Continued from Part I…
Rights of the Child
The UN Convention on the Rights of the Child, 1989 to which India is a signatory, states, via Article 19, that – ‘State Parties shall take all appropriate legislative, administrative, social and educational measures to protect the child from all forms of physical or mental violence, injury or abuse, neglect or negligent treatment, maltreatment or exploitation, including sexual abuse, while in the care of parent(s), legal guardian(s) or any other person who has the care of the child...’
Article 34 states that – ‘States Parties undertake to protect the child from all forms of sexual exploitation and sexual abuse. For these purposes... take all appropriate national, bilateral and multilateral measures to prevent:
- The inducement or coercion of a child to engage in any unlawful sexual activity;
- The exploitative use of children in prostitution or other unlawful sexual practices; and
- The exploitative use of children in pornographic performances and materials.’
Existing Legislation that deals with CSA
In India, there is no specific central legislation aimed at protecting children from sexual abuse, sexual violence or trafficking, with most cases being tried under the existing legislation, which is more general in nature and includes –
- The Indian Penal Code, 1860
- The Immoral Traffic Prevention Act, 1956
- The Prohibition of Child Marriages Act, 2006
- Indecent Representation of Women (Prohibition) Act, 1986
- The Information Technology Act, 2000
India has over the years, apart from several domestic cases of CSA and other forms of abuse against children, also gone on the world map as a popular destination for paedophiles, who come in search of easy pickings from among poor and migrant labour families who often either willingly hand over their children for cash, or who have their children picked up by pimps and touts for supply to these sexual predators, through an elaborate network that comprises tour companies, hotels and tourist guides often working in conjunction with law enforcement authorities who turn a blind eye to such activities.
The Goa Children’s Act, 2003 – A step in the right direction
The State of Goa, a popular tourist destination for Indian and foreign tourists, in an effort to curb instances of offences against children, including CSA, passed The Goa Children’s Act, 2003. The Act amended in 2005, states it to be –
"An Act to protect, promote and preserve the best interests of Children in Goa and to create a society that is proud to be child friendly."
Under the Act, a ‘Child’ is defined as – ‘any person who has not completed 18 years of age unless any other law in force specifies otherwise or unless otherwise indicated in specific provisions in this Act. Provided that in so far as a victim in an offence of rape is concerned, “child” shall mean any person who has not completed 16 years of age’.
The act also defines terms like – ‘child abuse’, ‘commercial sexual exploitation of children’, and the term ‘sexual offence’ which covers offences like grave sexual assault and sexual assault and acknowledges for the first time ever the crime of incest, and lays down the penalties for these offences, in the case of child abuse or sexual assault – a term of imprisonment which may extend to three years and a fine of Rs.1 lakh. And in the case of grave sexual assault, and incest, imprisonment for ten years but which may extend to life imprisonment, and a fine of Rs.2 lakh.
The Act also brings within its ambit – hotels and other establishments that provide boarding and lodging and similar facilities - to ensure that children on their premises and in the adjoining areas, including beaches, parks etc. to which they have access, are kept safe and free from the risk of potential child abuse, putting the onus of responsibility on the owner and manager of such establishments, making them liable to imprisonment and fine.
In addition the Act expands the role of the State in ensuring that children are protected from abuse, sexual offences, trafficking, prostitution and the violation of their rights by making it incumbent on the State to provide for the setting up of Victim Assistance Units to deal with cases of abuse, and assist the child in the various processes involved in appearing before any Court or authority handling cases of child abuse. The State is also required to carry out child sensitization programmes for police officers at all levels, including an orientation on child rights laws as part of police training school curriculum, as well as child sensitization training for all those involved in healing, rehabilitation and other assistance programmes for children who are victims of abuse, which includes the promotion of programs of information support and training for such children.
Central Legislation on CSA & the Protection of Children from Sexual Offences Bill, 2011
The Ministry of Women and Child Development meanwhile taking a cue from the Goa legislation, introduced the Offences against Children Bill, 2005, which after a couple of years of deliberation was rejected by the Law Ministry as unnecessary since, “most provisions for child protection already exist in different laws and therefore, there is no need for a separate enactment of legislation”.
The Bill, revived as The Protection of Children from Sexual Offences Bill, 2011, was introduced in the Rajya Sabha on 23rd March 2011 by the Union minister of Women and Child Development, Krishna Tirath, during the Budget session of Parliament and was referred to the Department-related Parliamentary Standing Committee on Human Resource Development by the Chairman, Rajya Sabha.[1]
The Bill seeks – ‘to protect children from offences of sexual assault, sexual harassment and pornography and provide for the establishment of Special Courts for trial of such offences…’
Some of the key features of the Bill include –
1. Definitions under the Act
The Bill is quite explicit in its definitions of the various sexual offences enumerated under the Act, and covers the following forms of sexual abuse among others, namely –
A person commits sexual harassment if - he uses words or shows body parts to a child with sexual intent, or shows pornography to a child or threatens to depict a child involved in sexual act through the media.
Sexual assault occurs when any person touches the vagina, penis, anus or breast of a child with sexual intent without penetration. (If the child is between 16 and 18 years, consent of the child will be a factor to be considered, as well as whether the consent was obtained against the child’s will or by threat or deceit.)
Aggravated sexual assault occurs when any act of sexual assault on a child is committed by a police officer, a member of the armed forces or a public servant, and includes gang sexual assault and assault using deadly weapons, fire or corrosive substances. The Bill also covers assault by staff of a private hospital and staff of an educational institution if the child is in that institution as well as those acts of sexual assault that injure the sexual organs of the child or takes place during communal violence or lead to pregnancy in the child or causes any disease such as HIV/Aids, or if the child is below is below 12 years of age. The definition also covers the crime of incest, i.e. sexual offences committed on the child by a relative of the child through blood or adoption or marriage or foster care or is living in the same household.
Penetrative sexual assault occurs when a person penetrates his penis into the vagina, mouth, urethra or anus of a child or makes a child do the same or inserts any other object into the child’s body or applies his mouth to a child’s body parts. (Consent of the child will be considered if the child is between 16 and 18 years of age, however it will also be considered if such consent was obtained against his will of the child or whether the same was obtained by providing the child with drugs, or by impersonation, fraud, undue influence, or when the child was sleeping or unconscious.
Aggravated penetrative sexual assault - will follow the similar provisions of aggravated sexual assault to cover all acts of penetrative sexual assault on a child committed by a police officer, a member of the armed forces or a public servant etc.
2. Penalties under the Act
The Bill defining a ‘child’ to be any person below the age of 18 years, seeks to penalize persons who commit offences such as – sexual harassment, sexual assault, penetrative sexual assault, aggravated penetrative sexual assault and use of a child for pornographic purposes, defining these offences elaborately, to encompass all forms of sexual abuse, including that of incest, even though it does not use the term. The penalties for these offences vary according to the nature of the offence, with terms of imprisonment ranging from –
- 3 years and fine (in the case of sexual harassment);
- 3 to 5 years and fine (in the case of the offence of sexual assault);
- 5 to 7 years and fine (in the case of aggravated sexual assault);
- 7 years to life and a fine (in the case of penetrative sexual assault); and
- 10 years to life and fine (in the case of aggravated penetrative sexual assault).
The use of a child for pornographic purposes, earns a maximum penalty of rigorous imprisonment of 5 years and fine, which increases to 7 years and fine in case of a second/subsequent conviction. In case the use of the child for pornographic purposes is coupled with the offence of sexual assault or penetrative sexual assault including aggravated forms of the offence, the accused shall be punishable with life imprisonment and fine. Abetment in any of the offences under this act shall earn the abettor the same penalty as that provided for the offence he/she has abetted.
3. Attempt to commit any offence
While the Bill has been fairly comprehensive, with regard to the offences covered therein and the penalties prescribed thereunder, one of the areas of concern in my opinion exists in the penalty prescribed for ‘attempt to commit any offence punishable under this act’ covered under Clause 18. Under this provision – ‘whoever attempts to commit any offence punishable under this Act, or to cause such an offence to be committed, and in such attempt does any act towards the commission of the offence, shall be punished with imprisonment of either description which may extend to one year or with fine or with both.’ It is my concern that this provision leaves the field open for abusers to get away with a negligible penalty.
The Indian judicial system has on several occasions, acquitted offenders or convicted them of lesser offences in the case of sexual crimes against children, deeming that the bodies of children are too immature for sexual activity. A case in point is that of –
State of Punjab v Major Singh [1967 AIR 63, 1966 SCR (2) 286], where the accused having raped a seven and half month baby girl was convicted of the offence of ‘outraging the modesty of a woman’ under Sec 354, IPC. That the Court did not see it fit to upgrade the charge to one of rape speaks terribly of the judicial system. The accused was awarded rigorous imprisonment for a term of 2 years and a fine of Rs. 1000, of which Rs. 500 was to be paid to the victim as compensation.
4. Speedy trials/Special courts and Prosecutors
The legal system in India is plagued by delays, which not only prolong the agony for the victim, but often work in favour of the influential abuser and against those who may belong to more impoverished circumstances.
In the attempt to provide for the speedy trial of sexual offences, the Bill provides for a Special Court (a Court of Sessions is to be designated as such) with a Special Public Prosecutor to try the same. Trials are also to be conducted in camera and in the presence of either the parents of the child or a family member/guardian/friend or relative of the child, with questions from both the prosecutor and the counsel appearing for the accused being put to the child by the court, to ensure that the child is not subjected to an aggressive line of questioning or character assassination.
5. Penalties for false complaints
The Bill also provides penalties for false complaints and false information, done to humiliate, extort, threaten or defame the accused. The Bill however excludes children below 16 years from any penalty for any false complaint or information made/given against the accused, which in my opinion is prone to misuse, as often especially in cases of divorce, it would not be uncommon for one parent to influence a child from making false statements about the other parent in order to spite them. While a term of remand may not seem the appropriate action to be taken against the child in such cases, there does need to be some form of counselling or therapy given to the child, to be mandated by the court, as well as a penalty imposed on the adult who has instigated the child.
6. Protecting the child from further exposure to the abuser
Another important feature is that the Bill seeks to protect the child from exposure to the accused during recording of the evidence, by either using a video conferencing facility, or by adopting the usage of single visibility mirrors or curtains or any other device, while at the same time making sure that the accused is in a position to hear the statement of the child and communicate with his advocate.
7. Where the abuser is a child
In the event that the abuser is another child, the provisions of the Juvenile Justice (Care and Protection of Children) Act, 2000 are to apply to such child, and the child would be treated as a child in conflict with the law, as per the provisions of that enactment.
8. Protecting the identity of the child
The Bill also envisages a set procedure for the media on reporting cases of child sexual abuse, barring them from giving personal details of the child (victim), including the name of the child and of members of the child’s family or any other form of reporting which can lead to the identification of the child.
While there is relief that the Bill has finally come close to the possible conclusion of its long journey towards enactment, what is eagerly awaited is the actual nod of Parliament and the Presidential assent on the same, without any negative corrections being made to the contents of the Bill, which may seek to dilute its potency, and render it ineffective. There are some areas however that do need to be addressed in Bill, as have been mentioned in places above. In addition, what is also conspicuous by its absence is the lack of counseling support from quality independent counselors, analyst and psychotherapists, as well as psychiatrists whose services should be requisitioned by the government to work closely not only with the traumatized victims but also with their offenders, due to the high incidents of recidivism with regard to such crimes.
The act should be one that not only penalizes the offender on commission of sexual offences against a child, but works with them to prevent further occurrences. It is imperative to realize that we need to change our laws from the mere penal to the preventive. Having stated this I look forward to the enactment seeing the light of day in 2011 itself. This is a law that is long overdue, and then perhaps we can also consider the Private Member Bill, which addresses exclusively the crime of incest, introduced by Rajya Sabha M.P. Mahendra Mohan, on 25th February 2011, namely – The Incest and Sexual Abuse in Family (Offences) Bill, 2010.[2]
It is time to take bold and speedy steps to safeguard our children and to uphold their right to a life that is full, free, and above all – safe from discrimination and abuse.