{"id":388697,"date":"2026-06-29T09:00:06","date_gmt":"2026-06-29T03:30:06","guid":{"rendered":"https:\/\/www.scconline.com\/blog\/?p=388697"},"modified":"2026-06-26T17:58:48","modified_gmt":"2026-06-26T12:28:48","slug":"witness-protection-india-judicial-recognition-policy-failure","status":"publish","type":"post","link":"https:\/\/www.scconline.com\/blog\/post\/2026\/06\/29\/witness-protection-india-judicial-recognition-policy-failure\/","title":{"rendered":"Witness Protection in India: Between Judicial Recognition and Policy Failure"},"content":{"rendered":"
\n

The Indian judiciary has time and again ruled on the appalling conditions of witnesses in India and emphasised the protection of witnesses<\/span>.<\/p>\n

Introduction<\/p>\n

English philosopher and jurist Jeremy Bentham once aptly remarked that “witnesses are the eyes and ears of justice”. If the justice system fails to see and hear through them, crimes go unnoticed, the state of lawlessness takes root, and public faith in justice erodes. In July last year<\/span>1<\/sup><\/a>, a key witness in a double-murder case was murdered inside his car in broad daylight. In the past one year, three witnesses have been killed in different cases2<\/sup><\/a>, and many have been intimidated to death.<\/p>\n

We are living in a country proudly celebrating the 78th year of its independence, autonomy, and sovereignty. Nonetheless, it is a matter of grave concern that we still lack a robust legislative framework and a comprehensive scheme for the protection of witnesses. In some instances, individuals who possess essential information about serious criminal offenses may be reluctant to provide their testimony due to intimidation or the absence of adequate mechanisms for their protection. Such reluctance affects both individual prosecutions and the credibility of the criminal justice system as a whole.<\/p>\n

In India, the issue of witness protection has not received the same attention as other pressing concerns such as domestic violence, custodial torture, sexual offences, etc. Even where courts deliver judgments in favour of victims, the absence of structured enforcement mechanisms often weakens the practical impact of such decisions. This deficiency not only endangers witnesses but also diminishes wider initiatives to achieve justice and uphold public trust in the criminal justice system.<\/p>\n

Committee reports and judicial pronouncements on witness protection<\/p>\n

The debate on witness protection is not new in India. The 14th Law Commission Report (1958)3<\/sup><\/a> was the first to highlight the issue by indicating that proper court arrangements should be made and, further, the witness travelling and daily allowances need to be paid. The 154th Report (1996)<\/a>4<\/sup><\/a> went further, recommending that basic facilities such as drinking water, medical aid, and adequate travelling allowances should be provided to witnesses.<\/span><\/p>\n

Thereafter, the 178th Report (2001)<\/a><\/span>5<\/sup><\/a> proposed the insertion of Section 154-A in the Criminal Procedure Code, which envisaged that in cases of heinous offences, the immediate recording of statements of material witnesses should be done before a Magistrate on oath, especially in cases where the witnesses were prone to intimidation or inducement by the adverse party.<\/span><\/p>\n

The Justice V.S. Malimath Committee Report (2003)<\/span>6<\/sup><\/a> also expressed its apprehension on the state of affairs concerning the protection of witnesses and underlined the desirability of a stringent witness protection law in India.<\/span><\/p>\n

Subsequently, the 198th Law Commission Report (2006)<\/a><\/span>7<\/sup><\/a> highlighted the need for protection of witness identity and the institutionalisation of witness protection programmes.<\/span> It strongly recommended that the time had come for enacting comprehensive legislation dedicated exclusively to witness protection in India.<\/span><\/p>\n

The Indian judiciary has time and again ruled on the appalling conditions of witnesses in India and emphasised the protection of witnesses. The Supreme Court in Swaran Singh<\/span> v. State of Punjab<\/span><\/span><\/a><\/span>8<\/sup><\/a> held that the continuous harassment and neglect of witnesses, making them suffer indefinitely due to continuous adjournments, without any protection, and disrespectful attitude towards them, ultimately discourage witnesses from coming forward to participate in legal proceedings, which is proving detrimental to the Indian criminal justice delivery system.<\/span><\/p>\n

A similar emphasis on the obligation of the State to protect the witness was made by the Supreme Court in NHRC<\/span> v. State of Gujarat<\/span><\/a>9<\/sup><\/a> and Zahira Habibulla H. Sheikh<\/span> v. State of Gujarat<\/span><\/span><\/a><\/span>10<\/sup><\/a>. The court noted that neither the Central Government nor the State authorities had put any laws or strategies in place to safeguard witnesses. The court further remarked that, due to many of the accused having connections to influential figures, witness protection was essential for effectively prosecuting criminals.<\/span><\/p>\n

In its landmark judgment in Mahendra Chawla<\/span> v. Union of India<\/span><\/span><\/a><\/span>11<\/sup><\/a>, the Supreme Court of India unequivocally described the condition of witnesses as “pathetic” and underlined the urgency of having a witness protection regime in a statutory form. The court also noticed that rarely do witnesses change their statements on their own free will, but they do so only when they are threatened, coerced, or when the State utterly fails to provide them adequate protection and care.<\/span><\/p>\n

The experiences in each of these cases demonstrate that the fight for justice only becomes significant and somewhat successful when citizens, and non-State actors, get involved. Nonetheless, despite this consistent judicial advocacy, Parliament has failed to enact an independent witness protection law.<\/p>\n

The Witness Protection Scheme, 2018: Scope and implementation challenges<\/span><\/p>\n

In India, the first legal initiative for witness protection was the Witness Protection Scheme<\/a> (2018 Scheme), introduced by the Government of India in 2018 and endorsed by the Supreme Court in the Mahendra Chawla case<\/span><\/a>. The objective of the 2018 Scheme included, inter alia, the safety and security of the witnesses and a provision to provide them police escort as well.<\/p>\n

The Scheme includes special provisions such as the creation of a Witness Protection Fund to cover expenses related to the safety of witnesses.<\/span>12<\/sup><\/a> The scheme ensures that the full identity of witnesses and their family members is protected during investigations. Cameras should be installed outside the witness’s house.<\/span>13<\/sup><\/a> There should be regular police patrolling around the witness’s residence. The witness’s call records, emails, and messages should be monitored.<\/span>14<\/sup><\/a> Relocation of the witness is based on a threat analysis report, and an emergency contact mechanism is provided.<\/span>15<\/sup><\/a> Thus, the Witness Protection Scheme, 2018<\/a>, was regarded as a significant institutional development in the absence of statutory legislation.<\/span><\/p>\n

However, there are some obstructions hindering the successful implementation of this programme.<\/span>16<\/sup><\/a> Many States have not adopted the concept of the Witness Protection Fund or formed the competent authorities as mandated under the witness protection scheme.<\/span>17<\/sup><\/a> In many cases, the required Witness Protection Fund is left empty.<\/span>18<\/sup><\/a> Basic facilities like CCTV, secure entrances, and separate waiting areas are absent from courts.<\/span>19<\/sup><\/a> Even willing witnesses are not given any real protection because of these material inadequacies. In 2024, the Supreme Court observed that the scheme is being severely hampered nationwide by low resources and poor implementation.<\/span>20<\/sup><\/a><\/p>\n

Moreover, people who are from the marginalised section of society, such as tribal communities, SC\/ST, women and children, are particularly vulnerable to intimidation. According to the observation of an official analysis<\/span>21<\/sup><\/a>, “victims and witnesses of serious crimes are at high risk when the accused is influential and the witness belongs to an economically marginalised community.” Thus, without central monitoring and statutory law, the scheme risks becoming a mere symbolic gesture rather than a functional safety tool for the citizens of the country.<\/span><\/p>\n

Strengths of the Section 398<\/a>, Nagarik Suraksha Sanhita, 2023<\/a> (BNSS)<\/p>\n

The BNSS contemplates the diverse needs and difficulties of various regions in the country by vesting the States with the power to devise a separate witness protection programme. Other suggestions that would be beyond improving the general justice delivery system in the country include expanding the coverage to cover more categories of crimes, providing greater security to confidentiality, and offering more victim-friendly approaches.<\/p>\n

This decentralised approach allows for the development of customised solutions that may address the unique socio-economic and crime-related problems that witnesses in each State experience, and this is made possible by such a decentralised approach. Section 398<\/a> is a component of BNSS<\/a>‘s broader reform programme, which attempts to renew and harmonise some aspects of Indian criminal law and practice. This incorporation ensures that witness protection forms part of a comprehensive strategy for criminal justice reform and is not dealt with in isolation. It provides for a witness aid cell in every district for the coordination of protective measures and assistance to witnesses during court procedures.<\/p>\n

The implementation of Section 398<\/a> BNSS<\/a> can be seen as a legislative response to the observations of the Supreme Court in the case of Mahendra Chawla<\/span><\/a>, where the Court highlighted the “urgency for institutional witness protection measures”.<\/p>\n

Comparative analysis of International models:<\/span><\/p>\n

The 1985 UN Declaration on Basic Principles of Justice for Victims of Crime and Abuse of Power emphasised the urgent need that victims who are also witnesses be protected at the international level.<\/span>22<\/sup><\/a> It stressed that States should have policies to ensure victims’ privacy is protected, their suffering is minimised, and their safety is ensured. Not only are there laws for the protection of witnesses in many countries of the world, but formal institutions have also been established. For instance, in Hong Kong<\/span>23<\/sup><\/a>, an institution under the Security Bureau has been established to protect threatened witnesses and their families. Furthermore, in case the witnesses are under protection, they are given new identities, and if the witness still feels unsafe after this, arrangements are made for him to leave Hong Kong and settle in another country.<\/span><\/p>\n

Except for Hong Kong, witness protection laws are also in force in the United States<\/span>24<\/sup><\/a>, the United Kingdom<\/span>25<\/sup><\/a>, Canada<\/span>26<\/sup><\/a> and Switzerland<\/span>27<\/sup><\/a>. In parallel with these countries, the formulation of such a law for witness protection in India is the need of the hour. Along with making laws, measures similar to those in Hong Kong must be taken to protect witnesses from any action by those involved in crimes. In our specific circumstances, it is even more important to establish a special institution to protect witnesses and their families.<\/span><\/p>\n

In various nations, a common feature is a structured agency or program, often situated within the home ministry or justice department, that focuses on witness protection and is established through legislation. India could adopt strategies from the US and UK, such as the use of legal pseudonyms, encrypted video testimony, and options for relocation in life-threatening situations. Additionally, there are benefits to dedicated funding, as seen in the federal budget allocations in Germany, and effective collaboration among different agencies, including the judiciary, police, and social services.<\/p>\n

However, for India, any similar strategy would need to be formulated with utmost care. Taking into account the size of the country, inter-State mobility, and the federalised law enforcement structure, a centralised body will have to function within the framework of the Constitution<\/a> while promoting cooperative federalism. A nationally integrated mechanism with assured funding and autonomous oversight may help bridge the existing implementation deficits without undermining the autonomy of the states.<\/p>\n

The need of the hour<\/p>\n

The protection of witnesses is not a matter of charity; it is a matter of justice. Every time a witness turns hostile out of fear, the justice system loses a fragment of its legitimacy. India requires comprehensive witness protection legislation with enforceable safeguards to secure safety, ensure anonymity, and penalise those who threaten or manipulate witnesses; otherwise, crimes will continue to be committed and cases will be registered, but due to a lack of protection for the witness, the accused will continue to be acquitted and those seeking justice will remain helpless.<\/p>\n

Although States may decide on the specifics of the BNSS witness protection programmes, the provision is a major advancement in strengthening the legal protections for witnesses; but as of now, Haryana<\/span>28<\/sup><\/a>, Assam<\/span>29<\/sup><\/a>, and Manipur<\/span>30<\/sup><\/a> are the only three States that have established the Witness Protection Scheme under the same statute within their own territory.<\/span><\/p>\n

Moreover, in contrast to the 2018 Scheme, Section 398<\/a> provides explicit guidance on whether or not the regulations outlined in the scheme should be included in the State’s Witness Protection Scheme. A clear explanation of whether the regulations created for witness protection must include the guidelines provided by this program. As a result, innocent witnesses may suffer by the government’s decision to leave it open to interpretation, which might be readily used by any state administration for its own gain.<\/p>\n

If witness protection is to be effective, it has to go beyond the judicial recognition and policy statements and enter the realm of legislative and administrative measures. The justice system can function properly only when people who come forward to give testimony feel secure and supported. It is, therefore, important that the Union and State Governments address the structural deficiencies and make efforts to develop a transparent and strong legal framework for witness protection.<\/p>\n<\/div>\n\n

*Aboo Bakr, Third-Year Law Student, Jamia Millia Islamia, New Delhi.<\/span><\/strong><\/p>\n

1.<\/a> Raj Shekhar Jha, “Witnesses Shot, Silenced, Ignored: SC Flags ‘Eyes and Ears’ of Justice System, Seeks Real Protection Beyond Schemes”, Times of India<\/span> (New Delhi) 25-7-2026, available at <https:\/\/timesofindia.indiatimes.com\/city\/delhi\/witnesses-shot-silenced-ignored-sc-flags-eyes-and-ears-of-justice-system-seeks-real-protection-beyond-schemes\/articleshow\/122893274.cms<\/a><\/span>>.<\/p>\n

2.<\/a> Raj Shekhar Jha, “Witnesses Shot, Silenced, Ignored: SC Flags ‘Eyes and Ears’ of Justice System, Seeks Real Protection Beyond Schemes”, Times of India<\/span> (New Delhi) 25-7-2026, available at <https:\/\/timesofindia.indiatimes.com\/city\/delhi\/witnesses-shot-silenced-ignored-sc-flags-eyes-and-ears-of-justice-system-seeks-real-protection-beyond-schemes\/articleshow\/122893274.cms<\/a><\/span>>.<\/p>\n

3.<\/a> Law Commission of India, Reform of Judicial Administration<\/span>, Report No. 14 Vol. I.<\/p>\n

4.<\/a> Law Commission of India, <\/a>Report<\/a><\/span> on the Criminal Procedure Code, 1973 (Act No. 2 of 1974)<\/span>, Report No. 154 Vol. I.<\/p>\n

5.<\/a> Law Commission of India, <\/a>Recommendations for Amending Various Enactments, Both Civil and Criminal<\/span>, Report No. 178.<\/p>\n

6.<\/a> Justice V.S. Malimath Committee, Report of the Committee on Reforms of the Criminal Justice System<\/span>, (March 2023) Vol. I.<\/p>\n

7.<\/a> Law Commission of India, <\/a>Witness Identity Protection and Witness Protection Programmes<\/span>, Report No. 198<\/a>.<\/p>\n

8.<\/a> (2000) 5 SCC 668<\/a> : 2001 SCC (Cri) 190.<\/p>\n

9.<\/a> (2004) 8 SCC 610<\/a>.<\/p>\n

10.<\/a> (2004) 4 SCC 158<\/a> : 2004 SCC (Cri) 999.<\/p>\n

11.<\/a> (2019) 14 SCC 615<\/a> : (2020) 2 SCC (Cri) 101.<\/p>\n

12.<\/a> Witness Protection Scheme, 2018<\/a>, S. 4.<\/p>\n

13.<\/a> Witness Protection Scheme, 2018<\/a>, S. 5.<\/p>\n

14.<\/a> Witness Protection Scheme, 2018<\/a>, S. 6.<\/p>\n

15.<\/a> Witness Protection Scheme, 2018<\/a>, S. 5.<\/p>\n

16.<\/a> Rashmi Rekha Baug, “Witness Protection Scheme in India — Issues and Challenges” (2023) 11(6) International Journal of Creative Research Thoughts h445, available at <https:\/\/ijcrt.org\/papers\/IJCRT2306881.pdf<\/a>>.<\/p>\n

17.<\/a> Swati Satish, “Witness Protection Scheme: Why India needs it?” (3-10-2024) ClearIAS, available at <https:\/\/www.clearias.com\/witness-protection-scheme\/<\/a>>.<\/p>\n

18.<\/a> Harshit Sangwan, “The Failure of Witness Protection in India: Legal Analysis” (5-9-2025) Office of Advocate Partap Singh, available at <https:\/\/officeofpartapsingh.com\/our-presence\/f\/the-failure-of-witness-protection-in-india-legal-analysis?blogcategory=Environment+Law<\/a>>.<\/p>\n

19.<\/a> Harshit Sangwan, “The Failure of Witness Protection in India: Legal Analysis” (5-9-2025) Office of Advocate Partap Singh, available at <https:\/\/officeofpartapsingh.com\/our-presence\/f\/the-failure-of-witness-protection-in-india-legal-analysis?blogcategory=Environment+Law<\/a>>.<\/p>\n

20.<\/a> Harshit Sangwan, “The Failure of Witness Protection in India: Legal Analysis” (5-9-2025) Office of Advocate Partap Singh, available at <https:\/\/officeofpartapsingh.com\/our-presence\/f\/the-failure-of-witness-protection-in-india-legal-analysis?blogcategory=Environment+Law<\/a>>.<\/p>\n

21.<\/a> Harshit Sangwan, “The Failure of Witness Protection in India: Legal Analysis” (5-9-2025) Office of Advocate Partap Singh, available at <https:\/\/officeofpartapsingh.com\/our-presence\/f\/the-failure-of-witness-protection-in-india-legal-analysis?blogcategory=Environment+Law<\/a>>.<\/p>\n

22.<\/a> United Nations General Assembly, Declaration of Basic Principles of Justice for Victims of Crime and Abuse of Power<\/span>, G.A. Res. 40\/34, (29-11-1985) available at <https:\/\/www.ohchr.org\/en\/instruments-mechanisms\/instruments\/declaration-basic-principles-justice-victims-crime-and-abuse<\/a>>.<\/span><\/p>\n

23.<\/a> Witness Protection Ordinance (Hong Kong), Cap. 564.<\/p>\n

24.<\/a> U.S. Department of Justice, Justice Manual<\/span>, § 9-21.000: Witness Security (2018).<\/p>\n

25.<\/a> National Crime Agency (United Kingdom), “Protected Persons”, March 2026.<\/p>\n

26.<\/a> Witness Protection Program Act, 1996 (Canada).<\/p>\n

27.<\/a> Federal Office of Police (Switzerland), “Witness Protection” (2024).<\/p>\n

28.<\/a> Government of Haryana, Haryana Witness Protection Scheme, 2025, available at <https:\/\/prosecutionhry.gov.in\/document\/the-haryana-witness-scheme-2025\/<\/a>>.<\/p>\n

29.<\/a> Assam Witness Protection Scheme, 2024<\/a>.<\/p>\n

30.<\/a> Government of Assam, Manipur Witness Protection Scheme, 2025, available at <https:\/\/bprd.nic.in\/uploads\/table_b\/Section%20of%20BNSS%20398.pdf<\/a>>.<\/p>\n","protected":false},"excerpt":{"rendered":"

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