Police Reforms in India

Selected Recommendations and Guidelines

on ‘Capacity
apacity’ by Police Commissions and
Expert Committees in India

Researched and Compiled by

Bhhavya Kapoor
Kapoor, Graduate Institute Geneva, Switzerland

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Table of Contents
1. Introduction and Context………………………………………………………….......4
2. Abbreviations ………………………………………………………………………....6
3. Compilation of Recommendations on Police Reforms in India by Various Committees
I. Budget …………………………………………………………………....8
1. Modernisation Fund……………………………………………....8
2. Expenditure on Personal……………………………………..........9
3. Expenditure on Training……………………………………….....10
4. Expenditure on Infrastructure…………………………………....11
II. Human Resources ………………………………………….....................13
1. Capacity Augmentation –
(i) Beat police system……………………………………....13
(ii) Teeth-to-tail ratio…………………………………….....13
(iii) Manpower Strength……………………………………..14
(iv) Cyber Crime…………………………………………….15
(v) Training for working with modern technology................16
2. Training……………………………………………......................16
3. Constables……………………………………………..................23
4. Officers……………………………………………......................27
5. Working Conditions –
(i) Tenure…………………………………………….........29
(ii) Orderly System………………………………………....30
(iii) Working Hours………………………………………....30
(iv) Shift System……………………………………………..30
(v) Welfare Measures……………………………………....31
(vi) Transfers……………………………………………......32
(vii) Promotions……………………………………….............33
6. Separation of Law & Order and Investigating function of Police –
Separate Investigating Agency………………………………...............34
III. Diversity ………………………………………………………………...36
1. Women in Police…………………………………………….......36

2
 2. SC/ST/OBCs in Police………………………………………......38
IV. Infrastructure ………………………………………………..................39
1. Population per Police Station…………………………………...39
2. Area per Police Station……………………………………….....40
3. Training……………………………………………...................40
4. Technology……………………………………………..............41
V. Accountability ……………………………………………….................44
1. National/State Security Commission……………………………45
2. State Police Accountability Commission……………………….44
VI. Police and Public Interface …………………………………..................46
1. Police Complaints Authority........................................................47
2. Feedback Mechanism…………………………………………...47
3. Collaboration with Citizens……………………………………..48
VII. Forensics …………………………………………………….................49
1. Forensic Science Service………………………………………..49
2. Upgradation of Forensic Technology ………………………......50
3. Demarcation of Funds for Forensics………………………...…..51
4. Forensic Education and Training…………………………...…...51
VIII. Interface between Four Core Pillars of Justice ……………....................52
4. Analysis and Comments …………………………………………….........................53
5. Bibliography ………………………………………………………...........................54

3
 Introduction and Context

In the approximately 160 years since the Police Act of 1861 was passed in India, numerous committee
reports have come out with a wide range of recommendations, more often than not overlapping with
each other, with the aim of suggesting reforms to the Indian Police System on issues ranging from
capacity, training, organisation and legislation.

Starting from the report of the Indian Police Commission, established in 1902-03, nearly 20 reports have
been published by various committees and commissions. In addition to these, 11 state level commissions
have released their own reports, proposing reforms to the existing police systems in their respective
states. Out of these 31 reports, recommendations from 26 reports have been included in our
compendium, as well as certain Directives issued by the Supreme Court in the Prakash Singh vs Union
of India case in 2006-07. Certain reports of the state police commissions were not available or could not
be accessed online and were thus, excluded from the scope of this compilation.

The following sources have been referred to for the purpose of this report –

1. Report of the Indian Police Commission, 1902-03

2. Report of the Madhya Pradesh Police Reorganisation Committee, 1951-52
3. Report of the Kerala Police Reorganisation Committee, 1960
4. Report of the West Bengal Police Commission, 1960-61
5. Report of the Bihar Police Commission, 1961
6. Report of the Gore Committeeon Police Training, 1971-73
7. Eight Reports of the National Police Commission, 1977-81
8. 154th Report of the Law Commission of India, 1996
9. Report of the Ribeiro Committee on Police Reforms, 1998
10. Report of the National Human Rights Commission on ‘Measures to Improve Police Public
Relationship’, 1999
11. Report of the Padmanabhaiah Committee on Police Reforms, 2000
12. Report of the Malimath Committee on Reforms of Criminal Justice System, 2003

4
 13. Report of the Review Committee on Recommendations of National Police Commission and
Other Commissions/Committees on Police Reforms (Mooshahary Committee), 2005
14. Fifth Report of the Second Administrative Reforms Commission on ‘Public Order’, 2005
15. Report of the Police Act Drafting Committee chaired by Soli Sorabjee, 2005-06
16. Directived issued by the Supreme Court in the Prakash Singh Vs Union Of India case, 2006-07
17. Kamal Kumar’s Report on ‘National Requirement of Manpower for 8-Hour Shifts in Police
Stations’, 2014
18. 237th Report of the Department-Related Parliamentary Standing Committee on Home Affairs on
‘Police - Training, Modernisation and Reforms’, 2022

The selected recommendations from the relevant commissions and expert committee reports have been
divided into eight broad points of reference which have been further categorised based on common
themes observed across different reports. Recommendations under each sub-heading have been listed
chronologically and are accompanied by a brief description regarding the context and scope of the
theme.

5
 Abbreviations

ARC Administrative Reforms Commission

ASI Assistant Sub-Inspector of Police
BPR&D Bureau of Police Research and Development
CAPF Central Armed Police Forces
CCA City Compensatory Allowance
CCTNS Crime and Criminal Tracking Network & Systems
CCTV Closed Circuit Television
CFSL Central Forensic Science Laboratory
CrPC Code of Criminal Procedure
DA Dearness Allowance
Dy. SP Deputy Superintendent of Police
EQ Emotional Quotient
ERSS Emergency Response Support System
FIR First Information Report
FSL Forensic Science Laboratory
ICJS Inter-operable Criminal Justice System
IP Internet Protocol
IPC Indian Penal Code
IPS Indian Police Service
IQ Intelligence Quotient
IT Information Technology
LCI Law Commission of India
MHA Ministry of Home Affairs
MPF Scheme Modernisation of State Police Forces Scheme
MSc Master of Science

6
NEPA North-Eastern Police Academy
NHRC National Human Rights Commission
NPC National Police Commission
OBC Other Backward Classes
SC Scheduled Caste
SHO Station House Officer
SP Superintendent of Police
SSLC Secondary School Leaving Certificate
ST Scheduled Tribe
SVPNPA Sardar Vallabhbhai Patel National Police Academy
UT Union Territory

7
 Compilation of Recommendations on Police Reforms in India by Various
Committees

I – BUDGET

Budget is one of the five major indicators outlined in the India Justice Report. Budgetary allocations are
integral to determine whether the police are adequately resourced and staffed and thus, has found a part
amongst the recommendations of several reports.

1. Modernisation Fund–The fund refers to the Scheme for Modernisation of State Police Forces (MPF
Scheme), in effect since 1969-70 under which the Ministry of Home Affairs (MHA) has been
supplementing the efforts and resources of the States, from time to time. It has been renamed as
“Assistance to States for Modernisation of Police”, since 2017.

A Central team may be constituted with representatives from the

Ministry of Home Affairs, Bureau of Police Research & Development
and Institute of Criminology & Forensic Science to visit the States
once in two years and assess the actual ground position in regard to
NPC, Third Report, 1977-81
modernisation of the State police. The quantum of Central assistance
(Para 24.6 and 24.7)
to the States may be decided with due regard to the assessment reports
of this team and the Central assistance scheme which operated upto
1978-79 should be continued foranother ten years with substantial
increase in allotment.
The release of central grants for modernisation or upgradation funds
Padmanabhaiah Committee,
should be dependent upon compliance by state governments with
2000
certain basic issues, like each state having a manpower and career
(CHRI – Police Reform Debates in
planning system, a transparentrecruitment, promotion and transfer
India – Page 30, 9.2)
policy and meeting certain minimum standards for training.
MHA must monitor modernisation grants provided to states. Structural
Mooshahary Committee, mechanism should be put in place by the Government of India to

8
2005 periodically assess the ground needs of modernisation of each state
(Recommendation No. 26) police force and to periodically evaluate actual impact of
modernization scheme.

The MHA should constitute a Committee which can visit the

underperforming States and assist/advise/persuade them to utilize the

Department-Related funds in a planned manner; otherwise the situation in these states may

Parliamentary Standing take a long time to show improvements.

Committee on Home Affairs,

The Modernisation grants given to States are lapsable and therefore,
237th Report on Police -
the MHA may release the funds to States in the first or second quarter
Training, Modernisation and
so that the States have adequate time to spend the funds. The MHA
Reforms, 2022
may also work out ways to remove administrative delays and
(Para 3.12.4, Para 3.15.2, Para
bottlenecks that cause delays in the release of funds.
3.15.3)
MHA may consider to re-include the items of ‘mobility and
‘construction of police infrastructure including housing’ under the
‘Assistance to States for Modernisation of Police’ for all States/UTs.

2. Expenditure on Personnel

Creation of a separate police education fund in each state, made up of

NPC, Second Report, 1977- contributions from the police personnel themselves and supplemented
81 by ad hoc/recurring grants from the state government. The fund should
(Para 13.13) be built up with the ultimate objective of establishing at least one
police school in each district headquarters.

Padmanabhaiah Committee,
2000 State governments must give high priority to the allocation of
(CHRI – Police Reform Debates in resources to the police.
India – Page 30, 9.1)

MHA may actively consider the allocation of funds to all States/UTs

Department-Related for housing under the 'Assistance to States for Modernisation of Police'

9
Parliamentary Standing
Committee on Home Affairs,
237th Report on Police -
Training, Modernisation and
Reforms, 2022
(Para 4.12.5)

3. Expenditure on Training

Gore Committee Report

onPolice Training, 1971-73
(Chapter XII, Para 29)

Mooshahary Committee,
2005
The States should find more money for police training to improve the
(Recommendation No. 27)
existing arrangements. A major financial investment will also have to
be made by the Central Government if police training is to be
Department-Related
reoriented and modernised throughout the country.
Parliamentary Standing
Committee on Home Affairs,
237th Report on Police -
Training, Modernisation and
Reforms, 2022
(Para 2.3.6)

2nd ARC, Fifth Report, 2005

Each state should earmark a fixed percentage of the police budget for
(Page 263, Point 15(c)/Para
training purposes.
5.13.5)

The MHA may allocate a designated amount under their grants to the

10
Department-Related States and also extend necessary resources to them for developing a
Parliamentary Standing robust online training infrastructure. The Centre could encourage the
Committee on Home Affairs, States by providing certain incentives for their online training
237th Report on Police - initiatives.
Training, Modernisation and
Reforms, 2022
(Para 2.10.4)

4. Expenditure on Infrastructure

Gore Committee Report on The Governments should make reasonable investments in research and
Police Training, 1971-73 development work to promote the induction of science and technology
(Chapter V, Para 5) into police work in India.

Government of India should continue financial aid in increasing

NPC, Second Report, 1977-
measure to the States for installing computers in the police
81
communication and record systems and complete a time bound
(Para 17.8)
computerisation plan.

2nd ARC, Fifth Report, 2005

The working of the Bureau of Police Research and Development needs
(Page 261, Point 12(c)/Para
to be strengthened by adequate financial and professional support.
5.10.4)

It is recommended a five year rolling plan be prepared and adequate

Malimath Committee, 2003
funds are made available to meet the basic requirements of personnel
(Page 273, Point 17-xvi)
and infrastructure of the police.

Department-Related The MHA must allocate adequate funds and extend necessary
Parliamentary Standing resources for the establishment of cyber training labs and
Committee on Home Affairs, strengthening/upgrading of existing cyber training infrastructure in all
237th Report on Police - the States/UTs.

11
Training, Modernisation and MHA may initiate setting up adequate manufacturing units of non-
Reforms, 2022 lethal weaponry in the country to address the issue of shortages in this
(Para 2.9.8, Para 3.16.8) regard.The MHA may coordinate with States to increase investment in
the purchase of non- lethal weaponry, latest anti-riot equipment and
standardize the uniform of police personnel with lightweight, easy to
wear body protection gears to minimize injury/casualty during
performing law and order duties.

12
II – HUMAN RESOURCES

As outlined in India Justice Reports, despite being the second most populous nation in the world, India
has one of the lowest police to population ratios in the world. Concomitantly, the most extensively
addressed theme across reports in terms of capacity augmentation of police in India is Human Resources
with two themes which have been addressed in nearly all reports – first, training of both constables and
officers and second, separation of investigation from law and order function of the police.

1. Capacity Augmentation

(i) Beat Police System

[Beat refers to the territory that a police officer patrols. It is based on traditional policing and utilises
close relationship with the
community members within the assigned beat to improve police effectiveness.]

NPC, Fifth Report, 1977-81

(Para 41.32)
NPC, Seventh Report, 1977-81
The beat police system should be revived andstrengthened.
(Para 50.25)
2nd ARC, Fifth Report, 2005
(Page 262, Point 14(e)/Para 5.12.6)

(ii) Teeth-to-tail Ratio

[Refers to the median ratio of police officers to constabulary.]

West Bengal Police There should be three constables for every two investigating officers
Commission Report, 1960-61 and six for every beat, there being one beat to every 75 cases in rural
(Page 133, Para 9) areas.

Recruitment should focus on hiring sub-Inspectors instead of

Padmanabhaiah Committee, Constables. To increase the ratio of senior to junior officers,

13
2000 recruitment of Constabulary should be restricted until a teeth to tail
((CHRI – Police Reform Debates in ratio of 1:4 is achieved. Currently, this ratio ranges from 1:7 to 1:15
India – Page 27, 2.1)
in different states.
Mooshahary Committee, 2005
(RecommendationNo.12)

(iii) Manpower Strength

Indian Police Commission,

The police forces are at present inadequate in every province and
1902-03
must be increased.
(Para 193)

Madhya Pradesh Police

Where Assistant Sub-Inspectors are provided there should be one SI
Reorganisation Committee
for every 175 cases reported in a year at a city police station.
(Para 46)

Bihar Police Commission,

There should be one investigating officer for every 60-70 cognisable
1961
cases a year.
(Page 400, Point 17)

NPC, Third Report, 1977-81 Control rooms with attendant patrol vans should be introduced in all
(Para 24.20) cities with a population exceeding one lakh.

The cadre of investigating officers has to be increased. The police

NPC, Fourth Report, 1977-81
hierarchy has to be re-structured to secure, inter alia, a larger number
(Para 27.7)
of officers to handle investigational work.
An investigating officer should not be required to investigate more
NPC, Seventh Report, 1977-81
than 50 to 60 cases each year.
(CHRI – Police Reform Debates in
Police stations in cities that deal with more than 900 cognisable
India – Page 19, 1.4,1.5, 2.1, 2.2)
offences under the Indian Penal Code annually should have a Deputy

14
 Superintendent or Assistant Superintendent as Station House
Officers. Police Stations investigating over 300 IPC cases per year
should be headed by an Inspector of Police. The third category will
consist of smaller police stations headed by Sub Inspectors.
There should be an increase in the number of officers at the middle
level of the police hierarchy (Assistant Sub-Inspector, Sub-Inspector,
and Inspector).There should be a reduction in the number of junior
officers (constabulary). This will provide a larger number of
investigating officers and improve promotional opportunities for
junior officers.
For liquidating the existing pendency, and, for prompt and quality
investigation including increase in the number of Investigating
Officers is of utmost importance. It is recommended that such
Malimath Committee, 2003
number be increased at least two-fold during the next three years.
(Page 273, Point 17-xiv)
For ensuring effective and better quality of supervision of
investigation, the number of supervisory officers (additional
SPs/Dy.SP) should be doubled in next three years.

Mooshahary Committee, 2005 Enhancement of manpower strength sanctioned for police stations to
(Recommendation No. 15) be taken up on urgent footing as currently it is abysmally low. A
regular system of periodical manpower audit also needs to be put in
Kamal Kumar’s Report, 2014 place for police stations as indeed also for other units of police
(Page 128, Point-ix) organization.

(iv) Cyber Crime

Department-Related The Committee understands that the States are facing constraints of
Parliamentary Standing manpower and resources in managing cyber-crime investigations. It
Committee on Home Affairs, recommends that the MHA should consider creating volunteer help
237th Report on Police - groups of IT Experts from civil society.
Training, Modernisation and The State/UT police should create a cyber-crime help desk for
Reforms, 2022 immediate reporting of the cyber-crimes leading to an early
(Para 2.9.7, Para 3.21.13) investigation by them.

15
 The Committee recommends that the MHA may encourage
States/UTs to recruit qualified cyber experts/IT professionals to assist
police in detecting, monitoring, preventing and investigating cyber-
crimes.
(v) Training for working with modern technology
The Committee recommends that the MHA along with the Ministry
Department-Related of Civil Aviation may advise States to sensitize ground-level police
Parliamentary Standing personnel on the drone regulations. This may include the civilian use
Committee on Home Affairs, of drones which will help in detecting rogue drones.
237th Report on Police -
Training, Modernisation and The MHA may coordinate with concerned Ministries/Agencies and
Reforms, 2022 States/UTs to create an SOP for the steps to be taken by the State
(Para 3.22.5, Para 3.22.6) police in case of a drone attack.

2. Training

Successful candidates should be required to undergo a two years

course of training at an English residential university where there is a
Board of Indian studies, each candidate receiving an allowance
during this period of 6100 a year; and that the course of study should
include criminal law and practice, taking of notes of cases in the
criminal courts, an Indian vernacular, Indian history, geography and
Indian Police Commission,
ethnology and riding. Probationers should also be required to join a
1902-03
volunteer corps and become efficient. In addition to this probationary
(Recommendation No. 44, 45, Para
training in England each AssistantSuperintendent should on arrival in
64)
India be attached for one session to the provincial training school.
That for the training of constables central schools should be
established for groups of districts; that each school should be under a
Deputy or assistant Superintendent, assisted by a staff of Inspectors
and sub-Inspectors; that the course of training should extend over six
months and should include instruction in drill, discipline, elementary

16
 law and police procedure and the manner in which police officers
should conduct themselves towards the public.

Madhya Pradesh Police Refresher courses should be conducted for constables posted in cities,
Reorganisation Committee sub-inspectors who have put in five to ten years of service, senior
(Para 225, 226, 230 and 231) inspectors and Gazetted officers.

Bihar State Police An effective system of detective training on up-to-date and practical
Commission, 1961 lines should be designed for officers selected for the Criminal
(Page 404, Point 10) Investigation Department. Course of Training should cover 12 weeks.
There should be three kinds of institutions in the States for the
training of police officers-
a) A Police training college for the training of Deputy
Superintendents, Inspectors and Sub-Inspectors.
b) One or more police training schools for the training of
Constables and Head Constables.
c) Armed police training centre for the training of personnel of
Gore Committee Report on
the armed police battalions
Police Training, 1971-73
All States which have a large enough strength of armed
(Chapter XII, Para 2, 8, 9, 27, 34, 43,
45 policebattalions should have an institution on the lines of the Armed
Chapter III, Para 3, 7 Training Centre, Sitapur, U.P.
Chapter VII, Para 18, 21) The Central Government should set up at least one police training
college and one police training school for States and Union
NPC, Fifth Report, 1977-81 Territories where the annual intake as well as the total complement of
(Para 36.19)
the police force is small and where independent institutions may not
be feasible. these could, perhaps, be located very advantageously
under the Eastern Zonal Council at Shillong or Gauhati to serve
primarily the needs of Manipur, Tripura, Arunachal Pradesh,
Nagaland and Mizoram. The central police training college and
school can serve as models for the States.
In each of the bigger States, a senior officer of the rank of Inspector
General should be appointed to devote whole time attention to

17
important matters relating to personnel administration like
recruitment, training, career development and promotion, and the
management and supervision of the institutional and practical
training of police officers of all ranks. He may be of the rank of
Deputy Inspector General in the smaller States and Superintendent of
Police in some of the Union Territories. He should be designated as
the Inspector General/Deputy Inspector General/superintendent,
Training, as the case may be. there should be a separate officer for
this post Principal of the police training college.
There should be a phased in-service training programme in the form
of refresher, orientation, specialised, middle level and senior level
courses, besides the induction training of new recruits at different
levels to make training purposeful and effective for the attainment of
the goals of the organisation. For the higher-level officers, there
should be a greater input of managerial and conceptual skills in the
training programmes.
The nature, level and content of the courses, the methods of
instruction and the quality and quantum of the instructional staff will
all need periodic review with the object of constantly improving the
training programmes.

[Reiterated by theDepartment-Related ParliamentaryStanding

Committee on Home Affairs in their 237th report tabled in February,
2022]
(Para 2.2.19)

Apart from the senior officers’ course, we recommend a number of

courses of about two to three weeks duration in the various functional
areas of police administration and in the techniques of management
of officers of about six to ten years’ service.
Till such time as direct recruitment to the rank of Deputy
Superintendent is not discontinued, they should be trained at the State
police training colleges.

18
 The syllabus for their training should be the same as for the I.P.S.
probationers with the difference that the items relating to language
training and the three weeks study-cum-cultural tour may be omitted
and equitation may be included only in the States in which there are
units of the mounted police. The subject of management concepts
and techniques should be covered in about 60 periods.
More Central Detective Training Schools should be opened on a
regional basis. The existing Schools may be earmarked to serve the
needs of the Eastern and the South- ern States/Union Territories and
new Schools started at Lucknow/Chandigarh and Jaipur to serve the
needs of the Northern and the Western States/Union Territories. The
capacity of the existing Schools may be increased to the extent
possible without prejudice to the quality of the instruction provided
there.
The Central Government should aim at setting up an Institute for the
Training of Trainers, when the requisite expertise has been developed
and, in the meantime and as an immediate measure, they may
establish a Training of Trainers Wing of the National Police
Academy at Hyderabad to conduct courses for instructors of the rank
of Deputy Superintendent and above from the training institutions of
the Centre and the States. Instructors trained at this Wing can be
utilised to train instructors of lower ranks in the States by
establishing similar or analogous training programmes in their own
police training institutions.
The establishment of a Central Directorate of Police Training.
There should be collaborative arrangements between police training
institutions and universities and other appropriate institutions for
undertaking research projects on matters of interest to the police and
training programmes designed to meet the requirements of police
officers at various levels.
Training should focus on bringing in attitudinal change in police so
NPC, Second Report, 1977-81 that they become more responsive and sensitive to citizens’ needs.

19
 Inculcation of soft skills in Police Personnel must be focus of training
2nd ARC, Fifth Report, 2005 modules.

Department-Related
Parliamentary Standing
Committee on Home Affairs,
237th Report on Police -
Training, Modernisation and
Reforms, 2022
(Para 2.4.2, Para 2.6.4)

Ribeiro Committee, Second

report, 1998-1999 The quality of training/training infrastructure in police training
institutions must be improved to enhance the performance and
Malimath Committee, 2003 behaviour of the police.
(Page 274, Point 18)

Coordinate with State Police Academy & Training Centres to ensure

that their in-service training curriculum have sufficient elements of
human right jurisprudence for the trainees of all ranks. Such a
module would aim at educating and sensitizing on the following
matters:
a) Constitutional provisions relating to rights of citizens.
NHRC Report, Measures to
b) Key provisions in the substantive law that provide explicit
Improve Police-Public
“do’s” and “don’ts” in matters of arrest, interrogation, search
Relationship, 1999
and seizure etc.
c) Landmark judgements of the Supreme Court on human rights
matters; and
d) The implications of fall-outs and non-observance of the
human rights guidelines/ instructions/ laws, while discharging
their duties and responsibilities.

20
 A Police Training Advisory Council should be set up at the union
Padmanabhaiah Committee,
level and also in each state, to advise the relevant Home Minister on
2000
police training.
(CHRI – Police Reform Debates in
Existing Constables should be retrained. Those who do not
India – Page 28, 3.1 and 3.2)
successfully complete training should be compulsorily retired.
All training programmes must conclude with an assessment of the
trainees, preferably by an independent agency.

[In 1971-73, the Gore Committee Report on

Police Trainingproposed a very specific recommendation on
assessment of trainees – The system of evaluation for the armed
police should be the same as for the corresponding ranks of the civil
police. The trainee should, in addition, be assessed regularly on his
performance in the handling of weapons and equipment and in the
deployment and management of personnel. A general impression
note should be maintained by the instructors in respect of each
trainee. The general impression notes should be discussed and the
Commandant's marks should be awarded in a conference of the
2nd ARC, Fifth Report, 2005 instructions with the head of the Institution towards the end of the
course. These marks should be added to the marks obtained in the
written and other tests for final grading.]
(Chapter X, Para 7)

Modern methods of training such as case study method should be

used.
Impact of training on the trainees should be evaluated by independent
field studies and based on the findings the training should be
redesigned.
All training programmes should include a module on gender and
human rights. Training programmes should sensitise the police
towards the weaker sections.The administration and police should be
sensitised towards the special problems of the Scheduled Castes and
Scheduled Tribes. Appropriate training programmes could help in the

21
 sensitising process.

Mooshahary Committee, 2005

Training must be provided for new officers and also when existing
(Recommendation No.9)
officers are posted to a different branch. Annual refresher classes
Soli Sorabjee Committee,
must be held.
2005-06

MHA may advise States/UTs for creation of a reserved training pool

at the District level so that if training is proposed to be given to 100
constables, then those chosen for training could be replaced with
reserve constables from the training pool created for the purpose and
there is no hesitancy on the part of the higher police officers in
sending the personnel for training.
The Committee recommends that the SVPNPA, NEPA should
coordinate with State training academies to train police personnel
with requisite knowledge of cyber-crime investigation, digital
Department-Related
forensics and upgrade them from time to time on new technological
Parliamentary Standing
tools to deal with cyber-crimes. The training academies may be
Committee on Home Affairs,
advised to recruit cyber experts as trainers on cyber technologies.
237th Report on Police -
The Committee recommends that a common training module may be
Training, Modernisation and
prepared by BPR&D and shared among the States/UTs. This will
Reforms, 2022
create a common minimum standard of police training in the country.
(Para 2.11.3, 2.9.6, 2.13.3, 2.2.20)
Common online library resources of Central and State police training
academies may also be created to make them available all over the
country.
Training institutions like SVPNPA and NEPA may take up with
States training academies to conduct training/sensitization
programmes on artificial intelligence, robotics, drone technology,
forensic and ballistic sciences, so that police personnel become adept
in the detection, investigation and prevention of such crimes in a
professional way.

22
3. Constables

Minimum educational standard of constabulary should be fourth

vernacular.

Madhya Pradesh Police Matriculate constables may be permitted to take head constables’
Reorganisation Committee examination after two years of service instead of four.
(Para 210 and 212) Age limit for recruitment of constables should be lowered from 18
and 25 years to 17 and 21 years.
There should be no direct recruitment of head constables and ASIs.

Report of the Kerala Police

A minimum standard of education, preferably S.S.L.C. should be
Reorganisation Committee,
insisted on for regular constabulary.
1960

The educational and physical qualifications for the recruitment of

Constables, both in the unarmed and armed branches of the police
should be as follows:-
a) The high School examination or its equivalent should be the
minimum educational qualification. Suitable advance
Gore Committee Report on
increments should be given to candidates with higher
Police Training, 1971-73
qualifications.
(Chapter VI, Para 16, 18)
b) The minimum age should be eighteen years and the maximum
20. It may be 31 relaxed upto two years for those possessing
higher educational qualifications. For scheduled castes/tribes,
[NPC, in its Fifth Report, also
relaxation may be given upto five years, but the gap between
endorsed the physical
the completion of education and entry into the police should
qualifications recommended by
not be more than three years
Gore Committee]
c) The Minimum height should not be less than 167 cm (5'-6")
in general and 165 cm (5'-5") in the case of men from the hill
and tribal areas. This may be raised or re- laxed in the
different States or for selected area of a particular: State for
ethnological reasons.

23
 d) The minimum chest measurement should be 78.74 cm (31")
un- expanded and 83.82 om (33") expanded for those whose
heights is 167.64 cm (5'.6") and 76.5 cm (30") un-expanded
and 31.28 cm (32") expanded for those whose height is less.
e) Standard age-height-weight correlation tables should be
consulted while prescribing the minimum weight limits so
that these may be in accord with the height limits adopted by
the different States/Union. Territories.
The following procedure should be adopted for the recruitment of
Constables
a) Extensive publicity should be given to the recruitment
programme.
b) Recruitment should be made one month prior to the
commencement of the course in the police training
school/Armed training centre. The course may be staggered in
the different schools in a State so that recruitment may be a
continuous process and vacancies do not accumulate.
c) Recruitment to the unarmed branch should be district-based
and that to the armed branch unit-based. Since the
qualifications for both branches are the same, recruitment to
both may be made jointly.
d) After the candidates have been screened with regard to the
prescribed educational, physical and age qualifications, a
physical test should be administered to them on the model of
the one-star National Physical Efficiency Test.
e) Those who qualify in the physical test should be subjected to
I.Q. test. Candidates whose I.Q. rating is below a pre-
determined level should be dropped.
f) The final selection may be made by a board consisting of the
superintendent of Police of the district/the Commandant of an
armed reserve battalion and two other officers, who should
preferable include a representative of the police training

24
 school.
g) Selected candidates should be subjected to a medical
examination. Comprehensive instructions should be drawn up
and issued in every state for the guidance of the medical
officers in this regard.
h) The character and antecedents of the selected candidates may
be verified as at present.
The Constabulary should no longer be treated as a cadre meant only
for duties of a mechanical character as visualised by the 1902
Commission. They should be so recruited and trained that they could
be deployed also on duties involving exercise of discretion and
judgment, with due regard to the paramount need for securing public
cooperation and understanding in any situation.
They should be able to assist the Sub-Inspectors in inquiries and
investigational work in a positive and purposeful manner.
They should pick up experience of such work over a period of 5 or 6
years and be in a position to handle investigational work
NPC, First and Fifth Report,
independently and rise to the level of Assistant Sub-Inspector and
1977-81
upwards by promotion.
Ribeiro Committee, Second
The promotional structure within the police system should be
report, 1998-1999
radically revised to permit a smooth and quick promotional flow
Mooshahary Committee, 2005
from the rank of Constable. It should be possible for a Constable to
(Recommendation No.6 and 7)
rise by promotion to higher ranks-even the highest-by showing his
worth in the performance of police tasks.
A Constable should be classified as a skilled
worker.(Padmanabhaiah Committee, 2000)
(CHRI – Police Reform Debates in India – Page 31, 11.1)

The minimum educational qualification for recruitment as Constables

in the armed as well as civil police should be High School pass
uniformly throughout the country. This should not operate against
attracting candidates of higher educational qualifications and some
weightage in the form of bonus marks may be given to candidates

25
 with higher qualifications. (Fifth Report)
Recruitment to the constabulary shall be done at the district level to
ensure adequate representation for every district in the police. But
recruitment should be based on uniform standards of objectivity and
impartiality throughout the State. (Fifth Report)
Each state should establish an independent Police Recruitment
Board. The Board should recruit all non-gazetted ranks.

[The Mooshahary Committee in 2005 suggested – Guidelines for

Ribeiro Committee, Second
State Police Recruitment Boards could be provided by states with
report, 1998-1999
successfully functioning boards like Andhra Pradesh]
(Recommendation No.3)

The minimum educational qualifications for recruitment as Constable

should be higher secondary school.
Constables should be recruited at a young age. Candidates who have
Padmanabhaiah Committee,
passed the 10th class school examination and who are below 19 years
2000
of age should be eligible to take an entrance examination. Successful
(CHRI – Police Reform Debates in
candidates should be put through a two-year training programme and
India – Page 27, 2.2)
qualify for appointment only after passing a final examination.
Educational qualifications/Age limits for Recruitment of Constables
Mooshahary Committee, 2005 – 10+2 standard needs to be bare minimum educational level for new
(Recommendation No. 1) entrants, and the committee prefers graduation as minimum
qualification. Age of recruitment should be between 17-21 years.
The existing system of the constabulary should be substituted with
2nd ARC, Fifth Report, 2005 recruitment of graduates at the level of Assistant Sub- Inspector of
Police (ASI).
Constables shall be replaced by a Civil Police Officer, with a higher
standard of education and training as set out below:
Soli Sorabjee Committee, a) A person between the ages of 18-23 years, with a minimum
2005-06 qualification of 10+2 higher secondary education shall be
inducted as a trainee for three years; and
b) Successful completion of training, including a Bachelor’s

26
 Degree in Police Science, leads to the trainee cadet becoming
a Civil Police Officer, Grade II.

4. Officers

Minimum educational qualification for SIs should be matriculation

but preference should be given to those with higher educational
Madhya Pradesh Police qualifications. Proficiency in games should receive due weightage in
Reorganisation Committee selection of candidates.
(Para 213) There should be a written test and test of physical fitness conducted
by Public Service Commission before candidates are interviewed for
selection.
The educational and physical qualifications for the recruitment of
Sub-Inspectors, both in the un-armed and armed branches of the
police should be as follows:
a) A graduate degree from a recognised university should be the
minimum educational qualification.
b) The minimum age limit should be 20 years and the maximum
23. for post-graduates relaxation may be given upto two
years, and for scheduled castes/ tribes candidates upto five
years; the gap between the completion of education and entry
Gore Committee Report on
into the police should not exceed three years.
Police Training, 1971-73
c) The physical qualifications should be the same as for
(Chapter VI, Para 7, 9, 18, 20)
constables.
The selection of sub- Inspectors should be handed over to the State
Public Service Commission.
Properly developed psychological tests administered by competent
psychologists can make a useful contribution in the police selection
process. As a great deal of research work is necessary to develop
suitable tests, a small cell of one or two psychologists should be set
up in the Bureau of Police Research and Development to develop
them expeditiously. An Advisory Committee of senior psychologists

27
 should be associated with the work of this cell.

(NPC, Fifth Report, 1977-81 – Pointed out that no step taken on this
recommendation yet)
[In line with the same, 2nd ARC (Fifth Report, 2005) suggested –
Recruitment process in the police should emphasise on testing of
aptitude, psychological screening including IQ/EQ.]
For recruitment to the higher ranks of the police, it is necessary to
assess the qualities of leadership, decision-making and task
performance and the capacity to withstand stresses and strain. The
tests employed by the Army to evaluate these qualities may be
adopted or other suitable tests developed for this purpose.
In future it would be necessary to limit recruitment to the police to
two levels only, namely, (i) Constables and (ii) Indian Police Service.
The recruitment to the other levels should be eliminated by a phased
programme.
The minimum educational qualifications for recruitment to the post
of Sub-Inspectors shall be a Graduate Degree from a recognised
University. No special weightage need be given to post-Graduates.
NPC, Fifth Report, 1977-81
This should be uniform throughout the country for both armed and
unarmed branches of the police. The minimum age limit for
recruitment should be 20 years and the maximum 23 years. This is
subject to usual relaxation's in the case of Scheduled Castes and
Scheduled Tribes. The physical standards as are applicable to the
constabulary shall apply to the recruitment of the Sub-Inspectors
also.
Sub-Inspector candidates should have passed the 12th class school

Padmanabhaiah Committee, examination. Candidates should be below 21 years of age and

2000 recruited on the basis of results from an entrance examination.

(CHRI – Police Reform Debates in Successful candidates should be put through a three-year training
India – Page 27, 2.3) programme and qualify for appointment after passing a final
examination. 50% of vacancies for this rank should be filled by direct

28
 recruitment, and 50% should be filled through promotion.
Educational Qualifications/Age limits for recruitment of sub-
Mooshahary Committee, 2005 inspectors – minimum graduate from a recognised university, no
(Recommendation No. 2) special weightage to post graduates, age limit 20-23 with relaxation
for reserved categories, physical standards same as constables.
The procedure for recruitment of police functionaries should be
2nd ARC, Fifth Report, 2005
totally transparent and objective.
Soli Sorabjee Committee, Minimal education qualification for a reserve Sub-Inspector must be
2005-06 a graduate with aged between 21-24 years.

Department-Related
Parliamentary Standing
The MHA may advise States/UTs to conduct Police recruitment
Committee on Home Affairs,
drives in a mission mode and remove the administrative bottlenecks
237th Report on Police -
for the recruitment of police personnel at different ranks in a time-
Training, Modernisation and
bound manner.
Reforms, 2022
(Para 3.23.5)

5. Working Conditions

(i) Tenure
A tenure policy should be put in place to prevent illegitimate political
Padmanabhaiah Committee, interference in police functioning.
2000
(CHRI – Police Reform Debates in
India – Page 28, 5.1)
The minimum tenure of all officers should be two years.
Soli Sorabjee Committee,
2005-06
[Revised to three years by - 2nd ARC, Fifth Report, 2005]
Supreme Court Directives,
2006-07

29
(ii) Orderly System
[This system was introduced by the British in late 19th century. An orderly is expected to help officers
with small errands and general upkeep.]
Orderly system should be abolished with immediate effect.

NPC, First Report, 1977-81

[Mooshahary Committee in 2005 added that - Suitable monthly
2nd ARC, Fifth Report, 2005
allowance for employing a private person to assist the officer.]
(Recommendation No. 16)

(iii) Working hours

Madhya Pradesh Police

Reorganisation Committee Hours of duty of constables should be regularized.
(Para 254)

Rational working hours should be strictly followed for all police

2nd ARC, Fifth Report, 2005
personnel.

Each staff member in every police station should be allowed a

Kamal Kumar’s Report, 2014
weekly off regularly.Leave applied for by the staff should also be
(Page 127, Point-3)
freely granted, as admissible, except in a grave emergency.

(iv) Shift System

Shift system should be introduced in the functioning of police
stations, as early as possible. For this purpose, duties and functions
that can be performed in a fixed time schedule of 8 hours (as adopted
by Kerala), such as court-related work, accounts and establishment
related and other office work, etc., would need to be segregated from
Kamal Kumar’s Report, 2014
duties that require availability of staff for longer time
(Page 127, Point-1)
durations.Duties, which need to be performed in only two shifts, and
those requiring three-shift functioning should be identified
separately, and scheduled as such.

30
 [The Mooshahary Committee in 2005 had suggested - ensure that
police constables do not have to work for more than 8 hours a day
and on an average 6 days a week]
(Recommendation No. 5)

(v) Welfare Measures

Madhya Pradesh Police

Adequate leave reserve should be provided for Head Constables and
Reorganisation Committee
Constables at all rural police stations
(Para 56)

Besides his normal entitlement to leave, a Constable/Head Constable

should be entitled to additional leave for 15 days every year with
facility to encash that leave if it is denied to him in public interest.
It is recommended that the conveyance allowance and washing
allowance paid to the Constabulary which are low and unrealistic in
some States should each be raised to Rs. 10/p.m. The cost involved in
this recommendation will vary from State to State.
Overtime pay at the rate of 30% of total emoluments including DA
and CCA for all police personnel from public order situations and
crime investigations.
NPC, First Report, 1977-81 It is recommended that a special qualification pay be paid to
policemen, who acquire the following skills or technical/academic
knowledge—
a) Proficiency in driving and motor mechanism;
b) Proficiency in handling wireless equipment for transmitting
and receiving messages; proficiency in handling computers
and electronic data processing machinery; and acquiring a
University degree higher than what he had already secured at
the time of entering service in a subject which would be of
professional use to him. For example, criminology, forensic
sciences, etc.
In recognition of the shift nature of police work, police personnel

31
Padmanabhaiah Committee, should be provided one day off each week and required to go on
2000 earned leave each year.
(CHRI – Police Reform Debates in
India – Page 31, 11.2)

Salary to be commensurate with responsibilities and powers, coupled

Mooshahary Committee, 2005 with arduous and hazardous nature of duties. Needs to be
substantially enhanced.
Welfare measures for police personnel in the form of improved
working conditions, better education facilities for their children,
social security measures during service, as well as post retirement
2nd ARC, Fifth Report, 2005
should be taken up on priority.
Major housing construction programmes for police personnel should
be taken up in a time bound manner in all states.
A Police Welfare Bureau must be set up to improve the welfare of
Soli Sorabjee Committee, police officers. Officer welfare shall be improved by providing free
2005-06 insurance cover, putting in place internal grievance redressal systems
and introducing eight-hour shifts.
(vi) Transfers
A sub-inspector should not ordinarily be transferred unless he has
West Bengal Police been at his station for four years, an Assistant Sub-Inspector, head
Commission, 1960-61 constable, naik or constable should be allowed to remain in one place
for three years.

Protect police officers from mala fide transfers/suspension orders.

NPC, Second Report, 1977-81
Make statutory provision in the new police act. Explanation to be
Mooshahary Committee, 2005
provided for transfer or suspension orders.

There should be proper procedures to ensure merit based

2nd ARC, Fifth Report, 2005
appointments and transfers in the police.

Soli Sorabjee Committee, Power to transfer is given to different authorities depending on rank
2005-06 or post. Transfer is prohibited by any authority other than the one

32
 specified in law.
(vii) Promotions

A competitive cum qualifying examination should form the basis for

Madhya Pradesh Police
promotion from one rank to another. Pre-promotion training courses
Reorganisation Committee
have been proposed for constables about to officiate as head
(Para 220 to 230)
constables, ASIs, SIs and Circle Inspectors.

There should be Promotion Committees and Boards and there should

Report of the Kerala Police
be no scope for unfairness or influence in the matter of promotions or
Reorganisation Committee,
disciplinary action and there should be neither victimisation nor
1960
shielding of Police Officers when anything goes wrong.
All promotions should be subject to completing mandatory pre-
promotion training and passing pre-promotion examinations.

[West Bengal Police Commission, 1960-61; Padmanabhaiah

Gore Committee Report on
Committee, 2000 and Mooshahary Committee, 2005 – Merit based,
Police Training, 1971-73
not seniority-based promotions, Officers who repeatedly fail to be
(Chapter III, Para 4)
compulsorily retired.]
[Soli Sorabjee Committee, 2005-06 added provision that Promotion
must be based on merit and a performance evaluation.]
[Model Police Act, 2006 has also specified seniority as criteria for
promotions]

Soli Sorabjee Committee,

All meritorious officers should have the opportunity to be promoted
2005-06
at least three times during their tenure.
Mooshahary Committee, 2005

Department-Related
Improve the promotional avenues of the constables through regular
Parliamentary Standing
departmental exams and incentive-linked promotion schemes
Committee on Home Affairs,
237th Report on Police -

33
Training, Modernisation and
Reforms, 2022
(Para 4.11.5)

6. Separation of Law & Order and Investigating function of Police – Separate Investigating Agency

There should be constituted in each province a Criminal Investigation

Indian Police Commission, Department for the purpose of collating and distributing information
1902-03 regarding organized crime, and to assist in the investigation of crimes
(Recommendation No. 35, Para 166) when they are of such a special character as to render this assistance
necessary.

Madhya Pradesh Police

Reorganisation Committee,
1951-52 The investigating staff and the law and order staff should not be
(Para 46) separated as integrity and authority of the officer-in-charge as defined
Bihar Police Commission in the Code of Criminal Procedure has to be preserved.
Report, 1961
(Page 400, Point 16)

A separate investigating agency to perform the following functions

directly under supervision of designated Superintendent of Police –
a) Responsible for helping the courts in the conduct of cases and
speedy trial by ensuring timely attendance of witnesses,
Law Commission of India,
production of accused and proper coordination with
154th Report, 1996
prosecuting agency.

[Ribeiro Committee, Second Report, 1998-1999 – Has emphasised on

urgent implementation of LCI’s recommendation.]
a) A Crime Investigation Agency should be constituted in each
West Bengal Police state, headed by a Chief of Investigation under the
Commission, 1960-61 administrative control of a Board of Investigation, to be

34
 headed by a retired/ sitting judge of the High Court.
Gore Committee Report b) The Chairman and Members of the Board of Investigation
onPolice Training, 1971-73 should be appointed by a high-powered collegium.
(Chapter XV, Para 8) c) The Chief of Investigation should be appointed by the State
Ribeiro Committee, First Government on the recommendation of the Board of
report, 1998-1999 Investigation, with a minimum tenure of 3 years. The State
Padmanabhaiah Committee, Government should have power to issue policy directions and
2000 guidelines to the Board of Investigation.
(CHRI – Police Reform Debates in
d) An Independent Inspectorate of Police may be established
India – Page 29, Point 6)
under the supervision of the Police Performance and
Malimath Committee, 2003
Accountability Commission to carry out performance audit of
(Page 272, Point 15)
police stations and other police offices through inspections
Mooshahary Committee, 2005
and review of departmental inspections. It should render
2nd ARC, Fifth Report, 2005
professional advice for improvement of standards in policing
Soli Sorabjee Committee,
and also present an annual report to the Police Performance
2005-06
and Accountability Commission.

Supreme Court Directives, Separation of functions may begin in towns and urban areas that have
2006-07 a population of ten lakhs or more.
Every city with a population of 5 lakh and above and in the smaller
NPC, Sixth Report, 1977-81 cities there should be a City Special Branch for collection of
intelligence relating to law and order.
Department-Related
Parliamentary Standing To address the shortage of staff in creating separate wings for
Committee on Home Affairs, investigation and law & order, the Committee recommends that the
237th Report on Police - personnel of the rank of ASIs & head constables can be utilized for
Training, Modernisation and investigation of minor offenses of simple nature after adequate
Reforms, 2022 training.
(Para 4.6.10)

35
III – DIVERSITY

This theme aims to address recommendations for improvement in the police’s diversity profile within its
ranks. While several committees proposed appropriate steps for ensuring that crimes against all sections
of society are appropriately addressed and for the inclusion of women in the police, very few committees
put forth recommendations for appropriate representation of SC/STs and OBCs in the police. Further, the
suggestion to ensure more female representation in the Indian Police System has been a recurring feature
in committee reports since the 1970s but are still not nearly close to the recommended strength.

1. Women in Police

Madhya Pradesh Police Women police should be retained for a further period of ten years. For
Reorganisation Committee proper supervision one post of Woman Head Constable should be
(Para 60) created.

Women should handle investigational work in much greater measure

than at present. They should be entrusted with investigation of cases
especially relating to women and children and employed in intelligence
work connected with said crimes. Women police should become an
integral part of the police organisation, with a special role in juvenile
crime squads to be set up in urban areas.
Women recruits, in addition to being trained like men should be put
NPC, Fifth Report, 1977-
through special courses in schools of social work so as to be able to
81
perform their special role in relation to women and children. Intensive
training should be imparted to them in the matter of enforcement of
special Act relating to children and vice and also in the technique of
search of women and their belongings.
In order to have a greater involvement of women police in police
administration as well as to provide equal opportunities to them, they
should be recruited in vacancies in general duty posts after careful

36
 estimation of requirements of women police in the force on the basis of
analysis of factors such as population, incidence of crime by women and
Juveniles etc. Women police should not constitute a separate branch of
the police with recruitment and promotion confined to women in that
branch only. Women police is considered essential for cities, the urban
police stations and thickly populated areas.

Mooshahary Committee, Merger of Women Police with regular Police and increase in number of
2005 women in civil police.

2nd ARC, Fifth Report,

2005

Department-Related
Parliamentary Standing The representation of women in police at all levels should be increased
Committee on Home through affirmative action so that they constitute about 33% of the
Affairs, 237th Report on police.
Police - Training,
Modernisation and
Reforms, 2022
(Para 3.24.7)

As current strength of women in police in the country is only 4.4% of

Kamal Kumar’s Report,
total police strength, it is recommended that against the requirement of
2014
3,37,500 of additional strength in police stations for introducing shift
(Page 128, Point-vii)
functioning, all recruitments should be done from among women only.
The appointment of women in police may be done by creating additional
Department-Related posts rather than converting the vacant posts of male constables. It will
Parliamentary Standing also help in improving the police-population ratio in the country.Besides
Committee on Home increasing the percentage of women in police, the MHA may also advise
th
Affairs, 237 Report on the States/UTs to give them important challenging duties central to the

37
Police - Training, police.
Modernisation and
Reforms, 2022
(Para 3.24.7)

2. SC/ST/OBCs in Police

There is no dearth of candidates with minimum educational and physical

qualifications available from among the Scheduled Castes, Scheduled
NPC, Fourth Report, 1977-
Tribes and backward classes. No relaxation, therefore, need be made in
81
the prescribed educational qualifications and physical standards for
recruiting candidates from these reserved classes.
Affirmative action should be taken to motivate persons from different
sections of society to join the police service. Recruitment campaigns
should be organized to facilitate this process.
2nd ARC, Fifth Report, [Soli Sorabjee Committee, 2005-06]
2005 As far as possible the deployment of police personnel in police stations
with significant proportion of Scheduled Castes and Scheduled Tribes
population should be in proportion to the population of such
communities within the local jurisdiction of such police station.

38
IV – INFRASTRUCTURE

1. Population per police station

In towns having population over 10000, ASI should be provided so there is a

SI or an ASI for every 100 IPC cases and a minimum of one extra ASI for
supervising watch and ward staff and for providing assistance to the Station
Officer.
Madhya Pradesh Police
Town police stations having a population of over 10000 which include 40
Reorganisation
villages should be given one extra ASI for touring the villages and
Committee
investigating simple offences.
(Para 47)
Towns with a population of over 5000 and a police station should have a
minimum staff of one SI, three head constables and ten constables and towns
having population of over 10000 should have a minimum of one SI, one
ASI, three head constables and 14 constables.

Bihar State Police

There should be one constable for every 500 of population and one head
Commission, 1961
constable for every 10 constables.
(Page 401, Point 28)

NPC, Seventh Report, In urban areas, population density should be the main consideration when
creating jurisdiction.
1977-81
(CHRI – Police Reform A police station should not service more than 60,000 people. If the station
Debates in India – Page 18, registers more than 700 crimes annually, another police station should be set
1.2, 1.3) up.
All cities with population above one million should have Metropolitan
2nd ARC, Fifth Report, Police Authorities. This Authority should have powers to plan and oversee
2005 community policing, improving police-citizen interface, suggesting ways to
improve quality of policing, approve annual police plans and review the

39
 working of such plans.

2. Area per police station

West Bengal Police As the number of police stations is fairly close to that of development
Commission Report, blocks, the areas of the police stations should be delimited to be coterminous
1960-61 with development blocks.

NPC, Seventh Report,

1977-81 A police station in a rural area should not have territorial jurisdiction of more
(CHRI – Police Reform
than 150 kilometres.
Debates in India – Page 18,
1.1)

3. Training

Indian Police A provincial training school should be established in each of the larger
Commission, 1902-03 provinces for the training of police officers of and above the rank of Sub-
(Recommendation No. 52) Inspector.

Malimath Committee,
2003
(Page 274, Point 18) The state government must periodically create and upgrade the infrastructure
and capabilities of its training institutions.
Soli Sorabjee
Committee, 2005-06

40
Department-Related
Parliamentary Standing
The Committee recommends that the MHA may take up with States/UTs to
Committee on Home
scale up the training capacity of all training institutions in the country to
Affairs, 237th Report on
enhance their infrastructure with virtual classrooms, cyber labs and also to
Police - Training,
develop a few training centres as 'Centre of Excellence’ for certain specific
Modernisation and
subjects relating to the police system.
Reforms, 2022
(Para 2.3.6)

4. Technology

Computerisation of Finger Prints at the State level and National level should
NPC, Second Report,
be taken up on hand and completed within a reasonable time frame, say five
1977-81
years.
NPC, Third Report, A fully equipped Radio Workshop may be set up in the headquarters of each
1977-81 State and supplemented by regional workshops wherever called for.
Provision of adequate transport, strengthening of forensic science laboratory
facilities and scientific aids to the detection of crime, the provision of
NPC, Fourth Report,
mechanical aids like typewriter and tape recorders at the police station level,
1977-81
improved supply of printed forms and standardised stationery for
documentation and scriptory work.
Infrastructural facilities available to the Investigating Officers specially in
regard to accommodation, mobility, connectivity, use of technology, training
Malimath Committee,
facilities etc. are grossly inadequate and they need to be improved on top
2003
priority.
(Page 273, Point 17-xvi;
Interrogation Centres should be set up at the District. Hqrs. in each District.,
Page 274, Point 18)
where they do not exist, and strengthened where they exist, with facilities
like tape recording and or videography and photography etc.
Mooshahary All police stations need to be provided with computers and linked in a
Committee, 2005 national network with facilities for transmission of data, fax and video

41
 clippings. POLNET (satellite) should be made operational, MHA should
coordinate effort towards computerization.
Human intelligence should be combined with information derived from
diverse sources with the focus on increased use of technology. Adequate
powers should be delegated to intelligence agencies to procure/use latest
technology.
[Reiterated in Kamal Kumar’s Report, 2014] (Page 127, Point-iii)
Police stations should be equipped with CCTV cameras in order to prevent
malpractice, ensure transparency and make the police more citizen-friendly.
This could be implemented in all police stations within a time frame of five
years.
2nd ARC, Fifth Report, [In line with the same, theDepartment-Related Parliamentary Standing
2005 Committee on Home Affairs (2022) has recommended – The Ministry may
take up with the States/UTs for installing at least one or two IP cameras at a
strategic location in all police stations. The Committee also recommends
that States/UTs may conduct a periodic audit of all the CCTVs installed in
police stations and replace/upgrade them wherever required.]
(Para 3.18.5)

Registration of FIRs should be made totally citizen friendly. Technology

should be used to improve the accessibility of police stations to the public.
Establishing call centers and public kiosks are possible options in this
regard.

Department-Related The MHA may encourage and incentivize States to leverage technologies
like artificial intelligence, big data, etc., for policing. The Committee further
Parliamentary Standing
Committee on Home recommends that BPR&D may be tasked to make a compendium of the
latest technologies used by the various State police forces and share among
Affairs, 237th Report on
Police - Training, them.

Modernisation and Sensitive border states/union territories like Jammu & Kashmir have a

Reforms, 2022 sizeable number of police stations which do not have telephones and
(Para 3.17.4, 3.16.7, 3.16.8, wireless sets. The Committee, therefore, recommends that the MHA may
3.21.11, 3.22.6, 3.20.4, advise such States to immediately equip their police stations with adequate
3.19.7) vehicles and communication devices.

42
The MHA may initiate setting up adequate manufacturing units of non-lethal
weaponry in the country so as to address the issue of shortages in this regard.
Upgrade the existing cyber cells by setting up dark web monitoring cell and
social media monitoring cells to tackle different types of cyber-crimes.
The MHA may take up with concerned Ministries/ Organisations to create a
central pool of anti-drone technology at the earliest and give its access to all
States/UTs to deal with the menace of illicit use of drones. For this purpose,
the participation of the private sector may be explored.
The committee recommends that the MHA should coordinate with State
Police to initiate the facility of e-FIR in the remaining States/UTs(currently
only in Odisha, Rajasthan and Uttar Pradesh). The committee also
recommends that the MHA may work on modalities and advise states/UTs
for extending the facility of e-FIR for other non-heinous crimes as well.
The Committee recommends that the MHA may advise States to digitize the
issuance of services like passport verification reports, arms license
verification reports and character certificates so that multiple visits of the
citizens to the police stations and diversion of police personnel for such
routine administrative work is avoided.

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V – ACCOUNTABILITY

Despite not being directly linked to capacity augmentations, accountability as a theme has been included
in this compendium to reiterate on the importance of a permanent performance evaluation system in
place for recognition of deficits in the Indian Police System. A similar system of evaluation has been
envisaged by most committees, that is,by setting up a committee on the following lines.

1. National/State Security Commission

NPC, Eighth Report, 1977-81

There should be continuous monitoring of the performance of

Malimath Committee, 2003
each police force. The State Security Commission should have
(Page 272, Point 16)
an independent cell to evaluate police performance. The State
Security Commission will prepare a report on the performance
Mooshahary Committee, 2005
of the police in its state for the state legislature. This report will
be informed by the Chief of Police’s annual administration
Soli Sorabjee Committee, 2005-06
report and the Central Police Committee’s assessment report.

Supreme Court Directives 2006-07

2. State Police Accountability Commission

Ribeiro Committee, First report, Perform functions like framing broad policy guidelines, prepare
1998-1999 panels for the office of Director General of Police against
prescribed criteria, identify performance indicators to evaluate
2nd ARC, Fifth Report, 2005 functioning of police service and review and evaluate
organizational performance of police service.
Soli Sorabjee Committee, 2005-06

44
 The method of appointment of the Chairman and Members of
2nd ARC, Fifth Report, 2005 the State Police Performance and Accountability Commission
should be as stipulated in the Draft Model Police Act.

45
VI – POLICE AND PUBLIC INTERFACE

In line with the theme of accountability, police-public interface is the alternate avenue for ensuring a
check on police function as well as creation of a channel for a constant flow of feedback on capacity
augmentation of the police system.

1. Police Complaints Authority

Ribeiro Committee, First report,

1998-1999

A State/District Police Complaints Authority should be

Padmanabhaiah Committee, 2000
constituted to enquire into allegations against the police within
(CHRI – Police Reform Debates in India –
the respective jurisdiction.
Page 30, 8.1)
[NHRC has also endorsed this recommendation for constitution
of a ‘District Police Complaints Authority’ as a non-statutory
Mooshahary Committee, 2005
body]

2nd ARC, Fifth Report, 2005

Supreme Court Directives 2006-07

The Police Complaints Authority should have the powers to

enquire into misconduct or abuse of power by police
authorities. It should exercise all the powers of a civilaudit of
police stations and other police offices through inspections and
2nd ARC, Fifth Report, 2005
review of departmental inspections.
The Complaint Authorities should be given the powers of a
civil court. It should be mandated that all complaints should be
disposed of within a month.
Department-Related Parliamentary The MHA along with the Ministry of Law & Justice may take
Standing Committee on Home up with States to ensure that the Police Complaint Authority

46
Affairs, 237th Report on Police - should comprise of retired High Court Judges, retired senior
Training, Modernisation and civil servant/ police officers, eminent jurists along with the
Reforms, 2022 representation of women. The Committee also recommends
(Para 4.13.8) that BPR&D may conduct a study to assess the effectiveness of
the Independent Police Complaint Authority in States to check
whether the complaints against police personnel have gone up
or reduced. The study may also include the types of complaints
against police personnel and action taken thereon.The
Committee also recommends that the MHA may advise States
that the internal grievance redressal cell of police should work
in a time-bound manner so that the grievances of aggrieved
police personnel are addressed in time.

2. Feedback Mechanism

Superintendent of Police should form Citizen’s Committees at

the district, sub-division and police station levels consisting of
Mooshahary Committee, 2005
representatives of various professional groups. Monitoring
process in State Police Headquarters.

Citizens should be involved in evaluating the quality of service

2nd ARC, Fifth Report, 2005
at police stations and other police offices.

Regular feedback may also be taken from the complainants on

the service of ERSS(Emergency Response Support System).
Department-Related Parliamentary Efforts should be made to reduce the response time to extend
Standing Committee on Home help to the person in distress.
Affairs, 237th Report on Police - The Committee takes note of the 'Mo Sarkar' initiative of
Training, Modernisation and Odisha, under which, every day, feedback is being sought from
Reforms, 2022 selected complainants. The Committee recommends that the
(Para 3.27.3, 3.27.4) MHA may advise the States to develop a feedback mechanism
like that of Odisha to assess and improve the performance of
the police.

47
3. Collaboration with Citizens

For removing such apprehensions and difficulties, a toll free

phone number for public to convey crime intelligence/
information to the police may be adopted. A toll tree telephone
number which is 1090 is given for the entire State of Kerala.
For the purpose of uniformity all over the country, all the States
could adopt the No. 1090.
The Station House Officers be directed to hold regular monthly
NHRC Report, Measures to Improve meetings in various towns/villages in their jurisdictions twice a
Police-Public Relationship, 1999 month. It will help the public to meet the Police Officers and
voice their grievances, if any. This will alsoenable the Police to
sensitise the public on various issues and seek their cooperation
in prevention of crime and maintenance of law and order. This
will make the SHO obligatory to visit town/village in his
jurisdiction alongwith his staff after giving advance publicity
through Panchayat and press. The senior officers also could be
asked to attend such meetings wherever possible.
The MHA may advise State police forces and border-guarding
Department-Related Parliamentary CAPFs to train and liaison with people living in the border
Standing Committee on Home areas for gathering intelligence inputs so as to check drug
th
Affairs, 237 Report on Police - trafficking, infiltration and illicit use of drones, etc.
Training, Modernisation and
Reforms, 2022 MHA may create a forum for the exchange of best practices of
(Para 2.14.12, 4.17.8) police-people interaction among the States.

48
VII – FORENSICS

Forensics has been included as a separate theme keeping in mind the elemental link between forensics
and the police system. Forensics has also been extensively addressed across reports due to the dearth of
forensic capabilities in terms of technology and education in the country.

1. Forensic Science Service

A 'Central Forensic Science Service' may be set up with a cadre

structure suitably designed to provide the personnel for the science
wing in the staff of the Bureau of Police Research and Development,
Institute of Criminology and Forensic Science, National Police
Academy, Central Detective Training Schools, Units of the
NPC, Third Report, 1977-81 Government Examiner of Questioned Documents, Central Finger Print
Bureau and all Central Forensic Science Laboratories. Modalities for
constituting this service and determining its structure and spelling out
different methods of recruitment and other service conditions may be
gone into by a special committee which may be set up by the Ministry
of Home Affairs.
A cadre of Scene of Crime Officers should be created for preservation
of scene of crime and collection of physical evidence there-from.
Malimath Committee, 2003 Forensic Medico Legal Services should be strengthened at the District.
(Page 274, Point 22-I, Point 23) and the State /Central level, with adequate training facilities at the
State/Central level for the experts doing medico legal work. The State
Govts. must prescribe time frame for submission of medico legal
reports.
There is need to set up separate National and State Forensic Science
Organisations as state-of-the-art scientific organizations. At the state
2nd ARC, Fifth Report, 2005
level these organisations should function under the supervision of the
Board of Investigation.

49
2. Upgradation of Forensic Technology

Immediate steps should be taken to strengthen the staff of the Forensic

West Bengal Police Science Laboratory, se- cure more commodious accommodation and
Commission, 1960-61 decline at least temporarily receiving exhibits from other States. The
Chemical Examiner should take over some of its work.

Bihar State Police

Two fully equipped mobile laboratories should be provided for the use
Commission, 1961
of experts so that they can visit scenes of crime promptly.
(Page 405, Point 17)

Two more Central Forensic Science Laboratories may be established,

NPC, Third Report, 1977-81
one in the western region and another in the north-eastern region.

Padmanabhaiah Committee,
2000
Every sub- division should have a mobile forensic science laboratory.
(CHRI – Police Reform Debates in
India – Page 29, 6.4)

Forensic Science and modern technology must be used in

investigations right from the commencement of investigations.
The network of CFSLs and FSLs in the country needs to be
strengthened for providing optimal forensic cover to the investigating
officers. Mini FSLs and Mobile Forensic Units should be set up at the
District./Range level. The Finger Print Bureaux and the FSLs should
Malimath Committee, 2003
be equipped with well-trained manpower in adequate numbers and
(Page 274, Point 22-i, Point 22-ii)
adequate financial resources.

[The Department-Related Parliamentary Standing Committee on

Home Affairs (2022) recommended – Efforts should be made to
establish at least one forensic lab at the regional/divisional level]
(Para 4.6.12)

50
 There is a need to expand the forensic facilities and upgrade them
Mooshahary Committee, technologically. Every district or a group of districts having 30 to 40
2005 lakhs population should have a forensic laboratory. This should be
achieved over a period of five years. All the testing laboratories should
2nd ARC, Fifth Report, 2005 be accredited to a National Accreditation Body for maintaining quality
standards.

3. Demarcation of Funds for Forensics

The annual grant given to the Indian Academy of Forensic Sciences by

the Ministry of Home Affairs may be increased substantially to meet
NPC, Third Report, 1977-81
its financial needs and enable its journal to be issued quarterly instead
of half yearly.
Government of India should earmark funds for purpose of forensics for
2nd ARC, Fifth Report, 2005
assisting the states under the police modernization scheme.

4. Forensics Education and Training

The Institute of Criminology and Forensic Science should develop new

courses in techniques of management personnel management and
leadership, application of computer technology to police work and
social defence for I.P.S. officers, organise a series of symposia and
Gore Committee Report on
seminars on various aspects of police work with a view to maintaining
Police Training, 1971-73
a constant dialogue between police officers and various other sections
(Chapter XII, Para 39)
of public opinion and start a system of fellowships to encourage
interested police officers to undertake research work on a whole-time
basis. The Institute might be affiliated to a university for the last-
named purpose.
The syllabus of MSc Forensic Science should be continuously
2nd ARC, Fifth Report, 2005 upgraded in line with international trends.

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VIII – INTERFACE BETWEEN FOUR CORE PILLARS OF JUSTICE

The criminal justice system in India rests on four core pillars – Police, Judiciary, Legal Aid and Prisons.
The recommendations included under this theme address the interactions between these four core pillars
of justice, mostly concerned with interface between the legal aid system and the police.
Facilities for effective interaction between the police and the prosecuting
agency at the stage of court trial for proper marshalling and presentation
of all the evidence uncovered during investigation should be provided
NPC, Second Report 1977-
without in any manner affecting the professional independence of the
81
prosecuting agency. The need of such interaction should also be suitably
recognised in law instead of being left as a mere administrative
arrangement.
A mechanism for coordination amongst investigators, forensic experts
and prosecutors at the State and Dist. level for effective investigations

Malimath Committee, 2003 and prosecutions should be devised.

(Page 274, Point 24; Preparation of Police Briefs in all grave crimes must be made mandatory.
Page 275, Point 25) A certain number of experienced public prosecutors must be set apart in
each District. to act as Legal Advisors to the District. police for this
purpose.
Necessary amendments should be affected in the CrPC and other laws to
raise the level and scope of forensic science evidence and recognize its
2nd ARC, Fifth Report,
strength for criminal justice delivery.
2005
There should be common training programmes for police, public
prosecutors and magistrates.
Department-Related
Parliamentary Standing The Committee recommends that the MHA may advise States/UTs to
Committee on Home integrate CCTNS data with that of courts, prisons, prosecution, forensics
Affairs, 237th Report on and fingerprints as part of the Inter-operable Criminal Justice System
Police - Training, (ICJS). This real-time integration will help in reducing duplication of
Modernisation and work and errors, speed up the trial of cases significantly and increase the
Reforms, 2022 efficiency of the police.
(Para 3.19.6)

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 Analysis and Comments

The most glaringly obvious observation while compiling this report was the repetition of
recommendations across decades of committee reports. While the specific technicalities of
recommendations may have changed across the years, the theme and essence of suggestions has
remained the same even after a century of reports by various police commissions.

The lacunae in the capacity of the Indian Police System continues to persistently limit itself to the
following major deficits –
1. The expenditure incurred by the centre and states on enhancing police capacity in the country.
2. Covering up the drastic gap between the population of the country and the disproportionate
strength of the police personnel.
3. An up-to-date training module for the police personnel which can appropriately address the
demands of the system.
4. Inclusion of women and all sections of society in the system on an equitable basis.
5. Appropriate infrastructure and technological upgradation of the police system and forensic
department.
6. The absence of an effective system of accountability of the police in India.

The common theme across every report is limited to these six factors and the same has reflected in the
directives issued by the Supreme Court of India in the Prakash Singh vs Union of India case in 2006-07.

The purpose of this report is to patently outline this repetition of recommendations and the need to
reform the police system so as to effectively address these deficits.

We hope that the availability of all recommendations on a single platform, arranged thematically and
chronologically will help drive forward the need for amelioration of police capacity on the themes
outline above on a priority basis.

53
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 About India Justice Report
The India Justice Report (IJR) remains the only comprehensive quantitative index using
government’s own statistics to rank the capacity of the formal justice system operating in various
states. This IJR is a collaborative effort undertaken in partnership with DAKSH, Commonwealth
Human Rights Initiative, Common Cause, Centre for Social Justice, Vidhi Centre for Legal Policy
and TISS-Prayas. It continues to track improvements and persisting deficits in each state’s structural
and financial capacity to deliver justice based on quantitative measurements of budgets, human
resources, infrastructure, workload, and diversity across police, judiciary, prisons and legal aid for all
36 states and UTs.

Visit: indiajusticereport.org for the main report, data explorer and more.
Email ID: [email protected]
Phone No.: 9717676026 / 7837144403

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