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Psychotropic and controlled Substances and Conveyances is  

of  no  consequence  not  only  because  of  the  considerable  

lapse of  time since the conclusion of  the proceedings but  

also because the process of certification and disposal after  

verification and testing may be an idle formality.  We say so  

because even if upon verification and further testing of the  

seized  contraband  in  such  already  concluded  cases  it  is  

found that the same is either replaced, stolen or pilferaged,  

it will be difficult if not impossible to fix the responsibility for  

such theft, replacement or pilferage at this distant point in  

time.  That  apart,  the  storage  facility  available  with  the  

States, in whatever satisfactory or unsatisfactory conditions  

the same exist, are reported to be over-flowing with seized  

contraband goods.  It would, therefore, be just and proper  

to direct that the Drugs Disposal Committees of the States  

and the Central agencies shall take stock of all such seized  

contrabands and take steps for their  disposal  without any  

further  verification,  testing  or  sampling  whatsoever.  The  

concerned  heads  of  the  Department  shall  personally  

supervise the process of destruction of drugs so identified  

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for  disposal.  To the extent the seized Drugs and Narcotic  

Substances  continue  to  choke  the  storage  facilities  and  

tempt the unscrupulous to indulge in pilferage and theft for  

sale or circulation in the market, the disposal of the stocks  

will reduce the hazards that go with their continued storage  

and availability in the market.     

(2) Drugs that are seized after May, 1989 and where the    trial and appeal and revision have also been finally disposed  of:  

In this category of cases while the seizure may have taken  

place after  the introduction of  Section 52A in the Statute  

book the non-disposal  of  the drugs over a long period of  

time would also make it difficult to identify individuals who  

are  responsible  for  pilferage,  theft,  replacement  or  such  

other mischief  in connection with such seized contraband.  

The requirement of  para 5.5 of standing order No. 1/89 for  

such drugs to be disposed of after getting the same tested  

will  also  be  an  exercise  in  futility  and impractical  at  this  

distant point in time.  Since the trials stand concluded and  

so also the proceedings in appeal, Revision etc. insistence  

upon sending the sample from such drugs for testing before  53

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the same are disposed of will be a fruitless exercise which  

can be dispensed with having regard to the totality of the  

circumstances  and  the  conditions  prevalent  in  the  

maalkhanas and the so called godowns and storage facilities.  

The DDCs shall accordingly take stock of all such Narcotic  

Drugs  and  Psychotropic  and  controlled  Substances  and  

Conveyances  in  relation  to which the trial  of  the accused  

persons  has  finally  concluded  and  the  proceedings  have  

attained finality at all levels in the judicial hierarchy.  The  

DDCs  shall  then  take  steps  to  have  such  stock  also  

destroyed under the direct supervision of the head of the  

Department concerned.

(3)  cases in which the proceedings are still pending before  the  Courts  at  the  level  of  trial  court,  appellate  court  or  before the Supreme Court:

In such cases the heads of the Department concerned shall  

ensure  that  appropriate  applications  are  moved  by  the  

officers  competent  to  do  so  under  Notification  dated  16th  

January,  2015  before  the  Drugs  Disposal  Committees  

concerned and steps for disposal of such Narcotic Drugs and  

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Psychotropic  and  controlled  Substances  and  Conveyances  

taken without any further loss of time.  

20. To sum up we direct as under:

(1) No  sooner  the  seizure  of  any  Narcotic  Drugs  and  

Psychotropic  and  controlled  Substances  and  

Conveyances  is  effected,  the  same  shall  be  

forwarded  to  the  officer  in-charge  of  the  nearest  

police  station  or  to  the  officer  empowered  under  

Section  53 of  the  Act.  The  officer  concerned shall  

then  approach  the  Magistrate  with  an  application  

under  Section  52A(ii)  of  the  Act,  which  shall  be  

allowed  by  the  Magistrate  as  soon  as  may  be  

required  under  Sub-Section  3  of  Section  52A,  as  

discussed by us in the body of this judgment under  

the  heading  ‘seizure  and  sampling’.  The  sampling  

shall  be  done  under  the  supervision  of  the  

magistrate as discussed in paras 13 and 14 of this  

order.

(2) The Central Government and its agencies and so also  

the State Governments shall within six months from  55

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today  take  appropriate  steps  to  set  up  storage  

facilities for the exclusive storage of seized Narcotic  

Drugs  and  Psychotropic  and  controlled  Substances  

and  Conveyances  duly  equipped  with  vaults  and  

double locking system to prevent theft, pilferage or  

replacement  of  the  seized  drugs.  The  Central  

Government and the State Governments shall  also  

designate an officer each for their respective storage  

facility  and  provide  for  other  steps,  measures  as  

stipulated  in  Standing  Order  No.  1/89  to  ensure  

proper  security  against  theft,  pilferage  or  

replacement of the seized drugs.  

(3) The Central Government and the State Governments  

shall  be  free  to  set  up  a  storage facility  for  each  

district in the States and depending upon the extent  

of seizure and store required, one storage facility for  

more than one districts.  

(4) Disposal  of  the seized drugs currently  lying in  the  

police maalkhans and other places used for storage  

shall be carried out by the DDCs concerned in terms  

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of  the directions  issued by us  in  the  body of  this  

judgment under the heading ’disposal of drugs’.     

21. Keeping  in  view  the  importance  of  the  subject  we  

request the Chief Justices of the High Courts concerned to  

appoint a Committee of Judges on the administrative side to  

supervise  and  monitor  progress  made  by  the  respective  

States in regard to the compliance with the above directions  

and wherever necessary, to issue appropriate directions for  

a  speedy  action  on  the  administrative  and  even  on  the  

judicial  side  in  public  interest  wherever  considered  

necessary.   

22. List the appeal for final hearing now on an early date.  

……………………….…….…CJI.                (T.S. THAKUR)

………………………….…..……J.                       (KURIAN JOSEPH)

New Delhi January 28, 2016

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