and directions can be issued by this Court including a command for
compliance of guidelines and standard operating procedure issued by
Government of India, Ministry of Road Transport and Highways, till
such time as the legislature steps in to substitute them by proper
legislation. This Court can issue such directions under Article 32 read
with Article 142 to implement and enforce the guidelines which are
necessary for protection of rights under Article 21 read with Article 14
of the Constitution of India so as to provide immediate help to the
victims of the accident and at the same time to provide protection to
Good Samaritans. The guidelines will have the force of law under
Article 141. By virtue of Article 144, it is the duty of all authorities –
judicial and civil – in the territory of India to act in aid of this Court by
implementing them.
We have carefully gone through the notification dated 12.5.2015.
However, as per the guidelines contained in para 13, the
‘acknowledgement’ if so desired by Good Samaritans, has to be issued
as may be prescribed in a standard format by the State Government. In
our opinion, till such time the format is prescribed, there should be no
vacuum hence we direct that acknowledgement be issued on official
letter-pad etc. and in the interregnum period, if so desired by Good
Samaritan, mentioning the name of Samaritan, address, time, date, place
of occurrence and confirming that the injured person was brought by the
said Samaritan.
We have also gone through the notification dated 21.1.2016 with
respect to the examination of Good Samaritan by the Police as contained
in para 2(vii) which we modify and be read in the following manner :
“The affidavit of Good Samaritan if filed, shall be
treated as complete statement by the Police official
while conducting the investigation. In case statement
is to be recorded, complete statement shall be
recorded in a single examination.”
Remaining guidelines in the notifications dated 12.5.2015 and
21.1.2016 are approved and it is ordered that guidelines with aforesaid
modifications made by us be complied with by the Union Territories and
all the functionaries of the State Governments as law laid down by this
Court under Article 32 read with Article 142 of the Constitution of India
and the same be treated as binding as per the mandate of Article 141.
REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL ORIGINAL JURISDICTION
WRIT PETITION (C) NO.235 OF 2012
Savelife Foundation & Anr. … Petitioners
Vs.
Union of India & Anr. … Respondents
Dated;March 30, 2016.
Citation;AIR 2016 SC1617
1. The petition has been filed under Article 32 of the Constitution of India
in public interest for the development of supportive legal framework to protect
Samaritans i.e. bystanders and passers-by who render the help to the victims of
road accidents. These individuals can play a significant role in order to save
lives of the victims by either immediately rushing them to the hospital or
providing immediate life saving first aid.
2. The petitioner is ‘SaveLife Foundation’, a non-profit, non-governmental
organization registered as a Public Charitable Trust and had been established in
2008. The petitioner aims to create a unique network of medical responders to
come to the victim’s aid. The petitioner has also drafted recommendations to
address the critical deficiencies in the Motor Vehicles Act, and other laws
governing road safety.Page 2
2
3. The Department of Road Transport is responsible for framing motor
vehicle legislation and evolving road safety standards in India. The WHO in
its ‘World Report on Road Traffic Injury Prevention, 2004’ has projected that
by 2020, road accidents will be one of the biggest killers in India. It also
emphasized that in low income countries, the most common desisting factor
restraining the public from coming forward to help victims, is the apparent fear
of being involved in police cases. There is need to build confidence amongst
the public to help road accident victims. Bystanders should not be insisted to
divulge their personal particulars or detained in the hospital for interrogation.
People are hesitant to render immediate help to the road accident victims. The
victims lay wounded on the road for some time till the arrival of police. Delay
rendering medical help in such cases sometimes is fatal. Good Samaritans
have the fear of legal consequences, involvement in litigation and repeated
visits to police station. There is urgent need to tackle these issues. There is
need to establish legal framework so that Good Samaritan is empowered to act
without any fear of adverse consequences or harassment. Save life must be the
top priority.
4. Several countries have enacted such laws. In England and Wales, the
Parliament has enacted the Social Action, Responsibility and Heroism Act 2015
which provides for certain factors to be considered by the Court while hearing
an action for negligence or breach of duty. Section 2 of the Act provides that
the Court must consider whether the respondent was acting for the benefit of
society or any of its members. Section 5 of the Act further provides that the
Court must consider whether the respondent was acting heroically by
intervening in an emergency to assist an individual in danger. In Ireland,
section 51D of the Civil Law (Miscellaneous Provisions) Act 2011 provides
that a good Samaritan will not be liable in negligence for any act done in
emergency to help person in serious and imminent danger. In Australia,
protection to good Samaritan is provided in several states. In New South
Wales and Victoria, for instance, a good Samaritan is protected from personal
civil liability with respect to anything done in state of emergency or accident
by virtue of Civil Liability Act 2002 and Wrongs Act 1958 respectively. In
Canada, various states like Ontario, Alberta and British Columbia offer
protection to good Samaritans. In Ontario, the Good Samaritan Act 2001, by
Section 2 (1), provides that except for gross negligence, a person is not liable
for damages resulting from his acts during aid in emergency. Similar protection
is provided in states of Alberta, British Columbia and Nova Scotia by
Emergency Medical Aid Act, Good Samaritan Act and Volunteer Services Act
respectively. Similar protection to good Samaritans is to be found in different
states’ laws in the USA. States of Alabama, Alaska, Arizona, Arkansas,
California and New York, to name a few, provide that if a person lends
emergency assistance or service to another person in good faith, he is not
liable in civil damages with respect to his act or omission.
5. Accident cases require fastest care and rescue which could be provided
by those closest to the scene of the accident. Bystanders clear support is
essential to enhance the chances of survival of victim in the ‘Golden Hour’ i.e.
the first hour of the injury. As per the WHO India Recommendations, 50% of
the victims die in the first 15 minutes due to serious cardiovascular or nervous
system injuries and the rest can be saved through by providing basic life
support during the ‘Golden Hour’. Right to life is enshrined under Article 21
which includes right to safety of persons while travelling on the road and the
immediate medical assistance as a necessary corollary is required to be
provided and also adequate legal protection and prevention from harassment to
good Samaritans.
6. In letter dated 9.9.2004, Joint Secretary, Department of Road Transport
and Highways addressed to all the State Governments and Union Territories, it
has been highlighted that the WHO in its World Report on Road Traffic Injury
Prevention, 2004 has pointed out that “while in high-income countries, there is
a reasonably well-organised ambulance based rescue system, in middle and
low-income countries, assistance by bystanders is most common. In our
country, while organizing of trauma care apart of intervention is also required,
there is another factor, namely, relative ignorance on part of public to come
forward to help the road crash victims, for apparent fear that they might be
involved in “police cases.” The letter further states that Research shows that a
number of the accident victims can be saved if they receive immediate medical
attention.” The letter also admits that due to fear of harassment people do not
always come forward to attend them.”
The Department of Road Transport and Highways had also sent letter
dated 19.2.2004 to the States and Union Territories enclosing a Circular issued
by the police authorities in Delhi in order to build confidence in the public for
helping road accident victims. The Circular stated that it is likely that the
person who brings the injured to the hospital would hesitate to provide his
particulars, and in such a case, it should not be insisted upon. Furthermore, it
was also stated therein that the escorters or the person who bring the victims to
the hospital should, under no circumstances, be detained in the hospital for
interrogation. It was suggested in the said letter that action on similar lines
may be considered by the States and UTs.
7. The people have the notion that touching the body could lend them
liable for police interrogation. Passerby plays safe and chose to wait for the
police to arrive whereas injured gradually bleeds to death. People are reluctant
to come forward for help despite, desperate attempts to get help from passerby,
by and large they turn blind eyes to the person in distress. Sometimes those
who help are rebuked due to ignorance by the others on touching the scene. In
the case of a convoy even when there are several vehicles in the convoy,
people wait for the ambulance to arrive and also for the concerned police help.
There are several desisting factors which are required to be taken care of such
as fear of legal consequences if once action is ineffective or harmful to victim,
fear of involvement in subsequent prolonged investigation and visit to the
police station. There is need to evolve the system by promptly providing
effective care system with certain ethical and legal principles. It is absolutely
necessary that Good Samaritans feel empowered to act without fear of adverse
consequence. There is need to provide certain incentives to Good Samaritans.
There is also dire need to enact a Good Samaritan Law in the country since
there is a felt need of legislation for affording protection to Good Samaritans.
8. While issuing notice on 17.8.2012, this Court has observed:
“It remains undisputed before us that it is not
insufficiency of law but it is implementation of law
which is a matter of concern. Different guidelines
including guidelines for ambulance Code, emergency
care and appropriate directions to the hospitals on the
highways for handling the accident trauma patients,
as a top priority are stated to have been issued.
Learned counsel appearing for the parties
submit that an expert committee would need to be
constituted to monitor the various directions issued
for their due compliance.
Learned counsel for the parties even propose to
make joint suggestions in this regard after consulting
the relevant Ministries and NHA. The counsel
appearing for the petitioner has vehemently argued
that the joint suggestions now to be filed should also
consider the directions and safeguards that could be
provided to the passers-by or informers of the
accident. This will even help the expeditious
disposal of criminal cases. Let this aspect be also
examined by the learned counsel appearing for the
parties who are to submit the joint suggestions.”
9. This Court vide order dated 11.12.2012 has constituted a
Committee consisting of 8 members and to submit the suggestions
before this Court. The members of the said Committee are as follows:
1. Additional Secretary of Ministry of Home Affairs;Page 7
7
2. Secretary and or his nominee, Ministry of Health and Family
Welfare to be nominated in consultation with Directorate General
Health Services;
3. Secretary and or his nominee from Ministry of Law and Justice;
4. Jt. Commissioner (Traffic) – Delhi Police;
5. Chief of the AIIMS Trauma Centre;
6. The Director General or his nominee not below the rank of the
Additional Director General of the Protection Road
Organizations;
7. Save Life foundation representative;
8. Mr. M.P. Tiwari or his nominee from any of the NAOS John
Ambulance representative.
The scope of reference of the Committee inter alia included
following aspects with which we are concerned in the instant matter;
“(ix) Identify the root causes for fear of harassment and legal
hassles in general public regarding helping injured
victims.
(x) Deliberate and develop a set of guidelines for protecting Good
Samaritans from police harassment and legal hassles. The
guidelines will aim to address the root causes for fear of
harassment and legal hassles in general public regarding
helping injured victims. These guidelines will also serve as a
foundation for further legislative work in the area of protecting
Good Samaritans.”
The Committee was required to submit report to this Court within
three months. On 14.8.2014, this Court passed an order to have the
views of concerned ministries of Union of India. This Court observed in
order dated 24.9.2014 that in this petition the only issue which is
required to be addressed is with regard to ‘Good Samaritans’. All other
issues that arise in the writ petition have already been referred to the
Committee headed by Mr. Justice K.S. Radhakrishnan, former Judge of
this Court.
10. This Court on 29.10.2014 has passed an order in view of affidavit
filed on behalf of Ministry of Road Transport and Highways wherein it
has been stated that the recommendation made in the Skandan
Committee’s report regarding protection of good Samaritans has been
accepted by the said ministry and also by Ministry of Law & Justice.
This Court directed both the ministries in consultation with each other to
issue necessary directions with regard to protection of good Samaritans
until appropriate legislation is made by the Union Legislature.
On 7.8.2015, this Court has noted that notification dated 12.5.2015
laying down ‘Good Samaritan Guidelines’ has been issued by the
Ministry of Road Transport and Highways, Government of India.
Suggestions were invited so as to give more teeth to the guidelines.
On 27.11.2015, this Court was informed by the learned Additional
Solicitor General that the suggestions given have been incorporated in
the form of Standard Operating Procedure which has been issued as an
Office Memorandum. The views of Ministry of Health and Family
Welfare, Ministry of Home Affairs and Ministry of Law and Justice are
awaited. This Court issued a direction to look into the possibility of
giving statutory status to the Standard Operating Procedure either in the
form of a notification or regulations or guidelines.Page 9
9
11. The Ministry of Road Transport and Highways has issued a
notification containing guidelines on 12.5.2015 published in the Gazette
of India para 1 of Section 1 of the Notification dated 12.5.2015 for
protection of good Samaritans and a further Notification has been issued
on 21.1.2016 in accordance with para 1(7) and 1(8) of the guidelines
dated 12.5.2015 which required standard operating procedures to be
framed and issued for examination of good Samaritans by the police or
during trial. It has been mentioned in the affidavit filed by Ministry of
Road Transport and Highways, Government of India that in the absence
of any statutory backing, it is felt that it will be difficult to enforce these
guidelines issued on 12.5.2015 and standard operating procedures as
notified on 21.1.2016. It has also been mentioned that the notified
guidelines in relation to protection of a bystander or good Samaritan are
without prejudice to the liability of the driver of a motor vehicle
involved in the road accident, as specified under section 134 of the
Motor Vehicles Act, 1988.
Notification dated 12.5.2015 issued by the Ministry of Road
Transport and Highways containing guidelines for protection of good
Samaritans to be in force till appropriate legislation is framed by Union
Legislature, is extracted hereunder:
“No.25035/101/2014-RS.—Whereas the Hon'ble
Supreme Court in the case of Savelife Foundation
and another V/s. Union Of India and another in WritPage 10
10
Petition (Civil) No. 235 of 2012 vide its order dated
29th October, 2014, interalia, directed the Central
Government to issue necessary directions with regard
to the protection of Good Samaritans until
appropriate legislation is made by the Union
Legislature;
And whereas, the Central Government considers it
necessary to protect the Good Samaritans from
harassment on the actions being taken by them to
save the life of the road accident victims and,
therefore, the Central Government hereby issues the
following guidelines to be followed by hospitals,
police and all other authorities for the protection of
Good Samaritans, namely:-
1. (1) A bystander or good Samaritan including an
eyewitness of a road accident may take an injured
person to the nearest hospital, and the bystander or
good Samaritan should be allowed to leave
immediately except after furnishing address by the
eyewitness only and no question shall be asked to
such bystander or good Samaritan.
(2) The bystander or good Samaritan shall be suitably
rewarded or compensated to encourage other citizens
to come forward to help the road accident victims by
the authorities in the manner as may be specified by
the State Governments.
(3) The bystander or good Samaritan shall not be
liable for any civil and criminal liability.
(4) A bystander or good Samaritan, who makes a
phone call to inform the police or emergency services
for the person lying injured on the road, shall not be
compelled to reveal his name and personal details on
the phone or in person.
(5) The disclosure of personal information, such as
name and contact details of the good Samaritan shall
be made voluntary and optional including in the
Medico Legal Case (MLC) Form provided by
hospitals.
(6) The disciplinary or departmental action shall be
initiated by the Government concerned against public
officials who coerce or intimidate a bystander or
good Samaritan for revealing his name or personal
details.
(7) In case a bystander or good Samaritan, who has
voluntarily stated that he is also an eye-witness to the
accident and is required to be examined for the
purposes of investigation by the police or during the
trial, such bystander or good Samaritan shall be
examined on a single occasion and the State
Government shall develop standard operating
procedures to ensure that bystander or good
Samaritan is not harassed or intimidated.
(8) The methods of examination may either be by
way of a commission under section 284, of the Code
of Criminal Procedure 1973 or formally on affidavit
as per section 296, of the said Code and Standard
Operating Procedures shall be developed within a
period of thirty days from the date when this
notification is issued.
(9) Video conferencing may be used extensively
during examination of bystander or good Samaritan
including the persons referred to in guideline (1)
above,who are eye witnesses in order to prevent
harassment and inconvenience to good Samaritans.
(10) The Ministry of Health and Family Welfare shall
issue guidelines stating that all registered public and
private hospitals are not to detain bystander or good
Samaritan or demand payment for registration and
admission costs, unless the good Samaritan is a
family member or relative of the injured and the
injured is to be treated immediately in pursuance of
the order of the Hon’ble Supreme Court in Pt.
Parmanand Katara vs Union of India & Ors [1989] 4
SCC 286.
(11) Lack of response by a doctor in an emergency
situation pertaining to road accidents, where he is
expected to provide care, shall constitute
“Professional Misconduct”, under Chapter 7 of the
Indian Medical Council (Professional Conduct,
Etiquette and Ethics) Regulation, 2002 and
disciplinary action shall be taken against such doctor
under Chapter 8 of the said Regulations.
(12) All hospitals shall publish a charter in Hindi,
English and the vernacular language of the State or
Union territory at their entrance to the effect that they
shall not detain bystander or good Samaritan or ask
depositing money from them for the treatment of a
victim.
(13) In case a bystander or good Samaritan so
desires, the hospital shall provide an
acknowledgement to such good Samaritan,
confirming that an injured person was brought to the
hospital and the time and place of such occurrence
and the acknowledgement may be prepared in a
standard format by the State Government and
disseminated to all hospitals in the State for
incentivising the bystander or good Samaritan as
deemed fit by the State Government.
(14) All public and private hospitals shall implement
these guidelines immediately and in case of
noncompliance or violation of these guidelines
appropriate action shall be taken by the concerned
authorities.
(15) A letter containing these guidelines shall be
issued by the Central Government and the State
Government to all Hospitals and Institutes under
their respective jurisdiction, enclosing a Gazette copy
of this notification and ensure compliance and the
Ministry of Health and Family Welfare and Ministry
of Road Transport and Highways shall publish
advertisements in all national and one regional
newspaper including electronic media informing the
general public of these guidelines.
2. The above guidelines in relation to protection of
bystander or good Samaritan are without prejudice to
the liability of the driver of a motor vehicle in the
road accident, as specified under section 134 of the
Motor Vehicles Act, 1988 (59 of 1988).
Sd/- Jt. Secy.”
12. Para 1(7) and 1(8) of the guidelines dated 12.5.2015 required
standard operating procedure to be framed for the examination of the
good Samaritans. The Central Government, Ministry of Road Transport
and Highways has issued notification on 21.1.2016 which is as under:
“No. RT-25035/101/2014-RS.—Whereas, the
Hon'ble Supreme Court in the case of Save Life
Foundation and another Vs Union of India and
another in Writ Petition (Civil) No. 235/2012 vide its
order dated 29th October 2014, inter-alia, directed to
issue necessary directions with regard to the
protection of Good Samaritans until appropriate
legislation is made by the Union Legislature;
And whereas, the Central Government published the
guidelines in the Gazette of India, Extraordinary, Part
I, Section I dated 12th May 2015 for protection of the
Good Samaritans, i.e. a person who is a bystander or
a passer-by, who chooses to assist an injured person
or a person in distress on the road;
And whereas, as per para 1 (7) and (8) of the said
guidelines dated 12th May, 2015, Standard Operating
Procedures are to be framed for the examination of
Good Samaritans by the Police or during trial;
And whereas, the Central Government considers it
necessary to issue Standard Operating Procedure for
the examination of Good Samaritans by the Police or
during trial and here by issue the following standard
operating procedure, namely:—
1. 1. The Good Samaritan shall be treated
respectfully and without any discrimination on the
grounds of gender, religion, nationality, caste or any
other grounds.
2. Any person who makes a phone call to the Police
control room or Police station to give information
about any accidental injury or death, except an
eyewitness may not reveal personal details such as
full name, address, phone number etc.
3. Any Police official, on arrival at the scene, shall
not compel the Good Samaritan to disclose his / her
name, identity, address and other such details in the
Record Form or Log Register.
4. Any Police official or any other person shall not
force any Good Samaritan who helps an injured
person to become a witness in the matter. The option
of becoming a witness in the matter shall solely rest
with the Good Samaritan.
5. The concerned Police official(s) shall allow the
Good Samaritan to leave after having informed the
Police about an injured person on the road, and no
further questions shall be asked if the Good
Samaritan does not desire to be a witness in the
matter.
2. Examination of Good Samaritan by the Police
i. In case a Good Samaritan so chooses to be a
witness, he shall be examined with utmost care and
respect and without any discrimination on the
grounds of gender, religion, nationality, caste or any
other grounds.
ii. In case a Good Samaritan chooses to be a witness,
his examination by the investigating officer shall, as
far as possible, be conducted at a time and place of
his convenience such as his place of residence or
business, and the investigation officer shall be
dressed in plain clothes, unless the Good Samaritan
chooses to visit the police station.
iii. Where the examination of the Good Samaritan is
not possible to be conducted at a time and place of
his convenience and the Good Samaritan is required
by the Investigation Officer to visit the police station,
the reasons for the same shall be recorded by such
officer in writing.
iv. In case a Good Samaritan so chooses to visit the
Police Station, he shall be examined in a single
examination in a reasonable and time-bound manner,
without causing any undue delay.
v. In case the Good Samaritan speaks a language
other than the language of the Investigating Officer
or the local language of the respective jurisdiction,
the Investigating Officer shall arrange for an
interpreter.
vi. Where a Good Samaritan declares himself to be
an eye-witness, he shall be allowed to give his
evidence on affidavit, in accordance with section 296
of the Code of Criminal Procedure, 1973 (2 of 1974)
which refers to Evidence in Formal Character on
Affidavit.
vii. The complete statement or affidavit of such Good
Samaritan shall be recorded by the Police official
while conducting the investigation in a single
examination.
viii. In case the attendance of the Good Samaritan
cannot be procured without delay, expense orPage 15
15
inconvenience which, under the circumstances of the
case, would be unreasonable, or his examination is
unable to take place at a time and place of his
convenience, the Court of Magistrate may appoint a
commission for the examination of the Good
Samaritan in accordance with section 284 of the
Code of Criminal Procedure, 1973 (2 of 1974) on an
application by the concerned.
3. The Superintendent of Police or Deputy
Commissioner of Police or any other Police official
of corresponding seniority heading the Police force
of a District, as the case may be, shall be responsible
to ensure that all the above mentioned procedures are
implemented throughout their respective jurisdictions
with immediate effect.
Sd/- Jt. Secretary.”
Prayer has been made on the part of the Ministry of Road
Transport and Highways of Government of India that the guidelines
notified on 12.5.2015 and the standard operating procedure notified on
21.1.2016 may be declared to be enforceable by this Court so that it is
binding on all the States and Union Territories until the Union
Government enacts a law to this effect.
13. In Lakshmi Kant Pandey v. Union of India (1984) 2 SCC 244 in
the matter of inter-country adoption and so as to prevent malpractices
and trafficking of children under the guise of adoption, this Court has
laid down certain principles and norms to be followed in the cases of
such adoption in detail, as there was absence of statutory provisions with
respect to inter-country adoptions.
14. In D.K. Basu v. State of W.B. (1997) 1 SCC 416, this Court
considering the fact that the custodial violence, torture, rape, death inPage 16
16
police custody/lock-up infringes Article 21 as well as basic human rights
and strikes a blow at the rule of law, directions have been issued for
compliance by Police personnel while arresting or detaining any person
as preventive measures in addition to constitutional and statutory
safeguards and previous directions of this Court.
15. In Vishaka and Ors. v. State of Rajasthan & Ors. (1997) 6 SCC
241 considering the absence of enacted law to provide for effective
enforcement of the basic rights to gender equality and guarantee against
sexual harassment and abuse, more particularly against sexual
harassment at workplaces, this Court has laid down guidelines and
norms for due observance at all work places or institutions until the
legislation is enacted for the purpose.
16. In Vineet Narain & Ors. v. Union of India & Anr. (1998) 1 SCC
226 this Court has referred to various decisions in which guidelines and
directions have been issued in exercise of powers of this Court under
Article 32 read with Article 142. The relevant portion is extracted
hereunder :
“51. In exercise of the powers of this Court under
Article 32 read with Article 142, guidelines and
directions have been issued in a large number of
cases and a brief reference to a few of them is
sufficient. In Erach Sam Kanga v. Union of India
[WP No.2632 of 1978 decided on 20.3.1979) the
Constitution Bench laid down certain guidelines
relating to the Emigration Act. In Lakshmi Kant
Pandey v. Union of India (1984) 2 SCC 244 (In re,Page 17
17
Foreign Adoption), guidelines for adoption of minor
children by foreigners were laid down. Similarly in
State of W.B. v. Sampat Lal (1985) 1 SCC 317, K.
Veeraswami v. Union of India (1991) 3 SCC 655,
Union Carbide Corpn. v. Union of India (1991) 4
SCC 584, Delhi Judicial Service Assn. v. State of
Gujarat (1991) 4 SCC 406 (Nadiad case), Delhi
Development Authority v. Skipper Construction Co.
(P) Ltd. (1996) 4 SCC 622 and Dinesh Trivedi, M.P.
v. Union of India (1997) 4 SCC 306 guidelines were
laid down having the effect of law, requiring rigid
compliance. In Supreme Court Advocates-on-Record
Assn. v. Union of India (1993) 4 SCC 441 (IInd
Judges case) a nine-Judge Bench laid down
guidelines and norms for the appointment and
transfer of Judges which are being rigidly followed in
the matter of appointments of High Court and
Supreme Court Judges and transfer of High Court
Judges. More recently in Vishaka v. State of
Rajasthan (1997) 6 SCC 241 elaborate guidelines
have been laid down for observance in workplaces
relating to sexual harassment of working women. In
Vishaka (supra) it was said: (SCC pp. 249-50, para
11)
“11. The obligation of this Court under Article
32 of the Constitution for the enforcement of
these fundamental rights in the absence of
legislation must be viewed along with the role
of judiciary envisaged in the Beijing Statement
of Principles of the Independence of the
Judiciary in the LAWASIA region. These
principles were accepted by the Chief Justices
of Asia and the Pacific at Beijing in 1995 (*)
(As amended at Manila, 28th August, 1997) as
those representing the minimum standards
necessary to be observed in order to maintain
the independence and effective functioning of
the judiciary. The objectives of the judiciary
mentioned in the Beijing Statement are:
“Objectives of the Judiciary:
10. The objectives and functions of the
Judiciary include the following:
(a) to ensure that all persons are able toPage 18
18
live securely under the rule of law;
(b) to promote, within the proper limits
of the judicial function, the observance
and the attainment of human rights; and
(c) to administer the law impartially
among persons and between persons and
the State.”
Thus, an exercise of this kind by the court is now a
well-settled practice which has taken firm roots in
our constitutional jurisprudence. This exercise is
essential to fill the void in the absence of suitable
legislation to cover the field.
52. As pointed out in Vishaka (supra) it is the duty of
the executive to fill the vacuum by executive orders
because its field is coterminous with that of the
legislature, and where there is inaction even by the
executive, for whatever reason, the judiciary must
step in, in exercise of its constitutional obligations
under the aforesaid provisions to provide a solution
till such time as the legislature acts to perform its role
by enacting proper legislation to cover the field.”
17. In Union of India v. Association for Democratic Reforms & Anr.
(2002) 5 SCC 294, the decisions in Vineet Narain (supra), Vishaka
(supra) and other decisions have been followed and this Court has laid
down the law that an exercise to fill the void in the absence of suitable
legislation is now a well-settled practice which has taken firm roots in
our constitutional jurisprudence. Similar is the decision in Kalyan
Chandra Sarkar v. Rajesh Ranjan alias Pappu Yadav & Anr. (2005) 3
SCC 284. In Common Cause v. Union of India (2015) 7 SCC 1, law to
the same effect has been reiterated thus :
“7. In the earlier order dated 23-4-2014 (2014) 6
SCC 552, this Court, after holding that
reasonableness and fairness consistent with ArticlePage 19
19
14 of the Constitution would be the ultimate test of
all State activities proceeded to hold that the
deployment of public funds in any government
activity which is not connected with a public purpose
would justify judicial intervention. We would like to
say something more.
8. Part IV of the Constitution is as much a guiding
light for the Judicial organ of the State as the
Executive and the Legislative arms, all three being
integral parts of the “State” within the meaning of
Article 12 of the Constitution. AIR 1967 SC 1,
(1973) 4 SCC 225. A policy certainly cannot be axed
for its alleged failure to comply with any of the
provisions of Part IV. Neither can the courts charter a
course, merely on the strength of the provisions of
the said Part of the Constitution, if the effect thereof
would be to lay down a policy. However, in a
situation where the field is open and uncovered by
any government policy, to guide and control
everyday governmental action, surely, in the exercise
of jurisdiction under Article 142 of the Constitution,
parameters can be laid down by this Court consistent
with the objects enumerated by any of the provisions
of Part IV. Such an exercise would be naturally timebound
i.e. till the legislature or the executive, as the
case may be, steps in to fulfil its constitutional role
and authority by framing an appropriate policy.”
18. In view of the aforesaid discussion, it is apparent that guidelines
and directions can be issued by this Court including a command for
compliance of guidelines and standard operating procedure issued by
Government of India, Ministry of Road Transport and Highways, till
such time as the legislature steps in to substitute them by proper
legislation. This Court can issue such directions under Article 32 read
with Article 142 to implement and enforce the guidelines which are
necessary for protection of rights under Article 21 read with Article 14
of the Constitution of India so as to provide immediate help to the
victims of the accident and at the same time to provide protection to
Good Samaritans. The guidelines will have the force of law under
Article 141. By virtue of Article 144, it is the duty of all authorities –
judicial and civil – in the territory of India to act in aid of this Court by
implementing them.
19. We have carefully gone through the notification dated 12.5.2015.
However, as per the guidelines contained in para 13, the
‘acknowledgement’ if so desired by Good Samaritans, has to be issued
as may be prescribed in a standard format by the State Government. In
our opinion, till such time the format is prescribed, there should be no
vacuum hence we direct that acknowledgement be issued on official
letter-pad etc. and in the interregnum period, if so desired by Good
Samaritan, mentioning the name of Samaritan, address, time, date, place
of occurrence and confirming that the injured person was brought by the
said Samaritan.
We have also gone through the notification dated 21.1.2016 with
respect to the examination of Good Samaritan by the Police as contained
in para 2(vii) which we modify and be read in the following manner :
“The affidavit of Good Samaritan if filed, shall be
treated as complete statement by the Police official
while conducting the investigation. In case statement
is to be recorded, complete statement shall be
recorded in a single examination.”
Remaining guidelines in the notifications dated 12.5.2015 and
21.1.2016 are approved and it is ordered that guidelines with aforesaid
modifications made by us be complied with by the Union Territories and
all the functionaries of the State Governments as law laid down by this
Court under Article 32 read with Article 142 of the Constitution of India
and the same be treated as binding as per the mandate of Article 141.
20. We also direct that the court should not normally insist on
appearance of Good Samaritans as that causes delay, expenses and
inconvenience. The concerned court should exercise the power to
appoint the Commission for examination of Good Samaritans in
accordance with the provisions contained in section 284 of the Code of
Criminal Procedure, 1973 suo motu or on an application moved for that
purpose, unless for the reasons to be recorded personal presence of good
Samaritan in court is considered necessary.
21. Affidavits have been filed on behalf of State of Tripura and State
of Orissa. They have issued the notification. However, the treatment
shall not be less favourable than the one as provided in the aforesaid
guidelines which are issued by the Ministry of Road Transport &
Highways which have been made a part of this Order, and the guidelines
issued by the state Governments in consonance thereof shall also be
binding upon all concerned to be complied with scrupulously. However,
it is clarified that guidelines in relation to protection of a Good
Samaritan are without prejudice to the liability of the driver of a motor
vehicle involved in a road accident as specified under section 134 of the
Motor Vehicles Act, 1988.
22. We record our appreciation for the efforts made in formulating
guidelines by all concerned, the members of Committee, concerned
Department, learned Solicitor General and positive attitude of the
counsel for the other parties who have readily agreed that guidelines be
approved and be enforced as binding till appropriate legislative
provisions are made.
23. We also direct that the scheme framed by the Central Government
and this order be widely published through electronic media and print
media for the benefit of public so that public is made aware and that
serves as impetus to good Samaritans to extend timely help and
protection conferred upon them without incurring the risk of harassment.
24. In view of the aforesaid directions, the writ petition stands
allowed. No order as to costs.
…………………………….J.
(V. Gopala Gowda)
New Delhi; …………………………..J.
March 30, 2016. (Arun Mishra)
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