Course Assignment - Law of Civil Procedure II

A. Introduction
It is evident that no state can attain meaningful development without establishing rule
of law, equality, justice, democracy and human rights. Accordingly, it has been felt that
the poor and the marginalized be given some sort of advantage so that they could get
equal access with the rich to the service delivery system of the state. It is for that reason,
the poor, marginalized and people from backward sections as well as minority groups,
women and children are considered to receive aid or assistance in the court premises so
that their economic and other constraints do not bar them to avail proper remedy or
relief in case of infringement of their legal rights.
What is legal aid & its relevance to the existing laws in Bangladesh
The phrase legal aid is often replaced as legal support, legal help, legal service, legal
assistance, free lawyers' services etc. In a general and simple meaning it refers to legal
advice, opinion or legal representation that is provided by an organization or an
individual at low or no cost to people who cannot afford to pay for such legal services.
In other words, It means to provide legal counseling, engaging lawyers, meeting other
costs of conducting a suit, giving every legal assistance to enjoy the constitutional,
statutory and other rights and liberties to the poor, downtrodden and have-nots, the
marginalized and vulnerable people who do not have enough means to arrange for
such steps by themselves at nominal fee or without any cost.
The relevance of setting up a tangible legal aid program is also collaborated by the
following provisions of the law:
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Course Assignment - Law of Civil Procedure II

1) Constitution of the People's Republic of Bangladesh (especially, Article 33(1); right to

consult and be defended by a legal practitioner).
2) Code of Civil Procedure 1908 (Order XXXIII, Rule 1, Provisions relating to pauper
suit).
3) Code of Criminal Procedure, 1898 (Section 340(1) right of an accused person to be
defended by a pleader.

B. SUITS BY PAUPER Order 33 of the Civil Procedure Code, 1908

B.1 Scope & Objective of Order 33
Order 33 provides for filing suits by Paupers or indigent persons. It enables persons
who are too poor to pay court fees and allows them to institute suits without payment of
requisite court fees.
The provisions of Order 33 are intended to enable indigent persons to institute and
prosecute suits without payment of any court fees. Generally, a plaintiff suing is bound
to pay court fees prescribed. But a person may be too poor to pay the requisite court fee.
This order exempts such person from paying the court fee at the first instance and
allows him to prosecute his suit in forma pauperis, provided he satisfies certain
conditions laid down in this order.

Course Assignment - Law of Civil Procedure II

B.2 Definition of Pauper

To explain more clearly, a person is a pauper or indigent person if
i) he is not possessed of sufficient means to enable him to pay the fee prescribed by law
for the plaint of such suit; or
ii) where no such fee is prescribed, when he is not entitled to property worth five
thousand taka.
In both cases, the property exempt from attachment in execution of a decree and the
subject-matter of the suit should be excluded. Here, the word person includes juristic
person.
B.3 Application, its contents and examination
Every application for permission to sue as a pauper shall contain
i) the particulars required in regard to plaints in suits
ii) a schedule of any movable or immovable property belonging to the applicant with
the estimated value thereof shall be annexed thereto; and
iii) it shall be signed and verified in the manner prescribed for the signing and
verification of pleadings (as provided in Order 6, Rules 14 & 15).
The application should be presented to the Court by the applicant in person unless he is
exempted from appearing in Court, in which case the application may be presented by

Course Assignment - Law of Civil Procedure II

an authorized agent who can answer all material questions relating to the application
and who may be examined in the same manner as the party represented by him might
have been examined had such party attended in person. Where there are two or more
plaintiffs, it can be presented by any one of them.
Where the application is in proper form and duly presented the Court may if it thinks
fit examine the applicant or his agent when the applicant is allowed to appear by agent
regarding the merits of the claim and the property of the applicant.
(Where the application is presented by an agent, the Court may if it thinks fit order that
the applicant be examined by a commission in the manner in which the examination of
an absent witness may be taken.
B.4 Rejection of Application
The court will reject an application for permission to sue as an indigent person in the
following cases a) where it is not framed and presented in the manner prescribed by rules 2 and 3, or
b) where the applicant is not a pauper, or
c) where he has, within two months next before the presentation of the application,
disposed of any property fraudulently or in order to be able to apply for permission to
sue as a pauper, or
d)

where

his

allegations

do

not

show

cause

of

action,

or

e) where he has entered into any agreement with reference to the subject matter of the
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Course Assignment - Law of Civil Procedure II

proposed suit under which any other person has obtained an interest in such subject
matter.
B. 5 Inquiry and acceptance or rejection of permission
Where the Court sees no reason to reject the application on any of the grounds stated in
rule, 5, it shall fix a day (of which at last ten days clear notice shall be given to the
opposite party and the Government pleader) for receiving such evidence as the
applicant may adduce in proof of his pauperism, and for hearing any evidence which
may be adduced in disproof thereof.
The Court shall then either allow or refuse to allow the applicant to sue as a pauper.
Where the application is granted it shall be numbered and registered, and shall be
deemed the plaint in the suit, and the suit shall proceed in all other respects as a suit
instituted in the ordinary manner, except that plaintiff shall not be liable to pay any
court-fee (other than fee payable for service of process) in respect of any petition,
appointment of a pleader or other proceeding connected with the suit.
B.6 Dispaupering
The Court may on the application of the defendant or of the Government pleader of
which seven days clear notice in writing has been given to the plaintiff order the
plaintiff to be dispaupereda) if he is guilty of vexatious or improper conduct in the course of the suit;
b) if it appears that his means are such that he ought not to continue to sue as a pauper;

Course Assignment - Law of Civil Procedure II

or
c) if he has entered into any agreement with reference to the subject-matter of the suit
under which any other person has obtained an interest in such subject matter.
B. 7 Realization of Court fees
Where the plaintiff succeeds in the suit, the Court shall calculate the amount of court
fees which would have been paid by the plaintiff if he had not been permitted to sue as
a pauper; such amount shall be recoverable by the [Provincial Government] from any
party ordered by the decree to pay the same, and shall be a first charge on the subject
matter of the suit. The Court shall order the plaintiff, or any person added as a coplaintiff to the suit, to pay the court fees which would have been paid by the plaintiff if
he had not been permitted to sue as a pauper.

C. Importance of Legal Aid for the poor and low income people
Though the notion of legal aid emerged and developed from that benevolent point of
view, it's no longer considered as a relief or charity work for the poor by the state or the
power elite. Today, right to legal aid is conceived as a fundamental right of the poor,
marginalized and low income people and considered as one of the cornerstones of
enhancing access to justice for them.
This concept of legal aid has already become a catchphrase among the lawyers, judges
as well as students and faculties of law in our country. Legal aid services are also getting
importance here from all quarters of state and non-state actors including the judiciary.
Perhaps, the long-standing poor demonstration of governance and socio-economic
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Course Assignment - Law of Civil Procedure II

downtrend of the state have also been pouring in some elements that require a needbased and comprehensive approach of legal aid services in our country.
In a jurisprudential view, the interlinking and interdependence of right to legal aid and
other fundamental and basic human rights also necessitated the rapid development of
this concept. But it can be said without any other speculation that, despite global and
national initiative to provide legal aid for the poor and the marginalized, any legal aid
program is bound to be unsuccessful without mass awareness and active participation
of the beneficiaries and other stakeholders. Keeping this in mind, an attempt has been
made here to assess the need of legal aid and current state of government legal aid
program in Bangladesh.
C. 1 Implication
The importance of legal aid cannot be stated in a few words. A free, fair, neutral court
system and a good parliament that enacts pro-poor laws will have no affirmative
impact upon the poor if they could not be able to invoke justice from that court system
and body of laws. Legal aid by the government or other organizations enables them to
struggle for their rights and liberties. Providing equal opportunity and equal standing to
the poor with the rich through legal aid could ensure rule of law, equality and justice of
the society. If legal aid is not provided, the poor might feel insecure in the court of law
which dispenses justice. This insecurity destabilizes social harmony and peace, increases
criminal activities and private disputes resulting in thousands of conflicting issues and
interests between the poor and the rich, the power holders and the powerless, the

Course Assignment - Law of Civil Procedure II

privileged and the under-privileged with the threat of ensuing a great fall of human
rights.
C.2 Essential relevance of legal aid program
If we take the instance of our justice delivery system, we find that the poor have been
the worst sufferers, women have been in the centre of deprivation and rights of
children have been subject to negligence for quite a long period. This three categories of
people, the poor, women and children hardly enjoy their rights as guaranteed in the
fundamental rights portion of our Constitution, including right to equal protection of
law, right to access to justice, fair trial, consulting with a lawyer chosen by themselves,
right to know the cause of arrest or detention, right to not being tortured, detained etc.
It is because of the fact that, firstly they are completely unknown and unaware of their
rights, and secondly, they are incapable of establishing their rights by invoking justice
from the court due to lack of financial ability. As a result, our justice delivery system is
yet to be proved as useful machinery for ensuring justice in the society, enhancing
social progress through empowering the poor who are the majority, women who are
almost half and children who are a considerable number of our population. Justice and
judicial activities of the state, not being an affair of the rich, elite, power holders and
political leaders only, is a people's concern and should be equally accessible, applicable
and friendly to every person as contemplated in our Constitution.
First effort for providing legal aid to the indigent litigants was taken by the government
by a notification dated 18th January 1994. Under the said notification Legal Aid
Committee was formed in every district with the District and Session Judge as
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Course Assignment - Law of Civil Procedure II

Chairman; District Magistrate, president of the district bar association, government

Advocate, Public Prosecutor, and a government nominee as members and judge in
charge of accounts as secretary. The said committee after considering applications of
the indigent litigants allowed legal aid by paying fees of the advocates of such
applicants appointed from a panel prepared by a committee consisting of the District
Judge, District Magistrate and two government nominees from amongst the advocates
of at least five years standing practice, from a fund provided by the government for the
purpose.
Subsequently by another notification dated 19th March 1997 government formed a
National Legal Aid Committee and also reconstituted District Legal Aid Committee. The
function of the National Legal Aid Committee was to coordinate and supervise the
functions of the District Legal Aid committees. Despite these initiatives from the
government, the objectives of legal aid appeared unfulfilled and unfeasible due to lack
of a comprehensive scheme and shortage of fund. Hence the government enacted the
Legal Aid Act 2000 to put the legal aid activities on firm footing and also amended the
Act in 2005 with a view to making it more pro-people and poor friendly.
The act has the following features

Legal Aid Institution - A legal Aid Institution comprising of the National Legal Aid
Board headed by the Minister of Law, Justice and Parliamentary Affairs and District
Legal Aid Committees headed by the relevant District or Session Judge has been
established under this Act. The Act also empowers National Legal Aid Board to
formulate plan of action and coordinate the activities of the District Legal Aid
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Course Assignment - Law of Civil Procedure II

Committees. The function and authority of National Legal Aid Board and District Legal
Aid Committees have been detailed in the Legal aid Rules provided by the Act.

What and how given - Legal aid is not given in the form of cash to the poor litigants to
bear their litigation expenditure. It is not a monetary help but a procedural assistance.
According to the Act legal aid means and includes- (1) Providing legal assistance and
advice in cases to be filed, already filed or pending before a court, (2) Paying
honorarium to the mediators or arbitrators engaged to mediate or arbitrate a dispute
under section 89A and 89B of the CPC, (3) Providing incidental costs related to a case
selected for legal aid, and (4) Paying honorarium to lawyers engaged in legal aid case.

Eligibility & Application The Act categorizes the following groups of people as eligible
to apply for the legal aid to the National Legal Aid Board and District Legal Aid
Committees:
1. People with average annual income of less than Taka 3000.
2. Physically disabled, jobless people, and freedom fighters whose annual income is less
than taka 6000.
3. Recipients of retirement benefit.
4. Impoverished mothers holding VGD cards.
5. Women and children that are victims of acid burns, trafficking.
6. People having land or house at Adarsha Gram.

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Course Assignment - Law of Civil Procedure II

7. Financially insolvent widows, economically disadvantaged women, deserted wives.

8. The handicapped those are helpless and incapable of earning.
9. Under trial prisoners that are unable to afford legal representation.
10. Persons declared insolvent or helpless by the jail authority.
11. Persons considered eligible for legal aid by the institution due to their insolvency,
helplessness or socio economic backwardness.
The application is to be written in white paper or in the prescribed form describing the
name and address of the applicant, causes for applying for the legal aid and submitted
to the Chairman of the Board, in case of matters under the jurisdiction of the Supreme
Court and to the Chairman of the District Committee, in case of matters under the
jurisdiction of other courts. Then the application is due to be placed in the next
committee meeting which is scheduled to be held once in every month for the District
Committee and once in every three months for the Board. The relevant committee will
scrutinize the application and decide on the availability of the legal aid. In case of
approval they will transmit it to the applicant.

D. Recommendation & Conclusion

Even after six years the Legal Aid Program remains to be proved as a successful
program of the state. Several shortcomings and shortsightedness of the Act and the
Legal Aid Program could be identified for its unsatisfactory operation and less
effectiveness, but lack of public awareness and meager steps for dissemination activities
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Course Assignment - Law of Civil Procedure II

on the part of the Legal Aid Institution will stand at the top. No justification is necessary
for the forgoing reason as we know the program still remains unheard of to the
common people including the community leaders and locally elected representatives
like UP Chairmen, Members, Matbars (persons having influence in local matters among
the villagers and slum dwellers) and religious clerics.
We must know that, above all, it is the common people whose awareness is most
important in carrying out the activities under this program and by this institution. But,
how far the concept of 'legal aid' is intelligible to those people who really need it? Do we
really care for its comprehensibility to those persons who live in the rural areas, who do
not know how to read, how to write and therefore, how to apply and where to apply for
this legal aid? Do we have any scheme to reach this fundamental right to them? In
order to make positive answers of these questions and to impede the move of making it
a clich, it is high time to adopt a practical approach for making legal aid an effective
instrument of empowering the poor and women. Coordinated effort from state and
non-state actors is crucially important in this regard for establishing it as a vehicle of
poverty reduction. Dissemination of information and awareness building is not an easy
job resting on the government or concerned government agencies, it's a matter of
coordination and cooperation between and among governmental and nongovernmental
organizations, conscious citizens and the media. It will also help in building national
and regional funds for providing legal aid to the persons applied and selected for legal
aid. Foreign and local aid in addition to government allocation through budget will
definitely play an effective role in the operation of this program throughout the country
and even across the borders in enhancing access to justice of the poor.
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Course Assignment - Law of Civil Procedure II

Bangladesh is a developing country with more than thirty percent ultra poor population
living in the darkness of illiteracy and therefore without access to any such state-run
program. The existing wide range of disparities between the poor and the rich can only
be mitigated through strengthening this Legal Aid Program which is closely linked with
the Poverty Reduction Strategy and it must be seen as an instrument of achieving
Millennium Development Goal. Democracy means equality and empowerment of every
citizen. Therefore in order to ensure meaningful democracy, establishment of legal aid
services and institutionalization of the Legal Aid Institution should be a top priority for
every government including this interim caretaker government.

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