he
fixing of the date for Mohammad Afzal’s execution for his conviction in
the Parliament attack case has trig-
gered a lively debate on the desirability of the death penalty and whether
Afzal’s sentence should be commuted by the President in the exercise of
his prerogative powers under Article 72 of the Constitution. The Supreme
Court’s recent judgement quashing the exercise of this power by the
governor of Andhra (who remitted the 10-year sentence awarded to a
Congress party activist for murdering a political opponent) has added
further fuel to this fire. What then is the scope of the presidential
power of pardon and when can it be judicially reviewed?
Article 72 provides that
"The President shall have the power to grant pardons,
reprieves, respites and remissions of punishment or to suspend, remit or
commute the sentence of any person convicted of any offence –
(a) In all cases where the punishment or sentence is by a
court martial;
(b) in all cases where the punishment or sentence is for
an offence against any law relating to a matter to which the executive
power of the union extends;
(c) in all cases where the sentence is a sentence of
death."
This power has been examined in a number of cases by the
Supreme Court prior to the recent Andhra judgement. It has been
consistently held that:
1. The President in the exercise of this power is bound to
act on the advice of the cabinet;
2. That the exercise of this power is subject to judicial
review;
3. However, the scope of the judicial review is limited to
only examining whether there has been application of mind by the
government and whether the power has been exercised on extraneous or mala
fide considerations;
4. Once it is found that there has been application of
mind and there are no extraneous or mala fide considerations, the court
will not interfere with the government’s prerogative power by substituting
its own judgement over the government’s.
So the crux of the issue is: What are extraneous or mala
fide considerations? In this, the recent Supreme Court judgement in the
Gowra Venkat Reddy case essentially does not depart from previous
judgements. Considerations of caste, religion or political loyalty would
clearly be extraneous considerations. In Venkat Reddy’s case the court
came to the conclusion that the pardon was granted for mala fide
considerations of political loyalty. However, it has been held earlier
that the government can examine the evidence afresh and can exercise this
power even on the ground that in its opinion justice has not been done or
that the sentence is unduly harsh. But what about a case where the
government comes to the conclusion that the execution of the sentence of
death would create a strong sense of alienation among a significant
section of people or that it will encourage and provoke several others to
take to militancy? Would that be a relevant consideration for granting
clemency or commuting a death sentence?
These are the precise questions that will arise in
Mohammad Afzal’s case when the government considers the clemency plea on
his behalf.
The issues are: Did he get a fair trial and, in
particular, did he have a proper defence lawyer in the trial? Is the death
sentence unduly harsh considering that he was not guilty of any violent
act? Will his execution seriously alienate people in the Kashmir valley
and push some towards militancy? Will the grant of clemency to him
encourage militancy and inflame the feelings of people outside the valley?
These are all relevant considerations for the government.
It would have to decide by taking all this into account.
Afzal, in fact, did not have a proper defence lawyer.
Since the lawyers whom he wanted refused to appear on his behalf, he was
provided with a novice by the trial court who barely cross-examined any
witness against Afzal. Given the amount of fabrication of evidence and
forced confessions obtained by the police in this case, which has been
found even by the Supreme Court, it is not impossible that the evidence on
which Afzal was convicted may have been rubbished if he had a proper
lawyer in the trial court. Moreover, Afzal has not been convicted for any
overt act of violence but only for providing help to the terrorists. A
court which normally does not award the death sentence in such cases
awarded it "to satisfy the collective conscience of the nation". The
government can certainly take the view that this is not appropriate or
that this would alienate and inflame the collective conscience of the
people of Kashmir.
From the opinion polls and the reactions of people in the
valley as well as the rest of the country, it is clear that there is a
complete disconnect between the valley and the rest of the country. The
majority of the people outside the valley have no idea of the level of
alienation and anger against India. Far from containing militancy, the
presence of a 6,00,000 strong security force in the valley is only
fuelling the militancy. Hanging Afzal is likely to further fuel the
militancy, just as the hanging of Maqbool Bhat did earlier. These are all
valid and germane considerations for the government.
However, I believe that the death sentence should be
commuted in such cases because the crimes of Afzal or even the terrorists
who attacked Parliament are not committed for personal gain but because
they nurse a strong sense of grievance against the perceived injustice
done to them by the Indian state. Their crime was seen by them as a cause
for which they were prepared to die. Such people cannot be deterred by
hanging them. This is in fact likely to create more such militants. One
can deal with such people only by trying to address their sense of
grievance.
More fundamentally, however, capital punishment is a form
of retributive violence by the state that only increases the culture of
violence in any society. This is a culture that has been promoted by B and
C grade Bollywood films that romanticise violence and, in particular,
retributive violence. That is why, on the basis of deep sociological
analysis, capital punishment has been abolished in 129 countries of the
world. Violent crimes have in fact decreased in the countries where it has
been abolished. Even in the United States, the incidence of violent crimes
is greater in the states that have opted to continue with the death
penalty.
There are many reasons therefore for commuting Afzal’s
death penalty. But given the charged opinions on this issue and with the
BJP threatening to make this a national issue, I doubt that this
government will have the courage to decide the matter on rational and
relevant considerations.