On 27 August 2013, three young men were killed in Kawal village in Muzaffarnagar, Uttar Pradesh. After a Jat mahapanchayat at Nagla Mandaur on 7 September, communal violence spread across Muzaffarnagar, Shamli and nearby districts, leaving more than 60 people dead and at least 40,000, many of them Muslims, displaced. The army was called in. Of 510 cases registered, most ended in acquittal, closure or withdrawal by the state, and in August 2026 a court allowed the withdrawal of a speech case against BJP leaders and an SP MP.
Key takeaways
- The violence began with three killings in Kawal village on 27 August 2013 and spread after the 7 September Nagla Mandaur mahapanchayat.
- The Supreme Court held the Akhilesh Yadav government prima facie negligent; the Sahai commission blamed intelligence failure but indicted no politician.
- Of 510 cases, few ended in conviction: by 2021, 1,117 accused had been acquitted in 97 cases.
- The Adityanath government withdrew 77 cases, and in August 2026 a court let it drop a speech case against BJP leaders and an SP MP.
Background: the Kawal killings
On 27 August 2013 three young men were killed in Kawal village: Shahnawaz, a Muslim, and Sachin and Gaurav, two Jat Hindu cousins DailyO, quoting the Sahai report. Police say Shahnawaz was stabbed to death by six people, and the two cousins were then killed PTI via Deccan Herald.
The cause is contested. Early reports described an alleged incident of harassment of a young woman IANS via Business Standard. Claim · disputed The Sahai commission itself said it was "still not clear" whether harassment or a motorcycle collision set off the attack DailyO.
The commission said Kawal "merely acted as a catalyst" for a divide that had grown acute in the preceding months DailyO.
The build-up: a fake video and rival meetings
False A video of a brutal killing was posted on YouTube on 27 August as if it showed the Kawal deaths. According to the Sahai report, a police inquiry found it related to an August 2012 incident that appeared to be from Pakistan. Police had it deleted, and on the night of 29 August the district magistrate and SSP announced it had nothing to do with Kawal DailyO. The commission held BJP MLA Sangeet Som and 229 others who shared it responsible for spreading communal hatred.
The report also said the release of 14 Muslim youths detained after the cousins' killing, and the transfer of DM Surendra Singh and SSP Manjul Saini, created an impression among Jats that the administration favoured Muslims. It said the 14 had no role in the murders Newslaundry.
Meetings were held on both sides in defiance of prohibitory orders. Police booked 10 Muslim leaders, including former minister Saiduzzaman and former BSP MP Kadir Rana, over speeches at a panchayat in the Khalapar locality on 30 August PTI via Deccan Herald. A separate case was filed against BJP leaders and Hindu activists over a large gathering at Nagla Mandaur at the end of August. Reports date it 30 or 31 August, and say the crowd allegedly removed police barriers despite Section 144 orders Outlook Siasat.
The 7 September mahapanchayat
The Bharatiya Kisan Union convened a mahapanchayat at Nagla Mandaur on 7 September to protest the killings in Kawal PTI via Deccan Herald. The Sahai report described it as a panchayat convened by BJP leaders DailyO.
The local intelligence unit had expected 15,000 to 20,000 people. The commission found 40,000 to 50,000 came Newslaundry. It said speeches by Hindu leaders, especially Jats, provoked the crowd, and that serious rioting broke out as people returned DailyO.
Accounts of how the clashes began differ. IANS reported that stones were thrown at a bus carrying people to the meeting IANS via The Peninsula. The Committee to Protect Journalists, citing news reports, said clashes followed the police dispersal of the meeting CPJ. That evening, IBN 7 stringer Rajesh Verma was shot dead while covering the clashes.
The violence and the death toll
Army deployed, violence spreads to villages
Shoot-at-sight orders were issued. Officials confirmed 19 deaths, and eight columns of the army plus paramilitary companies were deployed. Violence spread to rural areas, and people fled to police stations PTI via Deccan Herald. Complaints later tried in court alleged that mobs attacked, looted or burned Muslim homes that day in villages including Kutba, Mohammadpur Raisingh and Bahawdi Scroll PTI via Business Standard.
Inquiry ordered, MLAs booked
The toll rose to 30. The state named Justice Vishnu Sahai to inquire, transferred senior officers and said 90 people had been arrested. Police booked BJP MLAs Hukum Singh, Bhartendu, Sangeet Som and Suresh Rana and former Congress MP Harendra Malik IANS.
Chief Minister visits
Akhilesh Yadav visited Kawal and camps when the toll stood at 47. About 40,000 people were sheltering in more than 30 camps. The SSP, Subhash Chandra Dubey, was suspended IANS via Business Standard.
Final figures vary: an official toll of 48 was cited in 2014, against media reports of more than 60 Deccan Chronicle. District officials told Al Jazeera 65 were killed and more than 600 homes and businesses damaged Al Jazeera. ANI and Scroll give 62 dead ANI Scroll. Displacement estimates run from more than 40,000 (official figures cited by PTI) to nearly 60,000 (Al Jazeera) PTI via Pioneer Al Jazeera.
Relief camps
The People's Union for Democratic Rights (PUDR), which visited eight camps in December 2013, said none of them had been set up or run by the government. It said food supply stopped in most camps after 1 October, and the administration was pressing families to leave PUDR.
Children died in the cold. The NHRC took notice of reports of at least 40 child deaths and issued notices to the state NHRC. A committee set up on Supreme Court directions reported 34 PUDR. Government's position The Muzaffarnagar DM denied that 40 had died, said blankets, quilts and milk powder had been supplied, and said most of the 27,000 displaced had been rehabilitated Al Jazeera.
Both accounts
Victims' and rights groups' account
PUDR said accused people were still free to intimidate victims and that the state under-reported how many camps were open PUDR. Lawyer Vrinda Grover said only one of seven women who went to the Supreme Court over rape saw her case through, and that one had to move to Delhi to withstand pressure Al Jazeera.
State government and police account
Government's position Chief Minister Akhilesh Yadav called it a conspiracy: "Political parties have joined hands to defame my government" IANS. He promised that anyone the inquiry found guilty would be jailed "howsoever powerful they might be", and announced Rs 10 lakh and a job for each victim's family IANS. Officials said fake videos and inflammatory text messages were circulating PTI.
The BSP, the BJP and the RLD demanded President's rule IANS. When the Adityanath government moved to withdraw cases in 2019, the BJP welcomed it, saying most of the cases were "politically motivated" Deccan Herald.
The Supreme Court and the Sahai commission
On 26 March 2014 a bench led by Chief Justice P Sathasivam held the state government "prima facie" responsible for negligence. It said the violence could have been prevented if intelligence agencies had alerted the district administration. It refused a CBI or SIT probe and ordered Rs 15 lakh for each family of the dead and Rs 5 lakh for rape survivors PTI via Deccan Herald.
Had the central and state intelligence agencies smelt these problems in advance and alerted the district administration, the unfortunate incidents could have been prevented.
Supreme Court, 26 March 2014 (PTI via Deccan Herald)
The one-man Sahai commission, set up on 9 September 2013, gave its 775-page report to Governor Ram Naik in September 2015 Gulf News. It was tabled in the Assembly on 6 March 2016 DailyO, but the full text was not made public Newslaundry. Its main findings, from the action taken report and press accounts:
- It listed 14 causes, with "failure of intelligence agencies" a major one DailyO.
- It placed "prima facie the main responsibility" on local intelligence inspector Prabal Pratap Singh, and the government's action taken report said he and SSP Dubey would face departmental action Newslaundry.
- It said leaders on both sides gave provocative speeches, focusing on BJP MLAs Sangeet Som and Suresh Rana and former BSP MP Kadir Rana, but recommended no action against politicians, saying cases had already been filed against them DailyO Newslaundry.
Claim · critics Newslaundry and DailyO said the report shielded the Samajwadi Party government. The Congress said the BJP and SP were in "cahoots" Newslaundry.
SIT cases, acquittals and convictions
A state special investigation team (SIT) recorded 510 cases against 1,480 people and filed chargesheets in 175. By September 2021, 1,117 accused had been acquitted in 97 cases for lack of evidence, and the prosecution had not appealed any of them. Chargesheets could not be filed in 20 hate speech cases because the state did not give sanction PTI via Deccan Herald. By October 2024, only 21 people had been convicted, in three cases PTI via Deccan Herald.
- Kawal killings: On 8 February 2019, seven Muslim men got life sentences for killing Sachin and Gaurav ANI.
- Kawal rioting: On 11 October 2022, BJP MLA Vikram Saini and 11 others got two years for rioting in Kawal after the cousins' cremation. Saini said he would appeal The Wire.
- Gang rape: On 9 May 2023, two men got 20 years. A third accused had died Al Jazeera.
- Acquittals: 16 accused in an April 2025 murder case; 22 in the Mohammadpur Raisingh case and 37 in the Kutba case, both in February 2026 PTI via Deccan Herald PTI Scroll.
- Muslim leaders' speech case: Charges framed against nine, including Saiduzzaman and Kadir Rana, in February 2025 PTI via Deccan Herald.
Case withdrawals
In February 2018, a delegation of khap leaders led by BJP MP Sanjeev Balyan asked Chief Minister Yogi Adityanath to withdraw cases against Hindus Scroll. In 2019 the state recommended withdrawing 38 cases against more than 100 people Deccan Herald.
On 25 March 2021 a court allowed withdrawal of a case against Suresh Rana, Sangeet Som, Bhartendu Singh and Sadhvi Prachi LiveLaw. In August 2021, amicus curiae Vijay Hansaria told the Supreme Court that the state had withdrawn 77 cases, some carrying life terms, with orders that gave "no reasons". He asked that the High Court examine them LiveLaw.
On 12 August 2026 the Muzaffarnagar MP/MLA court allowed withdrawal of the case over the late-August Nagla Mandaur gathering. The accused included minister Kapil Dev Agarwal, Sanjeev Balyan, Suresh Rana, Sadhvi Prachi and SP MP Harendra Malik. Reports put the number of accused at 20 (Outlook) or 25 (PTI) Outlook PTI via Pioneer. Judge Devendra Kumar Faujdar said there was no longer communal instability and the case was "completely motivated by political rivalry" Outlook.
Where things stand in 2026
The main prosecution of politicians over the late-August speeches is now closed by withdrawal. The case against nine Muslim leaders was at the charge stage in the latest reports reviewed. Trials in the remaining riot cases mostly continue to end in acquittals; in one 2024 case the defence said the complainant and witnesses turned hostile PTI via Deccan Herald. No High Court ruling on the 77 withdrawn cases was found in the reports reviewed.
Questions people ask
What started the Muzaffarnagar riots?
The killings of Shahnawaz, Sachin and Gaurav in Kawal village on 27 August 2013. The Sahai commission said the cause of the first attack, harassment or a motorcycle collision, was unclear, and that a fake video and rival meetings deepened tension before the 7 September mahapanchayat.
How many people died in the 2013 Muzaffarnagar riots?
Estimates range from 47 (the toll on 15 September) to 65 (district officials). An official figure of 48 was reported in 2014, while 62 is the figure most often cited.
What did the Vishnu Sahai commission find?
It blamed intelligence failure, a local intelligence inspector and some officials, and said leaders on both sides gave provocative speeches. It did not indict the state government or recommend action against politicians.
Has anyone been convicted for the Muzaffarnagar riots?
Very few. Seven men got life for the Kawal killings, a BJP MLA and 11 others got two years for rioting, and two men got 20 years for gang rape. More than 1,100 accused had been acquitted by 2021.
Were cases against BJP leaders withdrawn?
Yes. The state withdrew 77 cases, a court allowed one speech case to be withdrawn in March 2021, and another against BJP leaders and an SP MP was withdrawn on 12 August 2026.
Sources
- DailyO: Muzaffarnagar riots: Why Sahai report may spur fresh controversy, 7 Mar 2016
- Newslaundry: Muzaffarnagar riots: A case of intelligence failure in more ways than one, 11 Mar 2016
- Gulf News: Politicians named in Indian communal riots probe, 24 Sept 2015
- PTI via Deccan Herald: Eight years on, over 1,100 acquitted, just seven convicted, 7 Sept 2021
- IANS via Business Standard: In Muzaffarnagar, Akhilesh assures justice, announces compensation, 15 Sept 2013
- ANI via Business Standard: Life imprisonment to all 7 convicts, 8 Feb 2019
- PTI via Deccan Herald: Shoot orders in UP town as riot toll rises, 8 Sept 2013
- IANS via The Peninsula: Shoot-at-sight orders in riot-hit area, 10 Sept 2013
- CPJ: Indian TV reporter killed in clashes in Uttar Pradesh, 10 Sept 2013
- Deccan Chronicle: Riots in Muzaffarnagar, 27 Aug 2014
- Al Jazeera: Loi refugee camp, the epitome of misery, 7 Feb 2014
- Al Jazeera: India rape survivor in fear as attackers jailed, 1 June 2023
- PUDR: Status report on persons living in riot relief camps, Jan 2014
- NHRC: Notices on children's deaths in relief camps, Dec 2013
- PTI via Deccan Herald: SC blames UP for failure to prevent riots, 26 Mar 2014
- Deccan Herald: Yogi govt okays withdrawal of 38 cases, 7 Feb 2019
- Scroll: Adityanath government moves to withdraw cases against 3 BJP MLAs, 24 Dec 2020
- LiveLaw: Court allows withdrawal of case against Suresh Rana, Sangit Som, 28 Mar 2021
- LiveLaw: UP govt withdrew 77 cases without reasons, amicus tells SC, 25 Aug 2021
- The Wire: BJP MLA Vikram Saini, 11 others convicted, 11 Oct 2022
- PTI via Deccan Herald: Court acquits 7 men due to lack of evidence, 6 Oct 2024
- Siasat: 19 including Prachi, Narsinghanand charged, 5 Jan 2025
- PTI via Deccan Herald: Charges framed against 9 Muslim leaders, 13 Feb 2025
- PTI via Deccan Herald: Fast track court acquits 16, 22 Apr 2025
- PTI via Business Standard: UP court acquits 22 in murder, arson case, 8 Feb 2026
- Scroll: UP court acquits 37 citing lack of evidence, 25 Feb 2026
- Outlook: UP court drops case against BJP leaders, SP MP, 14 Aug 2026
- PTI via The Pioneer: Court drops case against 25 BJP leaders, Hindu activists, Aug 2026