Institute of Law

Nirma University

INTRODUCTION

The Gram Nyaylaya is the latest in the reforms of the Indian Judiciary. Fast Track Courts and
Lok Adalats have been introduced to address the monumental backlog of cases in the
Judiciary. Family Courts were introduced in 1984 also espouses speedy disposal, sensitive
approach and relaxation of strict rules of evidence and procedure. The Gram Nyaylaya seems
to be combination of the objectives of several special courts in contrast to the regular
emphasis on the adversarial trial. The Gram Nyayalaya may inspire confidence in the village
community, it is imperative that a legally trained mind preside over the body. And to avoid a
purely technical legalistic approach, two other persons who are village level workers and who
are educated and socially oriented should be inducted.

Equality and justice are indisputably two key facets of the idea of a modern, democratic and
constitution-adhering India. The principles of equality and justice are realised by the State
apparatus through the business of administration of justice. Indias justice system is
characterised by systemic problems, including corruption, delays, pendency, increasing costs,
limited legal aid, and a lack of appropriately trained lawyers and judges. When confronted
with the many problems of the legal system, the governments response has been not to invest
in and fix a broken system, instead it has responded by moving out of the adversarial system
with its procedural guarantees, those who have the least voice and use it minimally Indian
citizens, who live in rural areas, with small claims, both civil and criminal in nature. The
government does this with the passage of the Gram Nyayalayas Act, 2008. This Act
perpetuates the phenomenon of two Indias that of the better resourced urban citizen who
can afford and has access to the courts. And, the other India of the impoverished the more
disconnected rural citizen, who gets primary access to forums that focus primarily on
disposing of their claims, minus the application of essential safeguards of the legal process
lawyers, appeals, procedural protections and evidentiary requirements. The Act provides for
the establishment of nearly 5,067 Gram Nyayalayas or village courts across the country. The
avowed Objective is to provide access to justice to the citizens and to ensure that
opportunities for securiing justice are not denied to any citizen by reason of social, economic

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or other disabilities. In his address on the eve of the National Law Day, the Chief Justice of
India underscored the importance of this initiative as he asserted that his would bring the
justice delivery system closer to rural citizens. Since a small number of Gram Nyayalayas
have become operational from 2 October 2009, information on the implementation of these
village courts is not available
.
The Gram Nyayalaya is the latest in the reforms in the structure of the Indian judiciary. The
state introduced Fast track Courts and Lok Adalats to address the monumental backlog of
cases in the judiciary. Family Courts instituted since 1984 also espouses speedy disposal,
sensitive approach and relaxation of strict rules of evidence and procedure. The Gram
Nyayalaya seems to be a combination of the objectives of several special courts in contrast to
the regular emphasis on the adversarial trial.1

114TH LAW COMMISSION ON GRAM NYAYALAYAS

In distinction to the Nyaya Panchayats since it is dissimilar in more ways than one, and a
couple of steps ahead of it, the appellation "Gram Panchayat" is suggested for the new model
of justice dispensing forum.

The Gram Panchayat is to be a statutory village level court and its jurisdiction is not optional.

In order that the Gram Nyayalaya may inspire confidence in the village community, it is
imperative that a legally trained mind preside over the body. And to avoid a purely technical
legalistic approach, two other persons who are village level workers and who are educated
and socially oriented should be inducted. The three should constitute the Gram Nyayalaya. It
would not be too unwieldy and it would have all the advantages both of State courts' approach
and participation of lay public in the administration of justice.

The Gram Nyayalaya should consist of a legally trained Judge belonging to the cadre of
Judges to be specifically set up for this purpose. In order to select legally trained Judges for

1 Available at http://lawandotherthings.blogspot.com/2010/11/gram-nyayalaya-
new-face-of-judiciary.html, last visited on 29th January 2011.

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Gram Nyayalaya, the State shall form a Panchayati Raj cadre of Judges. They would
ordinarily form part of the Subordinate Judiciary of the State. The Judge must have all those
qualifications which he should have for being recruited as Munsif Magistrate or Civil Judge
(Junior Division) and Judicial Magistrate, First Class.

As the Panchayati Raj Judge is to be drawn from the cadre of Munsif Magistrate/Civil Judge
(Jr. Division), Judicial Magistrate First Class, for the time being the same method of selection
will apply which, the Commission is informed, is that the selection is done by the State Public
Service Commission in which a Judge nominated by the Chief Justice of the concerned High
Court participated for the time being : the same method may be adopted. It is desirable that a
Member of the State Judicial Service at the lowest level with three years experience should be
selected for this cadre. The selection must be made by the High Court.

In the selection of the lay Judges, a Selection Committee of District Magistrate and District
Judge of the concerned district should be constituted in each district for this purpose. To begin
with, the District Magistrate and District Judge should separately draw up a panel up to a
number far exceeding the minimum required. Thereafter, they must exchange their panels. A
few days later, they must assemble, interact and finalise the panel. The panel of laymen
should, as far as possible, be an agreed one, failing which the District Magistrate and the
District and Sessions Judge may recommend their separate lists and also record their
objections to the names suggested by the other members of the selection committee. The
entire panel whether it is drawn up on consensus, or partly agreed or wholly separate, should
be submitted to the Chief Justice of the High Court having jurisdiction. The Chief Justice, in
consultation with two of his colleagues, shall finalise the panel. It would be open to him to
call for additional information about the persons figuring in the panel on separate lists
submitted by the members of the selection committee. The selection must be confined to the
residents of the district. While preparing a panel a member of the selection body may have
recourse to his subordinates to collect the antecedents of the proposed persons. The members
of the selection body should have first-hand information as far as possible, through authentic

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sources enabling checking of the antecedents of the persons proposed by one member or by
the other of the selection committee.

Adequate representation should be ensured to members of the weaker sections of the society,
Scheduled Castes, Scheduled Tribes, women and backward classes. Panel members must
represent the cross-section of the village community.

It is desirable that the lay Judges possess some educational qualifications. The safe middle
course is to prescribe a graduate degree as a qualification failing which those who have
obtained Higher Secondary School Examination Certificate would be eligible. Educational
qualifications may be prescribed as a desirable, and not as minimum, qualification. In the
matter of selection of persons from Scheduled Castes, Scheduled Tribes, backward
communities and women, educational qualifications may be dispensed with if adequate
number of persons with educational qualifications are not available. Persons to be selected
should preferably be within the age group of 30-65.

Active political party workers, elite wealthy persons, rich and big farmers, high pay bracket
service personnel and moneylenders must be excluded from consideration. So also persons
convicted of an offence involving moral turpitude, economic offenders, undischarged
insolvents and the like.

The lay Judges should be persons of character and integrity.

It is imperative that the Panchayat Raj Judges as also the members of the panel are imparted
basic training in creating a new atmosphere in the forum where all formal technical approach
must be eschewed. The Panchayati Raj Judges should assist in imparting information about
the relevant point of law, social justice approach, non-formal disposal of causes and
deprofessionalised atmosphere. Members of the panel should be imparted training in
decision-making process free from prejudices of caste, community, colour, sex or religion.
They must be acquainted with the fundamental approach to justice, namely, that the weak and
less fortunate should not be the victims of class exploitation. The training may extend to a

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period of three months. A re-orientation course about the change in pattern of law, sociology
of law, object and purpose behind justice system would be of immense assistance to the
members of the proposed forum.

The training could comprise subjects like method of hearing cases, attempted conciliation and
resolution of disputes by compromise and training in the decision-making process. The lay
Judges in particular should be taught that they should conform to the principles of natural
justice.

Panchayati Raj training centres have been started and they are located in different parts of the
country. It is only necessary to expand these training centres and to provide adequate facility
for training of the lay Judges.

The approach of the Gram Nyayalaya should be mediatory at the initial stages except in
regular criminal proceedings where, save the compoundable offences, trial has to be held.
Offence being an injury to society there is hardly any question of conciliation.

Nothing should be done to impair the relative equality among the three Judges composing the
court. Therefore, while providing that it would be the primary duty of the Panchayati Raj
Judges, who would be presiding over the Gram Nyayalaya to give effective guidance to the
two lay Judges on questions of law, in the matter of decision, the majority view in the absence
of an unanimous decision will be the decision of the court.

JURISDICTIONAL ASPECTS

The local geographical jurisdiction of a Gram Nyayalaya should be confined to the villages in
a Taluka/Tehsil for which it is set up. If the number of disputes coming before the Gram
Nyayalaya set up for a Taluka/ Tehsil is not sufficient to keep it engaged full-time, the State
Government with the approval of the High Court may enlarge the jurisdiction of a Gram
Nyayalaya to extend over more than one Tehsil.

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A precise definition will have to be devised of a "village". The briefest definition that is
considered appropriate is : "Village is a unit of administration for which no municipality is set
up." That would accurately define the area to be brought with the territorial jurisdiction of the
proposed Gram Nyayalaya.

The Commission is of the view that jurisdiction must be referable to the subject-matter of the
dispute and not to its pecuniary value. Thus there shall be no ceiling in the matter of
pecuniary jurisdiction of the Gram Nyayalaya.

The Commission would favour conferment of civil jurisdiction of Gram Nyayalaya in respect
of disputes covered by the subject-matter herein delineated:

I. Civil Disputes : Disputes arising out of implementation of agrarian reform and allied
statutes

1. Tenancies protected and concealed and contested.

2. Boundary disputes and encroachment.

3. Right to purchase.

4. Use of common pasture.

5. Entries in revenue records.

6. Regulation and timing of taking water from irrigation channel.

7. Disputes as to assessment.

II. Property Disputes :

1. Village and farm houses (possession).

2. Sobas.

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3. Easements : Right of way for man, cart and cattle to fields and courtyards.

4. Water channels.

5. Right to draw water from a well or tubewell.

III. Family Disputes :

1. Marriage.

2. Divorce.

3. Custody of children.

4. Inheritance and succession share in property.

5. Maintenance.

IV. Other Disputes :

1. Non-payment of wages and violation of Minimum Wages Act.

2. Money suits either arising from trade transaction or money lending.

3. Disputes arising out of partnership in cultivation of land.

4. Disputes as to use of forest produce by local inhabitants.

5. Complaints of harassment against local officials belonging to police, revenue, forest,

medical and transport departments.

6. Disputes arising under the Bonded Labour System (Abolition) Act, 1976 and the Protection
of Civil Rights Act, 1955.

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The Gram Nyayalaya must have jurisdiction to try all offences which can be tried under the
Code of Criminal Procedure, 1973, by the Judicial Magistrate First Class.

Though undoubtedly, the Family Courts Act, 1984 has been enacted and brought into
operation, since custody of children has a distinct local flavour, the Gram Nyayalaya must
have jurisdiction to deal with matrimonial disputes arising in rural areas.

The Gram Nyayalaya would be a body for administration of justice, and a legislation for the
same would squarely fall under Entry 11-A of the Concurrent List.

PROCEDURE

An office called the "Gram Nyayalaya Karyalaya" must be set up at the headquarters of the
Taluka or Tehsil. Ordinary requirements of staff, office, books, stationery, etc. must be
provided at the office. The Presiding Judge must be available at this office. It must be a self-
sustaining unit, and adequate funds must be provided for its effective functioning.

It is recommended that neither the Code of Civil Procedure nor the Evidence Act should
apply to the proceedings of the Gram Nyayalaya.

A simple procedure has been recommended. A complaint, upon being filed, should be placed
before the Presiding Judge within 24 hours. Interim prohibitory orders may be passed if the
dispute brooks no delay, to be enforced within one week, within which the Nyayalaya must
visit the site and, in the presence of both parties, determine whether the interim order should
continue or not. For the final hearing, the Gram Nyayalaya shall ordinarily meet at the situs
of the dispute. The rules of natural justice shall inform the proceedings. The proceedings shall
be brief; all documents produced must be accepted and, if lawyers so think, they may make
submissions for a period not exceeding a few minutes. If possible, the decision must be
rendered there and then. The decision of the Nyayalaya will be governed by justice, equity
and good conscience.

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At the end of the trial, if the decision is not by consensus between the parties, the Presiding
Judge shall draw a brief statement of the dispute, the evidence led, the decision and the
reasons in support of the decision. It shall be signed by all the three Judges. In the event of a
difference of opinion, the decision of the majority will be binding. On a question of law, the
view expressed by the Presiding Judge shall be binding on the lay Judges.

If the Gram Nyayalaya finds that it has no jurisdiction, it may make over the case to the
District Court having jurisdiction for transfer of the case to the Court having jurisdiction.

When the Presiding Judge has acquainted himself with the nature and the place of the dispute,
he shall select from the panel already furnished to him two persons residing as far as possible
from the situs of the dispute.

As a first step, it is advisable to retain the procedure prescribed in the Code of Criminal
Procedure, 1973 for trial of offences before the Gram Nyayalaya.

An attempt, however, should be made to devise a still simpler procedure which may stand the
test of Article 21 of the Constitution. The Evidence Act as such stricto sensu would not apply.

The parties appearing before the Gram Nyayalaya will be entitled to appear through lawyers
of their desire both in civil and criminal proceedings. But the Gram Nyayalaya shall not
adjourn the case, or change the venue, to accommodate the lawyer. The proposed National
Legal Services Act should assign two lawyers to be attached to each Gram Nyayalaya who
would be independent of party influence and who would assist as court officers in disposal of
the disputes, and also would be readily available to the parties if they so desire.

The Gram Nyayalaya will have power to :

(a) enforce the attendance of any person and examine him on oath;

(b) compel the production of documents and material objects;

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(c) issue commissions for the examination of witnesses or if the witness is unable
to appear before it on account of physical incapacity; and

(d) do such other things as may be prescribed.

The proceedings before the Gram Nyayalaya shall be conducted in the State language
permitting the dialect of the locality to be used. Records shall be maintained in the State
language and copies shall be furnished to those who desire the same. The decision shall be, if
not by consent of the parties, recorded in the language of the court.

No court fee shall be levied in the proceedings before the Gram Nyayalaya.

No appeal would lie against any decision of the Gram Nyayalaya except the one in which at
the end of a criminal trial a substantive sentence is imposed. A revision petition would lie to
the District Court of the district in which the Gram Nyayalaya is functioning. Only errors of
law can be corrected by this revisional forum. Even if it comes to the decision that another
view is possible, it would have no jurisdiction to interfere with the decision of the Gram
Nyayalaya. A decision by peers should not be interfered with by a court presided over by a
Judge considering the matter from a purely technical legal approach.

An appeal would lie to the Sessions Court against the decision by a Gram Nyayalaya in a
criminal case in which a substantive sentence of imprisonment has been imposed. The appeal
would be both on questions of fact and of law. The appeal should be dealt with according to
the provisions of the Code of Criminal Procedure applicable to the appeals entertained against
the decision of a Judicial Magistrate, First Class. Any other view is likely to infringe Article
21 of the Constitution.

The jurisdiction of the Gram Nyayalaya is exclusive to the extent that in respect of matters
covered by the jurisdiction conferred on the Gram Nyayalaya, the jurisdiction of any other
court is ousted; such jurisdiction is not optional.

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A simple method for execution of its orders must be provided for. The nature of the execution
would depend upon the relief granted by the decision of the Gram Nyayalaya. Depending
upon the relief granted, the fruits must be made available forthwith or soon thereafter. No
prayer for granting interim stay till the party aggrieved by the decision prefers a revision
petition should be entertained.

All authorities revenue, police, forest operating at village and Tehsil level should be put
under an obligation to assist the Gram Nyayalaya in discharging its functions and performing
its duties. Failure on their part shall be treated as misconduct, and a Gram Nyayalaya should
be empowered to take effective action against such defaulting authority.

For a uniform pattern of functioning of the Gram Nyayalayas, a simple code may have to be
drawn up by the State Government in consultation with the High Court.

A liaison officer with a legal background should be appointed and attached to each Gram
Nyayalaya. It shall be his duty to move around the villages regularly and as soon as he comes
across violation of individual or group rights, on their behalf, take recourse to the court. A
statutory provision shall be made not permitting hislocus standi to be questioned by the party
against whom the action is commenced.

Every Gram Nyayalaya will be furnished with a copy of a list drawn up by the State
Government of non-governmental voluntary organisations operating in rural areas. The Gram
Nyayalaya may enlist their help in reconciliation proceedings before resorting to adjudication.
The list may also be useful in selecting the panel of lay Judges. This will make the
participatory process far more effective.

The treble objects behind devising this new forum for resolution of disputes at grass-root
level is to provide a participatory system of justice; expeditious disposal of disputes; and
justice taken to the doorstep of the people.2

2 (1987) 2 SCC 25

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SALIENT FEATURES

Gram Nyayalayas are aimed at providing inexpensive justice to people in rural areas
at their doorsteps;

The Gram Nyayalayas shall be court of Judicial Magistrate of the first class and its
presiding officer (Nyayadhikari) shall be appointed by the State Government in
consultation with the High Court;

The Gram Nyayalayas shall be established for every Panchayat at intermediate level
or a group of contiguous Panchayats at intermediate level in a district or where there is
no Panchayat at intermediate level in any State, for a group of contiguous Panchayats;

The Nyayadhikaris who will preside over these Gram Nyayalayas are strictly judicial
officers and will be drawing the same salary, deriving the same powers as First Class
Magistrates working under High Courts;

The Gram Nyayalaya shall be a Mobile Court and shall exercise the powers of both
Criminal and Civil Courts;

The seat of the Gram Nyayalaya will be located at the headquarters of the
intermediate Panchayat, they will go to villages, work there and dispose of the cases;

The Gram Nyayalaya shall try criminal cases, civil suits, claims or disputes which are
specified in the First Schedule and the Second Schedule to the Act;

The Central Government as well as the State Governments have been given power to
amend the First Schedule and the Second Schedule of the Act, as per their respective
legislative competence;

The Gram Nyayalaya shall follow summary procedure in criminal trial;

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The Gram Nyayalaya shall exercise the powers of a Civil Court with certain
modifications and shall follow the special procedure as provided in the Act;

The Gram Nyayalaya shall try to settle the disputes as far as possible by bringing
about conciliation between the parties and for this purpose, it shall make use of the
conciliators to be appointed for this purpose;

The judgment and order passed by the Gram Nyayalaya shall be deemed to be a
decree and to avoid delay in its execution, the Gram Nyayalaya shall follow summary
procedure for its execution;

The Gram Nyayalaya shall not be bound by the rules of evidence provided in the
Indian Evidence Act, 1872 but shall be guided by the principles of natural justice and
subject to any rule made by the High Court;

Appeal in criminal cases shall lie to the Court of Session, which shall be heard and
disposed of within a period of six months from the date of filing of such appeal;

Appeal in civil cases shall lie to the District Court, which shall be heard and disposed
of within a period of six months from the date of filing of the appeal;

A person accused of an offence may file an application for plea bargaining.

CURRENT SCENARIO
The Centre's plan to set up 5000 'Gram Nyayalayas' across the country to bring justice
delivery system to the common man's doorsteps has not found favour with the state
governments.

More than a year after the Gram Nyayalaya Act was notified, only four states have
established such rural courts, while five have rejected the idea citing various
reasons. According to figures compiled by the Law Ministry, since the Act was notified on

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October 2, 2009 to coincide with Gandhi Jayanti, four states together have established 96
rural courts while five others, including Delhi and Andhra Pradesh, have informed the Centre
about their unwillingness to set up such courts.

"Due to urbanisation, there is no need to set up Gram Nyayalayas," Delhi government said in
its response to the Law Ministry. Similarly, the Andhra Pradesh government informed the
Ministry that "there is no need to set up Gram Nyayalayas as the existing system is found
very effective".

The other states which have refused to set up rural courts are Tamil Nadu, Uttarakhand and
Union Territory of Chandigarh.

Madhya Pradesh has set up 45 Gram Nyayalayas, Maharashtra nine, Orissa one and
Rajasthan 46. Out of the total 96 rural courts established by these states, only 48 are
operational.

Law Minister M Veerappa Moily had recently inaugurated Rajasthan's first rural court in the
subordinate court premises in Bassi near capital Jaipur.

A total of Rs 13.47 crore has been released to the four states so far.

A few months ago, Prime Minister Manmohan Singh and UPA chairperson Sonia Gandhi had
strongly pitched for setting up of these courts to provide affordable justice to the vast majority
living in villages.

Only 15 of the 28 states have so far responded to the letters sent by the Law Ministry, seeking
proposals for setting up the Gram Nyayalayas to bring down three crore pending cases in
lower courts. Jharkhand has formed a high-level committee headed by the chief secretary of
the state "to look into the matter." Uttar Pradesh and West Bengal have agreed to set up these
courts subject to cent per cent financial assistance from the Centre. Parliament had passed the

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Gram Nyayalayas Act in December 2008. The law provides for setting up of mobile courts at
panchayat level, which would be presided over by a judicial magistrate (nyayadhikari), with
powers to decide criminal and civil matters within six months.

By December a total of 168 Gram Nyayalayas have been have been notified by 7 states na,ely
M.P., Rajasthan, Orissa, Maharashtra, Goa, Karnataka and Jharkhand of which 151 have
become operational.

CONCLUSION

The government should appreciate that the aim of adjudication is not merely peace, or the
maximisation of the ends of private parties. It is to give force to constitutional values and
ensure that such values infuse the content of the true aim of adjudication justice. A statute
that is created only for people residing in rural areas, with limited procedural guarantees, to
adjudicate allegedly small claims including those that implicate a litany of social welfare
legislation concerning Minimum Wages, Civil Rights, Abolishing Bonded Labour, Equal
Pay and Protection from Domestic Violence compromises the promises of our Constitution. It
makes a mockery of that which is most sacred to all law that power resources and the
quantum of private gain will not determine the aims or means of the process that is
adjudication. The Gram Nyayalayas Act violates this essential foundation of adjudication.

The Gram Nyayalaya is a supplement to present judiciary. As mentioned in the introduction

of the project it would help to reduce backlog of cases. Moreover it would not be interfering
in the Panchayat system.

There was suspicion that these courts are being set-up with ulterior motives of managing
litigation and with the purpose of reducing the pendency of cases. A recurring question was
whether speedy disposal meant speedy justice for the poorer litigant. A court that is closer to
the rural litigant and a speedy disposal are definitely laudable objective of the legal system.

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However, an emphasis on speedy disposal alone raises doubts if these are moves are being
made to manage the arrears of the cases or to enable better access to the litigant-people.
Surely long pendency is not the only issue which affects a litigants expectations in the courts.
One was also unclear about what to draw from the experiences of the other special courts
such as Fast Track courts or the Lok Adalats. Clearly, family courts, despite its emphasis on
conciliation and relaxed procedures, ended up functioning like regular civil courts.
Considering the disappointing practices of special courts and their functioning, the question
remains, whether the Gram Nyayalaya be able to establish a new forum for litigation.

BIBLIOGRAPHY
Books Referred:
1. Narayana P.S., Law Relating to Gram Nyayalayas, (Allahabad: Law Publishing
House) 2009.
2. Mallk Krishnpal Dr., Gram Nyayalaya Act, 2008,

Articles Referred:

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1. National Consultation on Judicial Accountability and the Gram Nyayalayas

Act,2008.
2. Vasudha Nagarajs, The Gram Nyayalaya; The New Face of The Judiciary
3. A recent newspaper article dated January 4th 2011, Idea of Gram Nyayalaya not hit
with the states.
4. A newspaper article State to Constitute 225 Gram Nyayalayas.
5. Gram Nyayalayas : a cause for optimism?.
6. An article by Prof. Usha Vaidyanathan, Salient features of the 114th Law Commission
Report on Gram Nyayalaya.

Websites Referred:
1. http://www.prsindia.org/uploads/media/1180414050/bill117_20070906117_Legislativ
e_Brief____Gram_Nyayalayas_2007.pdf
2. http://netindian.in/news/2009/09/29/0003533/gram-nyayalaya-act-come-effect-oct-2
3. http://www.prsindia.org/uploads/media/1224668109/1224668109_The_Gram_Nyayal
ayas_Bill__2008.pdf

Legal Databases Referred:

1. The Law_Sup
2. Lawsuit
3. Supreme Court Cases

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