When two young women were arrested for a Facebook post questioning the shutdown in Mumbai for Bal Thackeray's funeral, middle-class fury forced the Maharashtra government to drop the case and suspend two police officers.The Centre also issued a set of guidelines to avoid misuse of the controversial Section 66A of the Information Technology Act. However, even as calls for repeal of the "vague" and "wide" provisions of the IT law that are "susceptible to wanton abuse" grew louder, the government silently pushed through much more controversial amendments to the Unlawful Activities Prevention Act (UAPA) in the Lok Sabha, making it further mirror previous draconian laws like POTA and TADA.

The amendments did not merely make this law more stringent; they have made law enforcement agencies less accountable, despite substantial proof of misuse. The government had, in fact, brought in several amendments to give "anti-terror teeth" to the UAPA coinciding with the repeal of POTA in 2004, and more stringent amendments were pushed through in the backdrop of the 2008 Mumbai attacks.

The vast scope for the misuse of the amendments to the UAPA has been articulated in the recent citizens' appeal to members of the Rajya Sabha, issued by the Jamia Teachers' Solidarity Association (JTSA), which has been endorsed by several senior civil rights groups, scholars and activists. The appeal has questioned five aspects of the amended law.

The broad definition of person, especially as "an association of persons or a body of individuals, whether incorporated or not" is open to misuse because "this will actually allow agencies and government to create persons beyond that what are recognised by law and any group of friends/ acquaintances can be labelled an association of persons or a body of individuals by the agencies and the government" like a "book reading club to friends who meet every evening at a dhaba may be deemed to be an association of persons or a body of individuals".

Another major amendment to the law has been to include economic offences within the larger definition of a "terrorist act". There are two aspects of this amendment that have raised questions. The criminalisation of "production, distribution of high-quality counterfeit currency" is "repetitive" and are already "covered by the equivalent sections 489B, 489C, 489D in the IPC". The civil rights activists question this amendment, arguing that "when comparable provisions in IPC and terror laws are available for same crimes, the police exercise the option of booking an accused under the terror law because it affords them greater leverage: bail provisions are much more stringent and the accused can be kept in custody for long periods (up to 180 days) without the filing of a chargesheet".

Another amendment broadens the scope of action against fund raising for "terror activities". Now, the raising of funds likely to be used (in full or in part) to commit a terrorist act or for the benefit of terrorists shall be punishable irrespective of whether the funds have been raised from legitimate or illegitimate sources. This is irrespective of whether such funds were actually used to commit a terror act or not. And it is punishable for a term not less than five years, but extendable to life.

The only safeguard is the condition that the accused should know that "such funds are likely to be used... by a terrorist organisation". The civil rights activists apprehend that this amendment will "practically bring under the possibility of prosecution all transactions, even perfectly legitimate ones, without any remote connection to a terrorist act" because "all that the prosecution needs to show is that the accused had knowledge that such funds could be likely used for terrorist act. While such subjective knowledge may again be difficult to prove, it will no doubt result in the incarceration of accused for long periods without bail".

While the introduction of several new changes has already made the UAPA exceptionally harsh, the amendment of Section 6 of the law has taken away the little hope for judicial scrutiny to prevent its misuse.

The ban on an organisation under the UAPA, which was earlier limited to a two-year period, has been extended to a five-year period. This means that the government has avoided putting its decision to ban an organisation under the UAPA through the scrutiny of a tribunal headed by a sitting judge of the High Court. For example, the tribunal hearing the ban on the Students Islamic Movement of India (SIMI) did not only look into the legality of the government's decision, but it also helped to record and raise the issue of fabricated evidence in individual cases across states. The government's logic, that extending the ban to five years is to lower the costs to administer the ban, is flawed because the delay in such a judicial scrutiny would make law enforcement less accountable.

There is enough evidence that scores of young Muslim men were branded members of the banned SIMI and arrested. The terror tag was enough to create an atmosphere of public revulsion and they were guilty till proven innocent. There are cases where these men were unable to manage a lawyer who would defend them because several bar associations had banned their members from representing these "terror suspects". There are examples where verses of the Quran, religious books and even Urdu literature were shown as incriminating material. There were instances where young men were arrested for "shouting slogans against the government" because they were "angry about the demolition of Babri mosque or Gujarat riots".

Under the normal procedure of criminal law, these acts would have been inconsequential. But once the police branded them as members of the banned SIMI, it automatically invoked the provisions of the UAPA, magnifying the seriousness of the charges. And even once these men win long and tiring battles in courts and are acquitted after years of imprisonment, the terror taint stays, making it extremely difficult to pick up the pieces of their lives and start afresh.

To understand as to why these stringent amendments to the UAPA are especially dangerous, we need to return to the debate in Parliament when this law was enacted, in 1967. Atal Bihari Vajpayee had called this law a "donkey that had been made to look like a horse" while George Fernandes had "moved an amendment that the period of ban be reduced to one year". While opposing the UAPA bill, noted parliamentarian Nath Pai had termed it "a measure introduced by a group of men who have lost faith in the people of India". Nath Pai had addressed the then home minister Y.B. Chavan and asked, "Will the baton of the police be the final guardian of the liberties, freedom and unity of this country? Can we trust the police to be the only fighter for the delicate fabric of our democracy?" Piloo Mody, who represented Godhra in the Lok Sabha, had said that he was "ashamed of the government". J.B. Kripalani, who had been chairman of the Fundamental Rights sub- committee, had said that "all these repressive laws violate the rule of law". He had termed the UAPA "superfluous", one that "may be used by the executive for purposes for which it is not intended". He had said that he did not question the intentions of the government. "Their intentions are good but it is like putting a sword in the hands of Hanuman. Hanuman may not like to kill, but somehow the sword kills".

This time, the passage of amendments to the UAPA in the Lok Sabha happened amid the din of a debate over FDI in retail. Unlike the larger consensus over the need to preserve the freedoms on Facebook, there isn't even a public debate over the UAPA and its misuse, because, in the dominant public discourse, its victims are deemed guilty till proven innocent.

muzamil.jaleel@expressindia.com

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