Chapter 7:

Crime Against Women

Introduction

Crime against women includes any act of gender-based violence that results
in, or is likely to result in, physical, sexual or psychological harm or suffering
to women, including threats of such acts, coercion or arbitrary deprivation of
liberty, whether occurring in public or private life. The Constitution of India
recognized equality rights of women in Articles 14, 15 and 16. Article 15 (3)
allowed the State for making special provisions for women and children to
prohibit discrimination on grounds of religion, race, caste, sex or place of
birth. Despite the constitutional provisions and different gender specific laws
in place, the problem of violence and crime against women has acquired
phenomenal proportion.

The incidence of crime against women in India have been increasing

continuously with 2.13 lakh reported cases in 2010 which rose to 3.37 lakh
reported cases in 2014 registering a growth of 58 per cent in last four years.
According to the report of National Crime Records Bureau (NCRB) for the
year 2014, Uttar Pradesh earned the dubious distinction of leading the list of
States where crime against women in 2014 was highest, accounting for 11.4
per cent of the total number of incidence of crime against women in the
country.

Violence and crime against women is a social problem which is linked to

gender inequality and violates the right of women to live without fear with
freedom and dignity. The Committee on Crime Statistics setup by the Ministry
of Statistics and Programme Implementation, GoI in their report submitted in
June 2011 stated that it has been recognised that a sizable portion of criminal
events are never reported to the police and are therefore not included in police
or any other statistics. Further, the committee had concluded that NCRB
captures even less than 0.16 per cent of the total crime against women. The
National Family Health Survey-3 (latest) which collected data on ‘Help
seeking by women’ who were victims of violence, brought out that only 2.1
per cent of the women who experience physical and sexual violence sought
assistance from institutional sources such as police. The above findings of the
NFHS would entail that the law enforcement authorities in the State should not
be complacent about the relatively lower registered crime rate per one lakh of
women population.

Audit analysed various crime data in respect of the State and financial and
other support schemes implemented by the State Government for providing
help, compensation, protection and rehabilitation of victims, and our findings
are discussed below:

67
Audit findings
7.1 Incidence of crimes against women

Information provided by Home (Police) Department, GoUP revealed that the

incidence of crime against women in the State have been rising consistently
during last five years as shown in the table below:
Table 7.1: Crimes against women in the State during 2010-15
Sl. Detail of Crime/IPC 2010-11 2011-12 2012-13 2013-14 2014-15
No.
1 Rape (Sec. 376 IPC) 1,582 1,962 2,058 2,940 2,945
Homicide for dowry, dowry deaths or their 2,817 2,865 2,869 3,116 3,119
2
attempts (Sec. 302/304-B IPC)
Torture-both mental and physical 7,302 6,540 7,155 8,902 9,476
3
(Sec. 498-A IPC)
Assault on women with intent to outrage 2,989 3,430 4,106 7,092 7,972
4
her modesty (Sec. 354 IPC)
Insult the modesty of women 1 2 14 33 25
5
(Sec. 509 IPC)
Importation of girls from foreign country 1 2 1 0 1
6
(under 21 years of age) (Sec. 366-B IPC)
Kidnapping and abduction of girls/women 5,145 6,678 7,057 8,510 8,964
7
for specified purposes (Sec. 363-373 IPC)
8 Dowry Prohibition Act, 1961 940 887 1,189 1,092 1,100
Indecent Representation of Women 154 197 173 86 49
9
(Prohibition) Act, 1986
The Immoral Traffic (Prevention) Act, 3 10 7 7 11
10
1956
The Commission of Sati (Prevention) Act, 0 0 0 0 0
11
1987
12 The Child Marriage Restraint Act, 1976 0 0 1 1 0
The Medical Termination of Pregnancy 0 0 0 0 0
13
Act, 1971
PC-PNDT (Prohibition of sex selection) 0 0 4 0 0
14
Act, 1994
15 The Equal Remuneration Act, 1976 0 0 0 0 0
16 Foeticide (Sec. 315-316 IPC) 4 4 1 2 1
Procuration of minor Girl 13 8 17 29 31
17
(Sec. 366-A IPC)
Buying of girls for prostitution 0 0 0 0 0
18
(Sec. 373 IPC)
Selling of Girls for prostitution 0 0 0 0 0
19
(Sec. 372 IPC)
Total 20,951 22,585 24,652 31,810 33,694
(Source: Information furnished by Home (Police) Department)

It would be seen from Table 7.1 that there has been 61 per cent increase in
incidence of crime against women between 2010-11 and 2014-15. The
increase in crime has been very steep during 2013-14 when the number of
such incidence shot up from 24,652 in 2012-13 to 31,810 in 2013-14. The
incidence of crime against women has not declined in 2014-15.

68
The major crimes against women were rape; homicide for dowry, dowry
deaths or their attempts; torture- both mental and physical; assault on women
with intent to outrage her modesty; kidnapping and abduction; and cases under
Dowry Prohibition Act where maximum number of cases were reported and
there has been significant increase during 2010-15 in the State. The status of
crimes against women under these categories is discussed in the subsequent
paragraph.

7.2 Major crimes against women

Rape, homicide for dowry, dowry deaths or their attempts, torture- both
mental and physical, assault on women with intent to outrage her modesty,
kidnapping and abduction and cases under Dowry Prohibition Act are the
major crimes contributing more than 99 per cent of the incidence of crimes
against women in the State. The category-wise details of crime against women
and their trends during last five years are given in the table below:
Table 7.2: Major crimes against women during last five years.
Sl. Year Rape Homicide Torture- Assault on Kidnapping Dowry Others
No. for dowry, both women & Prohibition
dowry mental with intent Abduction Act
deaths or and to outrage
their physical her
attempts modesty
1. 2010-11 1,582 2,817 7,302 2,989 5,145 940 176
2. 2011-12 1,962 2,865 6,540 3,430 6,678 887 223
3. 2012-13 2,058 2,869 7,155 4,106 7,057 1,189 218
4. 2013-14 2,940 3,116 8,902 7,092 8,510 1,092 158
5. 2014-15 2,945 3,119 9,476 7,972 8,964 1,100 118
Total 11,487 14,786 39,375 25,589 36,354 5,208 893
(Source: Information furnished by Home (Police) Department)

Chart 7.1: Crime against women percentage distribution during 2014-

15
0.67
3.9 8.74
11.06 Rape
27.19
Homicide for dowry, dowry
deaths or their attempts
Torture - both mental and
physical
Assault on women with intent
to outrage her modesty
Kidnapping & Abduction

Dowry Prohibition Act

Others
19.14 29.45

(Source: Information furnished by Home (Police) Department)

Age-wise analysis of major crimes against women in the State is given in the
Appendix 7.1 to 7.3.

69
We in audit observed that:
● Legally, rape has been defined in different sub-sections of section 375
and punishments are provisioned in sections 376 (1) and (2), 376 A, 376 B,
376 C, 376 D and 376 E of the Indian Penal Code (IPC). The number of rape
cases increased (43 per cent) suddenly during 2013-14 and 2014-15 over the
previous year. The most alarming fact is that the largest number (59 per cent)
of victims of rape were minor girls (Appendix 7.1). Increase in the number of
rape cases during last two years has been very significant (44 per cent in age
group upto 10 years, 57 per cent in the age group 11 to 18 years, 27 per cent in
the age group above 18 years). Districts with highest number of reported cases
of rape during 2010-15 were Aligarh (392), Moradabad (377), Allahabad
(348), Meerut (346) and Agra and Lucknow (328 each).

● There was 11 per cent increase in cases of homicide for dowry, dowry
deaths or their attempts during last five years. Also, the number of reported
cases under Dowry Prohibition Act, 1961 increased from 940 in 2010-11 to
1,100 in 2014-15 (17 per cent).

● The cases of Torture-both mental and physical increased from 7,302

in 2010-11 to 9,476 in 2014-15. There has been significant increase of
24 per cent in 2013-14 over the previous year.

● The cases of assault on women with intent to outrage her modesty have
increased from 2989 in 2010-11 to 7972 in 2014-15. Maximum number
(55 per cent) of victims for the said crime were minor girls (Appendix 7.2). In
the year 2013-14 there was an increase of 73 per cent in the cases of assault on
women. Districts with highest number of reported cases of assault on women
with intent to outrage her modesty during 2010-15 were Lucknow (1205),
Meerut (1125), Aligarh (1067), Agra (979) and Allahabad (767) in the State.

● The cases of kidnappings/abductions also increased consistently

during 2010-15 with significant increase in 2013-14 and 2014-15. In this
category of crime also, the maximum number (71 per cent) of victims were
minor girls. For details see Appendix 7.3. Top five districts in the State with
reported number of cases of kidnappings/abductions during 2010-15 were
Aligarh (1524), Kanpur Nagar (1511), Agra (1502), Lucknow (1274) and
Meerut (1109).

During discussion in exit conference (December 2015) the Government

assured to take required action against the fact while taking its cognizance.

70
7.3 Human trafficking and missing persons

The National Human Rights Commission, action research 2004, brought out
the linkages of human
Chart 7.2: Missing girls/women trafficking and missing
persons. The missing
4000
children could be victims
3500 3143 3379 of rape, sexual abuse, child
3000 pornography etc. The
2771
2500
3000 Ministry of Home Affairs
(MHA) issued an advisory
in numbers

2285 1929
2000 1569 1615 1650
on missing children to
1183
1500 expedite the investigation
1000 1277 1379 1307 and to ensure prosecution
500 978 975 of offenders.
124 154 149 143
146
0
2010-11 2011-12 2012-13 The State Legal Services
2013-14 2014-15
Age group upto 10 years Age group 11-18 years Authorities were directed
Age group above 18 years Total to earmark responsible and
competent NGOs as nodal
(Source: Home (Police) Department)
NGOs in the state for
assisting the law
enforcement agencies and work for a network of NGOs for the purpose of
tracing and reintegrating missing children with their family.

Information provided by Home (Police) Department revealed increasing trend

in missing girls/women during 2010-15 as depicted in the chart 7.2.

It was evident that there was an overall increase of 21 per cent in the number
of missing girls/women in the State during 2010-15 (Appendix 7.4).
Department did not provide details of traced girls and action taken against the
culprits, though called for (April 2015) by Audit. Moreover, the department
did not furnish their reply regarding help of civil society (NGOs, concerned
citizens etc.) in tracing and reintegrating the missing children with their
families.

Thus, there has been increase in incidence of crime against women between
2010-11 and 2014-15 in the State with significant increase in major crimes
such as Rape, homicide for dowry, dowry deaths or their attempts, torture-
both mental and physical, assault on women with intent to outrage her
modesty, kidnapping and abduction and cases under Dowry Prohibition Act.
In order to effectively control crime especially against women and to perform
various law and order related functions viz. prevention and detection of crime,
security and safety of public etc., adequacy of police manpower including
women police becomes essential. The status of availability of police
manpower including women police personnel in the State has been discussed
in the succeeding paragraphs.

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7.4 Police manpower

To protect 19.98 crore population of the State (census 2011), 162783 police
personnel were deployed in the State. This implied that only 81 police
personnel per one lakh population were available in the State to enforce law
and order and deal with all types of crime including crime against women. As
per the Lok Sabha unstarred question answered by the Hon’ble Minister of
Home Affairs, GoI on 22 July 2014, against the sanctioned strength of 178.48
police personnel per one lakh population in the State of Uttar Pradesh, actual
strength was only 81.01 police personnel per one lakh population. This
indicated huge shortage of police manpower in the State even against the
sanctioned strength. The deployment of police manpower in the State was
much below the national average of 136.42 police personnel per one lakh
population and the United Nations norm of 222 police personnel per one lakh
population.

A comparative position of sanctioned strength and actual manpower in the

State of Uttar Pradesh with other major States is given in the table below:

Table 7.3: Sanctioned strength and actual police manpower

in various States.
Sl. Name of the State Total police per one lakh of population
No. Sanctioned Actual
1. Uttar Pradesh 178.48 81.01
2. Assam 200.03 177.73
3. Bihar 88.10 68.81
4. Gujarat 188.15 113.16
5. Karnataka 150.98 117.41
6. Madhya Pradesh 122.19 104.92
7. Maharashtra 181.99 170.01
8. Punjab 282.24 220.62
9. Tamil Nadu 168.97 138.62
10. Uttarakhand 198.61 175.35
11. West Bengal 120.40 77.76
12. All India 181.47 136.42
(Source: Ministry of Home Affairs, GoI)

Since Uttar Pradesh tops the list of the States having highest number of violent
crimes accounting for 12.7 per cent of the total number of violent crimes in
the country and also has maximum incidence of crime against women,
shortage of about 55 per cent of the police manpower, if not immediately
addressed, may further worsen the crime scenario in the State. No effective
steps seem to have been taken to address the situation as is evident from
the increasing rate of crime against women as discussed in paragraph 7.1 and
7.2 above.

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Recommendation: Government may ensure adequate police manpower to
effectively control the increasing incidence of crime including crime against
women in the State.

7.4.1 Women police personnel

Though the population of women in
Chart 7.3: Police Personnel in Uttar
the State is 9.53 crore and Uttar Pradesh (in lakh)
Pradesh is amongst the few States 0.07
having highest incidence of crime
against women, the number of
women police personnel in the State
was only 7,404 constituting just 4.55
per cent of the total police force in 1.63
the State. Ministry of Home Affairs Male Female
(MHA), GoI had recommended
(September 2009) the States to (Source: State Crime Records Bureau)
ensure availability of women upto 33
per cent of police force. Small strength of women police personnel indicated
that the State Government has not seriously acted on the recommendations of
MHA in order to deal with the victims of crime in a more humane, sensitive,
reassuring and caring manner.

Recommendation: Given the large number of crimes against minor girls and
women, GoUP may consider implementing MHA recommendations regarding
employment of women police personnel.

7.5 Delay in filing FIRs

As per section 97 of UP Police Regulation, whenever information relating to

the commission of a cognizable offence was given (orally or in writing) to an
officer in-charge of a police station, the report was to be taken down
immediately in the Check Receipt Book without delay, even if it appeared
untrue. Scrutiny revealed that in at least 62 cases 1 of trafficking, rape and
kidnapping of girls, there was delay in FIRs, including six cases wherein FIRs
were lodged at the behest of higher police officers and in 11 cases FIRs were
filed at the directions of the court (Appendix 7.5).

7.6 Crime and Criminal Tracking Network and Systems

Crime and Criminal Tracking Network and Systems (CCTNS) Project was
envisaged by Ministry of Home Affairs, GoI to modernise police force for
enhancing outcomes in the areas of crime investigation and criminals’
detection, information gathering and its dissemination among various police
organisations and units across the country through creation of a nationwide
network under the National e-Governance Plan (NeGP). The State
Government in 2009 decided to implement the CCTNS project to modernise
1
Audit evidence provided by Guria (an NGO situated at Varanasi and working for welfare and empowerment of
women)

73
its police force. CCTNS Core Application Software (CAS) functionalities
included four basic modules for Registration, Investigation, Prosecution, and
Search and Reporting and a portal for providing Citizen interface. CCTNS
aims at creating a comprehensive and integrated system for enhancing the
efficiency and effectiveness of policing at all levels especially at the Police
Station level through creation of a nationwide networked infrastructure for
evolution of state-of-art tracking system.

The implementation of the project has, however, been considerably delayed in

the State. Except for registration of FIRs, other functionalities/ modules of
CAS are rarely being used by the police stations and higher offices though
made functional. Further, Citizen centric services envisaged to be made
available through Police portal and via SMS have not yet been made fully
functional. Detailed findings on the implementation of this project are
included in Chapter 2 of CAG’s Report No. 01 of 2016.

Due to delays in the implementation of CCTNS project, modernisation of

police infrastructure has been adversely affected and the outcomes in the areas
of crime investigation and criminals’ detection, information gathering and its
dissemination among various police organisations and units across the country
have been impacted.

Recommendation: GoUP may issue directions for effective use of all

functionalities of CAS such as investigation, prosecution, search and reporting
to enhance operational efficiency of the police department.

7.7 Compensation Schemes for victims of crimes

Financial assistance cannot compensate for the agony and mental stress a
woman suffers due to heinous crimes such as rape, acid attack etc.
Compensation schemes were formulated by GoI and GoUP from time to time
to assist the victims in overcoming the trauma and provide support to lead a
dignified and meaningful life. The implementation status of two such schemes
viz. ‘Financial Assistance and Support Services to the Victims of Rape: A
Scheme for Restorative Justice’ of GoI and ‘The Uttar Pradesh Victim
Compensation Scheme’ of GoUP is discussed in succeeding paragraphs.

7.7.1 Financial Assistance and Support Services to the Victims of Rape

Under the direction2 of the Hon’ble Supreme Court, a scheme for restorative
justice was formulated by GoI as ‘Financial Assistance and Support Services
to Victims of Rape: A Scheme for Restorative Justice’. Under the scheme,
Criminal Injuries Relief & Rehabilitation Boards at districts and state level
were to be set up. The Scheme envisages total cash assistance of ` 1.50 lakh as
well as restorative support services such as counselling, shelter, medical and
legal aid upto ` 0.50 lakh.

2
Writ petition (criminal) number 362/93 (Delhi Domestic Working Women’s Forum versus Union of India and others).

74
Scrutiny revealed that for implementation of the scheme in the State, an
amount of ` 15.03 crore3 was tentatively allocated by GoI for two years only
(2010-12) during 2010-15, with the condition that actual releases were to be
made on the basis of projected requirement and availability of overall funds.
Audit observed that this allocation was not utilized by the department though
3544 rape cases were reported in the State during 2010-12.

Recommendation: Financial assistance and support services should be

provided to the victims of rape promptly as per prescribed norms.

7.7.2 The Uttar Pradesh Victim Compensation Scheme

The Uttar Pradesh Victim Compensation Scheme, 2014 was introduced (April
2014) for the purpose of providing compensation to victims or their
dependents who have suffered loss or injury as a result of crime and require
rehabilitation. The State was to allocate separate budget every year for the
scheme to be operated by the Secretary, State Legal Services Authority
(SLSA). The District Legal Services Authority was to decide the quantum of
compensation4 to be awarded to the victim or dependents on the basis of loss
suffered by the victim.

Scrutiny revealed that an amount of ` two crore was sanctioned (March 2015)
by GoUP for the year 2014-15 but was placed at the disposal of Director
General of Police (DGP) and not transferred to SLSA as of June 2015. As a
result, no compensation could be paid under the Scheme to the victims and
their dependents during 2014-15. SLSA in January 2016 replied that the fund
allocation of ` two crore was received by them in October 2015 and a total
compensation of ` 3.49 lakh had since been paid to two victims. The
information provided by SLSA disclosed that out of the total 18 cases for
sanction of compensation, only two cases were awarded compensation. In
remaining 16 cases no compensation was awarded till December 2015 and the
delay in these cases ranged between four and 20 months, basically for want of
recommendations of DLSAs.

Recommendation: Compensation should be paid without any delay to victims

and their dependents under ‘The Uttar Pradesh Victim Compensation
Scheme’.

7.8 Trafficking

The Immoral Traffic (Prevention) Act, 1956 (ITP Act) was enacted for
prevention of immoral trafficking. The South Asian Association for Regional
Cooperation (SAARC) Convention on Preventing and Combating Trafficking
in Women and Children for Prostitution defined trafficking as the moving,
selling or buying of women and children for prostitution within and outside

3
2010-11: ` 2.20 crore and 2011-12: ` 12.83 crore.
4
Rape: ` two lakh; loss or injury: ` One Lakh; victim of corrosive substance i.e. acid attack: ` three lakh; death
(non-earning member): ` 1.5 lakh; death (earning member): ` two lakh; and victim of human trafficking: ` two lakh.

75
country for monetary or other considerations with or without the consent of
the person subjected to trafficking.

As per the information provided by Home (Police) Department, 154 cases5

(Minor Girl: 33; Adult Women: 121) were registered under ITP Act in the
State during 2010-15. Government was to establish Protective homes and
Corrective institutions for trafficked women and children and was also to issue
licence to persons or authorities for establishing and maintaining such
protective homes or corrective institutions under the provisions of Section 21
of ITP Act. The status of Protective homes and corrective institutions
established by the State Government is discussed below:

7.8.1 Protective homes and Corrective institutions

As per the information provided (August 2015) by the Department of Women

Welfare, there were 621 sex workers and 326 children in 48 districts.

Scrutiny revealed that the Government is yet to identify sex workers in

remaining 27 districts of the State. Further, the Government had established
(October 2010) one Protective home in Agra and one Corrective home in
Varanasi with inmate capacity of 75 each. However, only 27 inmates were
living (May 2015) in the Protective home at Agra and no inmate was found
(August 2015) in Corrective home at Varanasi. The condition of these homes
was also found to be uncongenial and dilapidated as depicted in the
photographs given below:

Condition of Protective home in Agra Condition of Corrective home in Varanasi

Thus, very few inmates in the protective/corrective homes despite large

number of sex workers and their children indicates that the Government’s
schemes for providing protection, vocational training and rehabilitation were
not effective.

7.8.2 Welfare of children of sex workers

Facilities such as Crèche, pre-school programme, day and night care centres,
counselling centres etc., are essential for welfare and development of children

5
2010-11: 0, 2011-12: 14, 2012-13: 78, 2013-14: 11 and 2014-15: 51 cases.

76
of sex workers. Scrutiny revealed that no action plan was prepared by the
department to extend such facilities to the children of sex workers to ensure
that they get adequate opportunities for a potentially bright future and get
reintegrated with the society and do not join the sex trade.

During discussion in exit conference (December 2015), while taking

cognizance of the fact, the Government assured to take required action.

7.9 UJJAWALA- Rescue and Rehabilitation of trafficked women

Introduction
Ujjawala is a scheme for the prevention of trafficking, rescue and
rehabilitation of women and child victims of trafficking for commercial sexual
exploitation. The scheme was launched in 2007 by the Ministry of Women
and Child Development. It aims at reintegration and repatriation of victims
including cross border victims.

The target groups or main beneficiaries of this scheme are women and child
victims who have been trafficked for commercial sexual exploitation as well
as those women and children who are vulnerable to becoming victims of this
crime. These vulnerable sections include slum dwellers, children of sex
workers, refugees, homeless victims of natural disasters, etc.

The scheme is being implemented in the State by the Department of Women

Welfare through various Non-Governmental Organizations (NGOs) to provide
direct aid and benefit to victims of trafficking. Immediate relief provided
under the scheme includes provision of food, shelter, trauma care and
counseling to the rescued victims. Later on, victims are also to be provided
skill training, capacity building, job placement and guidance in income
generating activities to empower them and help them live independently.

Ujjawala is a Centrally Sponsored scheme with GoI providing 90 per cent

share of expenditure and balance 10 per cent being met by the implementing
agency (NGO). The norms for providing grants to NGOs for Ujjawala projects
are given in (Appendix 7.6). Component-wise assistance were directly
provided to implementing agencies (NGOs) in two installments by the
GoI. The first installment being normally released with the sanction of
the project and the second and subsequent installments are to be released
after submission of Utilisation Certificates (UCs) by the implementing
agencies for the previous installments alongwith their own proportionate share
of cost. Utilisation certificates provided by the Directorate revealed that only
` 66.07 lakh were released by GoI against which a total expenditure of
` 56.02 lakh was incurred during 2010-15.

Implementation
7.9.1 Non-functioning of Ujjawala projects
As per information provided by the Directorate, Women Welfare, only 13
Ujjawala projects were implemented in the State during 2010-11 to 2014-15.
Details of the projects are given in Appendix 7.7. The scheme had five main

77
components, i.e., prevention, rescue, rehabilitation, re-integration and
repatriation. Scrutiny however, revealed that only one (Barabanki district) out
of these 13 Ujjawala projects sanctioned was covering all the five components
of the scheme.

Audit examination further disclosed that out of 13 Ujjawala projects

sanctioned by the Government, only three projects (Allahabad, Pratapgarh and
Unnao) covering four components viz. prevention, rescue, rehabilitation and
re-integration were located in the test checked districts. Audit found all the
three projects closed and the District Probation Officer stated that the projects
were not functional in the districts.

Audit further observed that no grants were released to NGOs in 2011-12 and
2014-15. It was also noticed that grants were released to 13 projects for a
period ranging between six and 15 months only and second and subsequent
installments were not released to 12 projects. No specific reasons were
furnished by the Department for non-release of second installment. Since,
NGOs are largely dependent on government grants (90 per cent) for running
of the projects, non-release of grant in 12 out of 13 projects for a longer period
indicated that the scheme had become largely non-functional. Although,
Directorate Women Welfare stated that these 12 Ujjawala projects were
running.
On being pointed out Directorate, Women Welfare replied that this problem
persisted due to non-release of funds from GoI. Further, during discussion in
exit conference, Government assured to take required action on the reported
fact.

7.9.2 Non-coverage of border districts

Scheme guidelines envisaged for setting-up of transit centers viz. transit camp,
food and other incidentals at border-check points in respect of cross border
victims.
As per the report6 of the United Nations Office on Drugs and Crime
(UNODC), districts of Uttar Pradesh adjoining Nepal were transit area and
vulnerable to trafficking of women and girls. However, scrutiny of records of
directorate, women welfare revealed that no Ujjawala home was established in
districts7 bordering Nepal. Thus, one of the objectives of scheme to facilitate
rescue and repatriation of cross-border victims was not ensured.

During discussion in exit conference, Government took the cognisance of the

fact and assured to take required action.

7.9.3 Monitoring
As per guidelines, a State Level Monitoring Committee was to be formed
under the Chairmanship of Principal Secretary, Woman Welfare Department
6
India Country assessment report – A review commissioned by UNODC.
7
Bahraich, Lakhimpur Khiri, Maharajganj, Pilibhit, Shrawasti and Siddhartnagar.

78
GoUP which was to meet at least twice a year to monitor the project. Further,
the continuation of grant to the implementing agency was to be based on the
satisfactory performance reported by the State. It was also envisaged that
periodic inspection would be undertaken by the State. Separately periodic
evaluations of the project were also to be undertaken by external agency such
as reputed institutions, Panchayati Raj Institutions (PRI), block level
institution and district level institution.
Scrutiny revealed that the State Level Monitoring Committee under the
chairmanship of Principal Secretary, Woman Welfare Department was not
formed. Further, periodic evaluations of the projects through reputed
institutions, PRIs, block level institution and district level institution was not
done. Norms/inspection schedules for periodic inspection were also not laid
down by the Directorate.

On being pointed out in Audit, Directorate Women Welfare did not provide
any specific reply, however, during discussion in exit conference, Government
stated to take required action on the fact.

7.10 Conclusions
● Incidence of crime against women have been increasing consistently
during last five years. The incidence of such crimes in the State are much
higher as compared to all India average and most of the other States.
(Paragraph 7.1)

● The number of serious crimes against women such Rape, homicide for
dowry, dowry deaths or their attempts, torture- both mental and physical,
assault on women with intent to outrage her modesty, kidnapping
and abduction and cases under Dowry Prohibition Act have increased
considerably.
(Paragraph 7.2)

● Despite high incidence of crime, the State Government has not taken
effective steps to significantly strengthen its police force as the actual police
manpower per one lakh population in the State is amongst the lowest in the
country.
(Paragraph 7.4)

● The Government schemes for providing financial and other support to

the victims have not been implemented effectively. No financial assistance
was provided under the scheme 'Financial Assistance and Support Services
to the Victims of Rape' despite substantial allocation by GoI and there have
been delays in release of compensation under The Uttar Pradesh Victim
Compensation Scheme, and

(Paragraph 7.7.1 & 7.7.2)

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● The Ujjawala projects for trafficked women were mostly non-functional.
Further, no Ujjawala homes were established in districts bordering Nepal.
Major destination centres for trafficking had no Ujjawala projects.

(Paragraph 7.9.1 & 7.9.2)

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