Supreme Court of India
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTIONversusUNION OF INDIA & OTHERS
- Citation
- 2011 INSC 498
- Decided
- 18 July 2011
- Disposal
- Dismissed
- Bench
- DALVEER BHANDARI
Holding
The Court held that the interlocutory applications are an abuse of process, the 1996 judgment stands, and the respondents must pay Rs.37.385 crore with compound interest at 12% per annum from 4‑Nov‑1997 along with costs.
Summary
The Supreme Court examined a long‑running environmental dispute in which chemical industries in Bichhri, Rajasthan had been ordered in 1996 to pay Rs.37.385 crore for remediation of toxic sludge and to have their plants closed. Despite the judgment, the respondents repeatedly filed interlocutory applications to avoid payment, keeping the litigation alive for over fifteen years. The Court held that such applications constitute an abuse of the process of law and that a final Supreme Court judgment cannot be reopened by filing further interlocutory applications after review and curative petitions have been dismissed. Applying the polluter‑pays principle, the Court ordered the respondents to pay the assessed amount with compound interest at 12% per annum from 4‑Nov‑1997 and imposed heavy costs. The judgment also clarified the law on unjust enrichment, restitution and the power to award compound interest, emphasizing the sanctity of final judgments and the need to deter frivolous litigation.
Issues considered
- The interlocutory applications filed by the respondents amount to an abuse of the process of law.
- Whether a final Supreme Court judgment can be reopened by filing further interlocutory applications after review and curative petitions have been dismissed.
- Whether the respondents remain liable to pay the remediation cost of Rs.37.385 crore under the polluter‑pays principle.
- Whether the Court may award compound interest on the unpaid amount.
- Whether costs may be imposed to deter frivolous litigation.
- The applicability of unjust enrichment and restitution principles to the present facts.
Legislation cited
Subjects
abuse of processfinality of judgmentpolluter paysenvironmental lawunjust enrichmentrestitutioncompound interestcostslitigation abuse
Judgment
[2011) 9 S.C.R. 146
A INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION
v.
UNION OF INDIA & OTHERS
IA N0.36 AND IA N0.44
IN
B WRIT PETITION (C) No.967 OF 1989
JULY 18, 2011
[DALVEER BHANDARI AND H.L. DATTU, JJ.]
C ADMINISTRATION OF JUSTICE:
Abuse of process of law - Chemical industries causing
damage to the ecology by throwing untreated toxic sludge in
the open - Toxic substances percolated deep into the bowels }
of earth polluting the acquifers and the sub-terrain supply of
0
water as also rendering the soil unfit for cultivation - Supreme
Court by its judgment dated 13.2.1996 directing to close down
the industrial units and attachment of their plants, machinery
and all other immovable assets as also directing remediation
E at the cost of the polluters industrial units - By order dated
4.11.1997, the cost of remediation assessed to Rs.37.385
crores - Review and curative petitions dismissed - Several
interim applications filed by the industrial units also dismissed
- Again two I As filed by the industrial units- HELD: This is a
classic example of abuse of the process of law and is indeed
F a very serious matter concerning the sanctity and credibility
of the judicial system in general and of the apex Court in
particular - All the issues raised in the instant applications
had already been argued and determined by an authoritative
judgment of the Court - The applications have been filed to
G avoid liability to pay the amount for remediation and costs
imposed by the Court on the 'polluter pays' principle -
Permitting the parties to reopen the concluded judgment of
the Court by filing repeated interlocutory applications is clearly
an abuse of the process of law and would have far reaching
H 146
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 147
-~
..+,..,., UNION OF INDIA & ORS.
' ~
adverse impact on the administration of justice - The A
applicants had adequate opportunity and were heard by the
Court on a number of occasions - The applications being
dev.oid of any merit are dismissed with costs of Rs. 1O lakhs
.,, which would be utilised for carrying out remedial measures
\ in the affected area - Environmental Law - 'Polluter pays' B
principle - Costs.
Finality of judgment - Chemical industrial units causing
damage to ecology - Judgment by Supreme Court directing
closure- of industrial units and remediation at their cost -
Review and curative petitions dismissed - Industrial units c
keeping on filing interim applications - Judgment of the Court
not complied with - HELD: It should be presumed that every
proceeding has gone through infiltration several times before
-<. the decision of the apex Court - The controversy between the
parties must come to an end at some stage and the judgment D
of the apex Court must be permitted to acquire finality -
Various cases of different jurisdictions discussed and
exceptions indicated - A final judgment of the Court cannot
be reopened by merely filing interlocutory applications where
all possible legal remedies have been fully exhausted - In a E
country governed by the rule of law, finality of the judgment
is absolutely imperative and great sanctity is attached to the
finality of the judgment. Permitting the parties to reopen the
L concluded judgments of the Court by filing repeated
interlocutory applications is clearly an abuse of the process F
of law and would have far reaching adverse impact on the
administration of justice - The principles laid down in
judgments of various cosurts summed up - Maxim, 'interest
4,
republicae ut sit finis litium' - Explained - Environmental law.
G
UNJUST ENRICHMENT:
Unjust enrichment -Concept of - Discussed - Held:
Unjust enrichment of a person occurs when he has and
retains money or benefits which in justice and equity belong
to another - In the instant case, by the judgment dated H
148 SUPREME COURT REPORTS [2011] 9 S.C.R.
A-
A 13.2.1996 Supreme Court fixed the liability of the polluter
industries - It was on the lines of a preliminary decree - By
order dated 4. 11. 1997 the Court accepting the ascertainment,
fixed the amount at Rs. 37.385 crores - The liability to pay
arose on 4.11.1997 - This was in the lines of a final decree
B pursuant to a preliminary decree - Thus, the position of the
polluter industrial units was of a Judgment-debtor' - The
industrial units did not pay the amount but sought to postpone
the payment and in the meantime utilised the said amount
and thereby got themselves benefited - As a consequence,
C State authorities were deprived of the use of that amount for
taking remedial measures - It is settled principle that no one
can take advantage of his own wrong - Whatever benefits a
person has had or could have had by not complying with the
judgment must be disgorged and paid to the judgment-
D creditor and not allowed to be retained by the judgment-debtor
- This is the bounden duty and obligation of the court -
Environmental Law.
RESTITUTION:
E 'Unjust enrichment' and 'restitution' - Explained - Held:
The courts have wide powers to grant restitution, and more so
where it relates to misuse or non-compliance with court orders
- Even if no benefit had been retained or availed even then,
to do justice, the debtor must pay the money - It is not only
F disgorging all the benefits but making the creditor whole, i.e.,
ordering restitution in full, and not dependent on what he might
have made or benefited is what justice requires - The need
for restitution in relation to court proceedings gives full
jurisdiction to the court to pass appropriate orders that
G levelises - The court has only to levelise and not go further •
into the realm of penalty which will be a separate area for
consideration altogether - Environmental law.
COMPOUND INTEREST:
H Compound interest, keeping in view unjust enrichment
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 149
UNION OF INDIA & ORS.
and restitution ~ Discussed - Chemical industries causing A
damage to ecology - Supreme Court directing remediation
at the cost of polluter industries - On 4. 11. 1997 industries
directed to pay Rs.37.385 crores as remediation cost- Non-
compliance of the order - Held: To do complete justice,
prevent wrongs, remove incentive for wrongdoing or delay, B
and to implement in practical terms the concepts of Time
Value of Money, restitution and unjust enrichment, or to simply
leve/ise, interest has to be calculated on compound basis as
it also takes into account the inflationary trends - Some of
the statute law provide only for simple interest and not c
compound interest - It is a matter of law reform which the Law
Commission must take note of - Law Commission is
suggested to consider and recommend necessary
amendments in relevant laws - However, the power of the
court to order compound interest by way of restitution is not
0
fettered in any way - the applicants are directed to pay
Rs.37.385 crores along with compound interest@ 12% per
annum from 4. 11. 199 7 till the amount is paid/recovered -
Environmental law - Restitution - Unjust enrichment -
Legislation ,... Code of Civil Procedure, 1908 - s.34.
E
COSTS:
Imposition of realistic costs and punitive costs - Held: In
consonance with the principle of equity, justice and good
conscience, courts should ensure that legal process is not F
abused by litigants in any manner - It is the bounden duty of
courts to ensure that dishonesty and any attempt to abuse the
legal process must be effectively curbed and courts must
ensure that there is no wrongful, unauthorised or unjust gain
for anyone by the abuse of the process of court- Besides the G
realistic costs, courts wol.Jld be fully justified even imposing
punitive costs where legal process has been abused.
Writ Petition No.967 of 1989 was filed before the
Supreme Court, stating that the chemical industries,
namely, respondents no. 4 to 8 which were controlled by H
150 SUPREME COURT REPORTS [2011) 9 S.C.R.
A the same group, namely, Hindustan Agro Chemicals
Limited (respondent no. 4) set up in village Bichhri, of
district Udaipur in Rajashtan, had caused damage to the
ecology of the village and the surrounding area
inasmuch as the untreated toxic sludge had been thrown ,
s in the open in and around the complex by the said
industrial units, and the toxic substances had percolated
deep into the bowels of the earth polluting the aquifers
and the sub-terrain supply of water rendering the water
in the wells and the streams unfit for human
c consumption. It had even become unfit for cattle to drink
and for irrigating the land. The soil had become polluted
and unfit for cultivation, which was the main source of
livelihood for the villagers. The Court by its judgment
dated 13.2.1996, directed closure of all the plants and
factories of respondents no. 4 to 8 located in the village,
0
and attachment of their factories, plant, machinery and all
other immovable assets; and ap_:.lying the 'polluter pays'
principle, directed that the whole of the contaminated
area be developed as a green belt at the expense of
respondents no. 4 to 8. On the basis of the report of the
E NEERI, the extent of contamination done by the plants of
respondents 4 to 8 was evaluated; and, by order dated
4.11.1997 the industrial units were asked to pay Rs.
37 .385 crores towards the costs of remediation to the
government. The review the curative petitions were
F dismissed. However, the orders of the Court could not be
implemented till date because respondent nos. 4 to 8
kept on filing interlocutory applications.
Respondent no. 4 (HACL) filed the instant I.A. 36
G stating that as on date there was no pollution existing in
the area, no remediation was required to be done in the
area and, therefore, there was no necessity for the Court
to sell its assets in order to carry out any remediation in
the area. The applicant, in support of its case sought to
H introduce before the Court ·the opinions of various
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 151
UNION OF INDIA & ORS.
experts engaged by it for the purpose. It was prayed that A
the Court may pass the consequential order directing
forclosing the proceedings and to lift the attachment
order dated 13.2.1996. By I.A. No~ 44 respondent no. 4,
" prayed to seek an investigation into the reports of April,
-i
1994 prepared by the NEERI, which was employed by the 8
' R.S.P.C.B. to evaluate the extent of contamination done
by the applicant's· plants in the village concerned.
Dismissing the I. As., the Court
HELD: 1.1. This is a very unusual and extraordinary c
litigation where even after fifteen years of the final
judgment of this Court delivered on 13.2.1996, the
litigation has been deliberately kept alive by filing one
_.. interlocutory application or the other in order to avoid
compliance of the judgment. The said judgment of this D
Court has not been permitted to acquire finality till date.
This is a classic example how by abuse of the process
of law even the final judgment of the apex court can be
circumvented for more than a decade and a half. This is
indeed a very serious matter concerning the sanctity and E
credibility of the judicial system in general and of the
apex Court in particular. [p~ra 1] [170-D-F]
IAs 36 and 44
-f
1.2. The applications are a serious attempt to F
discredit the NEERI report of 1996 once again. The sole
object of filing of the application is to introduce before this
Court recent reports prepared by experts at the behest
of the applicant to demonstrate to the Court that before
... embarking upon remediation measures and for the said G
purposes putting the properties of the applicant to sale,
the status and conditions of water, soil and environment
in the area be reviewed with a view to realistically
ascertain whether any measures for remediation are
called for at all in the area and ifyes, then the nature and. H
152 SUPREME COURT REPORTS [2011] 9 S.C.R.
A the current cost of the same may be ascertained.
According to the applicant, the report of NEERI relied
upon by this Court was not the authentic report which
was officially prepared. There is a serious attempt to
reopen the entire case which stands fully concluded by
B the judgment of this Court delivered on 13.2.1996. It may
be pertinent to mention that even the review and curative
petitions have also been dismissed but the applicant did
not comply with the orders passed by this Court. The
report had been considered by this Court at length on its
C own merits and the observations of the Court on the
report are contained in the judgment pronounced by it on
13.2.1996. [para 29-31, 42, 49 and 64] [196-B-G; 199-G;
211-G; 220-G-H; 221-A]
1.3. All issues raised in the applications have been
D argued and determined by an authoritative judgment of
this Court in its judgment dated 13.2.1996. The
applications have been filed to avoid liability to pay the
amount for remediation and costs imposed by the Court
on the settled legal principle, i.e. "polluter pays" principle.
E The applicant is making an effort to avoid compliance of
the order/judgment of this Court delivered fifteen years
ago. The tendency must be effectively curbed. The
applicant cannot be permitted to avoid compliance of the
final order of this Court by abusing the legal process and
F keep the litigation alive. The Court must discourage such
tactics and ensure effective compliance of the Court's
order. It is also the obligation and bounden duty of the
court to pass such order where litigants are prevented
from abusing the system. [para 47-48) [211-8-F]
G
1.4. In its order dated 4.11.1997, this Court held that
the remedial measures taken on the basis of the NEERI
report shall be treated as final; and accepted the proposal
submitted by the Government of India for the purpose of
taking remedial measures by appointing National
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 153
....~ UNION OF INDIA & ORS. ·
Productivity Council as the Project Management A
Consultant and held that the Ministry of Environment and
Forests, Government of India has rightly made a demand
for Rs.37.385 crores. The applicants had adequate
·1
opportunity and were heard by the court at length on
" number of occasions and only thereafter the writ petition B
was disposed of. The applicants now want to reopen the
case by filing. these interlocutory applications. [para 84
and 156] [227-G-H; 228-A-B; 257-B]
1.5. The applicants certainly cannot be provided an
entry by back door method nor can the unsuccessful
c
litigants to be permitted to re-agitate and reargue their
cases. The applicants have filed these applications
merely to avoid compliance of the order of the court. The
-( applicants have been successful in their endeavour and
have not permitted the judgment delivered on 3.2.1996 to D
acquire finality till date. It is strange that other
respondents did not implement the final order of this.
Court without there being any order or direction of this
Court. These applications being devoid of any merit
deserve to be dismissed with heavy costs. [para 157] E
(257-D-E]
M. C. Mehta and Another v. Union of India and Others
.f (O/eum Gas Leak Case) 1987 (1) SCR 819 = (1987) 1 SCC
395; Rupa Ashok Hurra v. Ashok Hurra & Another 2002 (2) F
SCR 1006 = (2002) 4 SCC 388; Indian Council for Enviro-
Legal Action and others v. Union of India and Others 1996
(2) SCR 503 = (1996) 3 SCC 212; M.C. Mehta v. Kamal Nath
and others 2000 (1) Suppl. SCR 389 = (2000) 6 SCC 213 ·
.. - referred to . G
Minister for the environment and Heritage v. Greentree
(No.3) [2004] FCA 1317, United States v. Hooker Chems and
Plastics Corp., 722 F. Supp 960 (W.D.N.Y. 1989) - referred
to.
H
154 SUPREME COURT REPORTS (2011] 9 S.C.R.
A Public Liability Insurance Act, 1991111- referred to.
FINALITY OF JUDGMENT
,.
2.1. The maxim 'interest republicae ut sit finis litium'
says that it is for the public good that there be an end of
B litigation after a long hierarchy of appeals. At some stage,
,
it is necessary to put a quietus. It is not rare that in an
adversarial system, despite the judges of the highest
Court doing their best, one or more parties may remain
unsatisfied with the most correct decision. Opening door
C for a further appeal could be opening a flood gate which
will cause more wrQngs in the society at large at the cost
of rights. It should be presumed that every proceeding
has gone th"rough infiltration several times before the
decision of the apex Court. [para 114-115) [238-D·F]
D
2.2. Departure from the normal principle that the
court's judgment is final would be justified only when
compelling and substantial circumstances make it
necessary to do so. Such circumstances may be that a
E material statutory provision was not drawn to the court's
attention at the original hearing or a manifest wrong has
been done. Reviewing of various cases of different
jurisdictions lead to irresistible conclusion that though
the judgments of the apex Court can also be reviewed or
recalled but it must be done in extremely exceptional
F circumstances where there is gross violation of principles
of natural justice. It is reiterated that the finality of the
judgment of the apex.Court has great sanctity and unless
there are extremely compelling or exceptional
circumstances, the judgments of the apex Court should
G not be disturbed particularly in a case where review and
curative petitions have already been dismissed. [para 118,
153 and 219) [239-D-E; 255-D-E; 278-C]
Union of India & Another v. Raghubir Singh (Dead) by
H L.Rs. 1989 (3) SCR 316 = (1989) 2 SCC 754; Mohd. Aslam
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. · 155
UNION OF INDIA & ORS.
v. Union of India & Others 1996 (3) SCR 782 = (1996) 2 SCC A
749; Khoday Distilleries Ltd. and Another v. Registrar
General, Supreme Court of India 1995 (6) Suppl. SCR
190 = (1996) 3 SCC 114; Gurbachan Singh & Another v.
Union of India & Another 1996 (2) SCR 400 = (1996) 3 SCC
., 117; Babu Singh Bains and others v. Union of India and 8
' Others 1996 (6) Suppl. SCR 120 = (1996) 6 SCC 565; P.
Ashokan v. Union of India & Another 1998 (1) SCR 717 =
(1998) 3 SCC 56; Ajit Kumar Barat v. Secretary, Indian Tea
Association & Others (2001) 5 SCC 42; Naresh Shridhar
Mirajkar v. State of Maharashtra and another 1966 SCR
744 =AIR 1967 SC 1; Mr. "X" v. Hospital "Z" (2000)9 SCC C
439; Triveniben v. State of Gujarat 1989 (1) SCR 509 =
(1989) 1 SCC 678; Sumer v. State of U.P. 2005 (7) SCC 220
(2005) 7 SCC 220; Sita Ram Bhandar Society, New Delhi v.
Lieutenant Governor, Government of NCT, Delhi & Others
2009 (14) SCR 507 = (2009) 10 sec 501; M. 0
Nagabhushana v. State of Karnataka and others 2011 (2)
SCR 435 = (2011) 3 sec 408 - relied on.
J
Regina v. Gough, [1993] 1A.C.646; Dimes v. Proprietors
of Grand Junction Canal, (1852) 3 H.L. Cases 759; R v. Bow E
Street Metropolitan Stipendiary Magistrate, ex parte Pinochet
Ugarte (No 2) (1999) 2 W.L.R. 272; Regina (Edwards) v
Environment Agency and others [2010] UKSC 57, The (U.K.)
Supreme Court Rules, 2009, 2009 No. 1603 (L. 17);
Wewaykum Indian Band v. Canada [2003) 2 SCR 259; Taylor F
Ventures Ltd. (Trustee of) v. Taylor 2005 BCCA 350; State
Rail Authority of New South Wales v. Code/fa Constructions
Propriety Limited (1982) 150 CLR. 29; Bailey v. Marinoff
(1971) 125 CLR 529; DJL v. Central Authority (2000) 170
ALR 659; Lexcray Pty. Ltd. v. Northern Territory of Australia G
2003 NTCA 11; United States of America v. Ohio Power
Company 353 US 98 (1957), 149; Raymond G. Cahill v. The
New York, New Haven and Hartford Railroad Company 351
US 183; Re Transferred Civil Servants (Ireland)
Compensation (1929) AC 242, 248-52; and State Rail
H
156 SUPREME COURT REPORTS [2011] 9 'S.C.R.
A Authority NSW v Code/fa Construction Pty Ltd (1982) HCA
51 . (1982) 150 CLR 29, Smith v NSW Bar
Association (1992) 176 CLR 252; and Autodesk Inc v
Dyason (No 2) (1993) HCA 6 : (1993) 176 CLR 300 -
referred to.
I
B 2.3. However, a case stands on different footing
where the aggrieved party filing a review or curative
petition was not a party to the lis but the judgment
adversely affected his interest or he was party to the lis
was not served with notice of the proceedings and the
C matter proceeded as if he had notice. [para 155) [255-G)
State of M.P. v. Sugar Singh & Others 2010 (3) SCR 159
- relied on
}
2.4. This Court has consistently taken the view that
0
the judgments delivered by this Court while exercising its
jurisdiction under Article 136 of the Constitution cannot
be reopened in a writ petition filed under Article 32 of the
Constitution. In view of this legal position, a final
judgment of this Court cannot be reopened by merely
E filing interlocutory applications where all possible legal
remedies have been fully exhausted. In the facts of the
instant case, it becomes abundantly clear that this Court
delivered final judgment in this case way back in 1996.
The said judgment has not been permitted to acquire
F finality because the respondent Nos. 4 to 8 had filed
multiple interlocutory applications and has ensured non-
compliance of the judgment of this Court. It may be
pertinent to mention that even after dismissal of review
and the curative petition on 18.7.2002, the applicants
G (respondent Nos. 4 to 8) have been repeatedly filing one
petition or the other in order to keep the litigation alive. It
is indeed astonishing tha.t the orders of this Court have
not been implemented till date. The applicants have made
all possible efforts to avoid compliance of the judgment
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION· v. 157
-<,,.
UNION OF INDIA & ORS.
of this Court. This is a clear case of abuse of process of A
the court. [para 220] [278-D-F; 280-D-E]
2.5. The controversy between the parties must come
to an end at some stage and the judgment of this Court
1, must be permitted to acquire finality. It would hardly be B
't
proper to permit the parties to file application after
application endlessly. In a country governed by the rule
of law, finality of the judgment is absolutely imperative
and great sanctity is attached to the finality of the
judgment. Permitting the parties to reopen the concluded
judgments of this Court by filing repeated interlocutory
c
applications is clearly an abuse of the process of law and
would have far reaching adverse impact on the
administration of justice. [para 115] [238-F-H; 239-A]
-'
Manganese Ore (India) Ltd. v. The Regional Assistant D
Commissioner of Sa/es Tax, Jabalpur 1976 ( 3 ) SCR 99 =
(1976) 4 SCC 124; Green View Tea & Industries v. Collector,
Golaghat and Another (2002) 1 SCC 109; Mis Northern India
Caterers (India) Ltd. v. Lt. Governor of Delhi 1980 (2) SCR
650 =(1980) 2 sec 167 - relied on E
2.6. The principles laid down in the judgments of
various courts, can be enumerated as follows:
·~ (i) The judgment of the apex Court has great sanctity
and unless there are extremely compelling, F
overriding and exceptional circumstances, the
judgment of the apex Court should not be disturbed,
particularly, in a case where review and curative
petitions have already been dismissed
.... G
(ii) The exception to this general rule is where in the
proceedings the judge concerned failed to disclose
the connection with the subject matter or the parties
giving scope of an apprehension of bias and the
judgment adversely affected the petitioner. H
158 SUPREME COURT REPORTS [2011] 9 S.C.R.
A (iii) The other exception to the rule is that the
circumstances incorporated in the review or curative
petition are such that they must inevitably shake
public confidence in the integrity of the
administration of justice if the judgment or order is
B allowed to stand. [para 221] [278-G-H; 279-A-C]
These categories are illustrative and not exhaustive
but only in such extremely exceptional circumstances the
order can be recalled in order to avoid irremedial
C injustice. [para 222] [279-C-D]
UNJUST l:NRICHMENT
3.1. 'Unjust enrichment' has been defined by the
court as the unjust retention of a benefit to the loss of
0 another, or the retention of money or property of another ~
against the fundamental principles of justice, equity and
good conscience. A person is enriched if he has received
a benefit, and he is unjustly enriched if retention of the
benefit would be unjust. Unjust enrichment of a person
E occurs when he has and retains money or benefits which
in justice and equity belong to another. [para 171] [260-
C-D]
Black's Law Dictionary, Eighth Edition (Bryan A. Gamer)
at page 1573;_"Justice, Courts and Delays" by Dr. Arun
F Mohan - referred to.
3.2. By the judgment dated 13.02.1996 this court fixed
the liability but did not fix any specific amount, which was
ordered to be ascertained. It was on the lines of a
G preliminary decree in a suit which determines the liability, ..
but leaves the precise amount to be ascertained in
further proceedings and upon the process of
ascertainment being completed, a final decree for
payment of the precise amount is passed. By judgment
H dated 4.11.1997 this Court, accepting the ascertainment,
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 159
.,... -\,. UNION OF INDIA & ORS .
fixed the amount i.e. Rs.37.385 crores. The exact liability A
was quantified which the applicant- HACL was under an
obligation to pay. The liability to pay arose on that
particular date i.e. 4.11.1997. This was in the lines of a final
,. decree pursuant to a preliminary decree. On that
• judgment being passed, the position of the applicant in B
I.A. No.44 was that of 'judgment-debtor' and the applicant
became liable to pay forthwith. (para 159-162] [257-F-H;
258-A-F]
3.3. Admittedly, the amount has not been paid.
Instead, the applicants sought to postpone the payment c
by raising various challenges in this Court and in the
meantime 'utilised' that money, i.e., benefited. As a
~
consequence, the non-applicants (respondents-states
herein) were 'deprived' of the use of that money for
taking remedial measures. The challenge has now - D
nearly 14 years later - been finally decided against them.
It is settled principle of law that no one can take
advantage of his own wrong. [para 163 and 165) [258-F-
G; 259-0]
E
3.4. Unless courts disgorge all benefits that a party
availed by obstruction or delays or non-compliance,
there will always be incentive for non compliance.
i. Whatever benefits a person has had or could have had
by not complying with the judgment must be disgorged
F
and paid to the judgment creditor and not allowed to be
retained by the judgment-debtor. This is the bounden
duty and obligation of the court. In fact,· it has to be
looked from the position of the creditor. Unless the
• deprivation by reason of delay is fully restituted, the
creditor as a beneficiary remains a loser to the extent of G
the un-restituted amount. [para 167-168) [259-F-G]
Schockv. Nash, 732 A.2d 217, 232-33 (Delaware. 1999).
USA); Fibrosa v. Fairbairn, [1942) 2 All ER 122; Nelson v.
Larholt [1947) 2 All ER 751 - referred to. H
160 SUPREME COURT REPORTS [2011] 9 S.C.R.
A 3.5. In order to neutralize any unjust enrichment and
undeserved gain made by the litigants, while adjudicating,
the courts must keep the following principles in view:
(i) It is the bounden duty and obligation of the
court to neutralize any unjust enrichment and
B undeserved gain made by any party by
invoking the jurisdiction of the court.
(ii) When a party applies and gets a stay or
injunction from the court, it is always at the
c risk and responsibility of the party applying. An
order of stay cannot be presumed to be
conferment of additional right upon the
litigating party.
(iii) Unscrupulous litigants be prevented from
D
taking undue advantage by invoking
jurisdiction of the Court.
(iv) A person in wrongful possession should not
only be removed from that place as early as
E possible but be compelled to pay for wrongful
use of that premises fine, penalty and costs.
Any leniency would seriously affect the
credibility of the judicial system.
,
F (v) No litigant can derive benefit from the mere
pendency of a case in a court of law.
(vi) A party cannot be allowed to take any benefit
of his own wrongs.
G (vii) Litigation should not be permitted to turn Into
•
a fruitful industry so that the unscrupulous
litigants are encouraged to invoke the
jurisdiction of the court.
(viii) The institution of litigation cannot be permitted
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 161
UNION OF INDIA & ORS.
to confer any advantage on a party by delayed A
action of courts. [para 223] [279-D-H; 280-A-D]
RESTITUTION
4.1. Unjust enrichment is basic to the subject of
restitution, and is indeed approached as a fundamental 8
principle thereof. The terms 'unjust enrichment' and
'restitution' are usually linked together, and restitution is
frequently based upon the theory of unjust enrichment.
However, although unjust enrichment is often referred to
or regarded as a ground for restitution, it is perhaps more C
accurate to regard it as a prerequisite, for, usually there
can be no restitution without unjust enrichment. T h e
terms 'unjust enrichment' and 'restitution' are like the two
shades of green - one leaning towards yellow and the
other towards blue. With restitution, so long as the D
deprivation of the other has not been fully compensated
for, injustice to that extent remains. Which label is
appropriate under which circumstances would depend
on the facts of the particular case before the court. The
courts have wide powers to grant restitution, and more E
so where it relates to misuse or non-compliance with
court orders. [para 179 and 182] [262-F-G; 263-D]
South-Eastern Coalfields 2003 (4) Suppl. SCR 651 =
2003 (8) SCC 648; Sahakari Khand Udyog Manda/ Ltd vs F
Commissioner of Central Excise & Customs 2005 (2 )
SCR 606 =(2005) 3 sec 738 - relied on
American Jurisprudence 2d. Volume 66 Am Jur 2d -
referred to.
G
4.2. Restitution and unjust enrichment, along with an
overlap, have to be viewed with reference to the two
stages, i.e., pre-suit and post-suit. In the former case, it
becomes a substantive law (or common law) right that
the court will consider; but in the latter case, when the H
162 SUPREME COURT REPORTS [2011] 9 S.C.R.
A parties are before the court and any act/omission, or
simply passage of time, results in deprivation of one, or
unjust enrichment of the other, the jurisdiction of the
court to levelise and do justice is independent and must
be readily wielded, otherwise it will be allowing the
B court's own process, along with time delay, to do
injustice. For this second stage (post-suit), the need for
restitution in relation to court proceedings, gives full
jurisdiction to the court, to pass appropriate orders that
levelise. Only the court has to levelise and not go further
c into the realm of penalty which will be a separate area for
consideration altogether. [para 183-184) (263-F-H; 264-A]
Bank of America Canada vs Mutual Trust Co. (2002) 2
SCR 601 = 2002 SCC 43 - referred to.
>
D Sempra Metals Ltd (formerly Metal/gesel/schaft Limited)
v Her Majesty's Commissioners of Inland Revenue and
= =
Another [2007] UKHL 34 [2007] 3 WLR 354 [2008] 1 AC
=
561 (2007) All ER (D) 294 - referred to.
E 4.3. The liability may also be understood in the form
of recovery of a bank loan. If payment of an amount
equivalent of what the ledger account in the bank on a
clean loan would have shown as a debit balance today
is not paid and something less than that is paid, that
differential or shortfall is what there has been : (1) failure >
F to restitute; (2) unfair gain by the non-complier; and (3)
provided the incentive to obstruct or delay payment.
Unless this differential is paid, justice has not been done
to the creditor. It only encourages non-compliance and
litigation. Even if no benefit had been retained or availed
•
G even then, to do justice, the debtor must pay the money.
This is not only disgorging all the benefits but making the
creditor whole i.e. ordering restitution in full and not
dependent on what he might have made or benefitted is
what justice requires. [para 188-190) 264-G-H; 265-A-C]
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 163
· UNION OF INDIA & ORS.
Grindlays Bank Limited vs Income Tax Officer, Calcutta A
(1980) 2 SCC 191; Ram Krishna Verma and Others vs State
of U.P. and Others 1992 (2) SCR 378 = (1992) 2 SCC Kavita
Trehan vs Balsara Hygiene Products 1994 (1) Suppl. SCR
340 = (1994) 5 SCC 380; Marshall Sons & Co. (I) Ltd. v. Sahi
1
• Oretrans (P) Ltd. and Another 1999 (1) SCR 311 = (1999) 2 B
sec 325 - relied on
Padmawati vs Harijan Sewak Sangh - CM (Main) No.449
of 2002 decided by the Delhi high Court on 6.11.2008,
approved .
c
Compound Interest
4.4. 'Compound interest' is 'interest paid on both the
. principal and the previously accumulated interest.' It is a
method of arriving at a figure which nears the 'Time Value o
of Money'. Compound interest is a norm for all
commercial transactions. [para 205-206) [271-E-F]
Alok Shanker Pandey vs Union of India & Others 2007
(2 ) SCR 737 = (2007) 3 sec 545 - relied on.
E
Black's Law Dictionary, Eighth Edition (Bryan A.
Garner) page 830;and 'The Principles of the Law of
Restitution" (at pp26-27) by Graham Virgo - referred to.
4.5. To do complete justice, prevent wrongs, remove F
incentive for wrongdoing or delay, and to implement in
practical terms .the concepts of Time Value of Money,
restitution and unjust enrichment- or to simply levelise
- a convenient approach is calculating interest. But here
:.. interest has to be calculated on compound_ basis - and G
not simple - for the latter leaves much uncalled for
benefits in the hands of the wrongdoer. [para 202) [270-
G-H; 271-A]
4.6. Further, a related concept of. inflation is also to
be kept in mind and the concept of compound interest H
164 SUPREME COURT REPORTS [2011] 9 S.C.R.
A takes into account, by reason of prevailing rates, both
these factors, i.e., use of the money and the inflationary
trends, as the market forces and predictions work out.
[para 203) [271-B]
Marshall Sons & Co. (I) Ltd. v. Sahi Oretrans (P) Ltd. and
8
Another 1999 (1) SCR 311 = (1999) 2 SCC 325; Ouseph
Mathai and others v. M. Abdul Khadir 2001 (5) Suppl. SCR
=
118 (2002) 1 SCC 319; South Eastern Coalfields Limited
v. State of M.P. and others 2003 (4) Suppl. SCR 651 =
C (2003) 8 SCC 648; Amarjeet Singh and others v. Devi Ratan
and others 2009 (15) SCR 1010 = (2010) 1 SCC 417;
Kalabharati Advertising v. Hemant Vimalnath Narichania and
others 2010 (10) SCR 971 = (2010) 9 sec 437 - relied on.
LEGAL POSITION UNDER THE CODE OF CIVIL
D PROCEDURE
4.7. One reason the law has not developed on this is
because of the wording of s. 34 of the Code of Civil
Procedure, 1908 which still proceeds on the basis of
simple interest. In fact, it is this difference which prompts
E much of our commercial litigation because the debtor
feels - calculates and assesses - that to cause litigation
and then to contest with obstructions and delays will be
beneficial because the court is empowered to allow only
simple interest. A case for law reform on this is a separate ,
F issue. [para 191) [256-E-F]
4.8. Some. of our statute law provide only for simple
interest and not compound interest. In those situations,
the courts are helpless and it is a matter of law reform
which the Law Commission must take note and more so,
G because the serious effect it has on administration of
justice. The Law Commission is requested to consider
and recommend necessary amendments in relevant laws.
However, the power of the court to order compound
interest by way of restitution is not fettered in any way.
H [para 204) [271-C-D]
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 165
UNION OF INDIA & ORS ..
4.9. In the point under consideration, which does not A
arise from a suit for recovery under the Code of Civil
Procedure, the inherent powers of the Court and the
prJnciples of justice and equity are each sufficient to
enable an order directing payment of compound interest.
The power to order compound interest as part of B
restitution cannot be disputed, otherwise there can never
be restitution. [para 192) [265-G]
4.10. The Court in its order dated 04.11.1997 while
accepting the report of the MOEF directed the applicant C
·- M/s Hindustan Agro Chemical Ltd. to pay a sum of
Rs.37.385 crores towards the costs of remediation. The
amount which ought to have been deposited way back
in 1997 has yet not been deposited by keeping the
litigation alive. This Court is clearly of the opinion that the
applicant-industry concerned must deposit the amount 0
as directed by this Court by order dated 4.11.1997 with
compound interest. The applicant-industry has
deliberately not complied with the orders of this court
since 4.11.1997. Thousands of villagers have been
adversely affected because no effective remedial steps E
have been taken so far. The applicant-industry has
succeeded in their design in not complying with the
court's order by keeping the litigation alive.
Consequently, the applicant-industry is directed to pay
Rs.37.385 crores along with compound interest@ 12% F
per annum from 4.11.1997 till the amount is paid or
recovered. [para 225· 227) [280-F-H; 281-A-C]
Costs:
5.1. In consonance with the principle of equity, justice G
and good con!!cience judges should ensure that the legal
process is not abused by the litigants in any manner. The
court should never permit a litigant to perpetuate illegality
by abusing the legal process. It is the bounden duty of
the court to ensure that dishonesty and any attempt to H
166 SUPREME COURT REPORTS [2011] 9 S.C.R.
.).
A abuse the legal process must be effectively curbed and
the court must ensure that there is no wrongful,
unauthorized or unjust gain for anyone by the abuse of
the process of the court. One way to curb this tendency
is to impose realistic costs, which the respondent or the
B defendant has in fact incurred in order to defend himself
in the legal proceedings. The courts would be fully
justified even imposing punitive costs where legal
process has been abused. No one should be permitted
to use the judicial process for earning undeserved gains
c or unjust profits. The court must effectively discourage
fraudulent, unscrupulous and dishonest litigation.(para
216] (276-G-H; 277-A-B]
5.2. The court's constant endeavour must be to
ensure that everyone gets just and fair treatment. The
D court while rendering justice must adopt a pragmatic
approach and in appropriate cases realistic costs and
compensation be ordered in order to discourage
dishonest litigation. The object and true meaning of the
concept of restitution cannot be achieved or
E accomplished unless the courts adopt a pragmatic
approach in dealing with the cases. [para 217] [277-C-D]
Ramrameshwari Devi and Others v. Nirma/a Devi and
Others 2011(6) Scale 677 - relied on.
F 5.3. Even after final judgment of this Court, the
litigation has been kept alive for almost 15 years. The
respondents have been compelled to defend this
litigation for all these years. Enormous court's time has
been wasted for all these years. On consideration of the
G totality of the facts and circumstances of this case, the
applicant-industry is directed to pay costs of Rs.10 lakhs
in both the Interlocutory Applications. The amount of
costs would also be utilized for carrying out remedial
measure in village Bichhri and surrounding areas in
H Udaipur District of Rajasthan on the direction of the
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 167
UNION OF INDIA & ORS.
·•-..
authorities concerned. [para 228-229) [281-D-F] A
Case Law Reference:
1987 (1) SCR 819 referred to para 21
2002 (2) SCR 1006 referred to para 66 8
'~
1996 (2) SCR 503 referred to para 75 .
2000 (1) Suppl. SCR 389 referred to para 102
[2004) FCA 1317 referred to para 104
c
722 F. Supp 960
(W.D.N.Y. 1989) referred to para 106
.... 1976 (3) SCR 99 relied on para 116
~
2002 (1) sec 109 relied on para 117 D
1980 (2) SCR 650 relied on para 118
1989 (3) SCR 316 relied on para 119
1996 (3) SCR 782 relied on para 120 E
1995 (6) Suppl. SCR 190 ·relied on para 121
1996 (2) SCR 400 relied on para 122
1996 (6) Suppl. SCR,120 relied on para 123
F
1998 (1) SCR 717 relied on para 124
2001 (5) sec 42 relied on Para 125
1966 SCR 744 relied on para 125
G
(2000)9 sec 439 relied on para 127
1989 (1) SCR 509 relied on para 128
2005 (7) sec 220 relied on para 130
H
168 SUPREME COURT REPORTS [2011] 9 S.C.R.
.,).
A 2009 (14) SCR 507 relied on para 131
2011 (2) SCR 435 relied on para 132
[1993] 1 A.C. 646 referred to para 136
(1852) 3 H.L. Cases 759 referred to para 136
B
(No 2) (1999) 2 W.L.R. 272 referred to para 137
2010] UKSC 57 referred to para 139
2009 No. 1603 (L. 17) referred to para 139
c [2003] 2 SCR 259 referred to para 141
2005 BCCA 350 referred to para 141
(1982) 150 CLR 29 referred to para 144
~
D (1971) 125 CLR 529 referred to para 145
(2000) 170 ALR 659 referred to para 146
2003 NTCA 11 referred to para 147
E 353 us 98 (1957) referred to para 148
351 us 183 referred to para 149
(1929) AC 242, 248-52 referred to para 151
(1982) HCA 51 referred to para 151
F
(1992) 176 CLR 252 referred to para 151
(No 2) (1993) HCA 6 :
(1993) 176 CLR 300 referred to para 152
G
2010 (3 ) SCR 159 relied on para 155
732 A.2d 217, 232-33
(Delaware. 1999). USA referred to para 172
H 1942} 2 All ER 122 referred to para 174
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 169
J.. UNION OF INDIA & ORS.
[1947) 2 All ER 751 referred to para 175 1 A
· 2003 (4) Suppl. SCR 651 relied on para 180
2005 (2) SCR 606 relied on para 180
;
2007) UKHL 34=[2007) 3 WLR 354=[2008] 1 AC 561 =
~ B
[2007) All ER (D) 294 referred to para 184
[2002) 2 SCR 601 referred to para 186
1980 (2) SCR 765 relied on· para 193
' c
1992 (2) SCR 378 relied on para 194
1994 (1) Suppl. SCR 340 relied on para 195
"" 1999 (1) SCR 311 relied on para 196
....
'11
CM (Main) No.449 of 2002 decided D
by the Delhi High Court
on 6.11.2008, approved para 197
2007 (2) SCR 737 relied on para 201 E
1999 (1) SCR 311 relied on para 208
2001 (5) Suppl. SCR 118 relied on para 209
... 2003 (4 ) Suppl. SCR 651 relied on para 210
F
2009 (15) SCR 1010 relied on para 213
2010 (10 ) SCR 971 relied on para 214
2011 (6) Scale 677 relied on para 217
G
CIVIL ORIGINAL JURISDICTION : I.A. No. 36 & 44 .
.,
Writ Petition (Civil) No. 967 of 1989.
H
170 SUPREME COURT REPORTS [2011] 9 S.C.R.
A Under Article 32 of the Constitution of India.
Gopal Subramanium, SG, Dr, Manish Singhvi, Shanti
Bhushan, Vikas Singh, Dr. Rajeev Dhawan, M.C. Mehta, K.R.
Rajasekaran Pillai, Prashant Bhushan, Rohit Kumar Singh,
Amrita Narayan, Udita Singh, Satyakam, B.V. Bairam Das, K.B.
8
Rohtagi, Manoj Aggarwal, Aparna Rohatgi Jain, Mahesh
Kasana, Devander Kr. Devesh, R. Gopalakrishnan, S.K.
Dhingra, Milind Kumar (for Aruneshwar Gupta), T. Raja Shail
Kumar Dwivedi, B. Vijayalkshmi Menon, Dinesh Mathur,
C Saurabh Jain, Rameshwar Prasad Goyal, D.S. Mahra for the
appearing parties.
The Judgment of the Court was delivered by
DALVEER BHANDARI, J. 1. This is a very unusual and
0 extraordinary litigation where even after fifteen years of the final
judgment of this court (date of judgment 13th February, 1996)
the litigation has been deliberately kept alive by filing one
interlocutory application or the other in order to avoid
compliance of the judgment. The said judgment of this Court
E has not been permitted to acquire finality till date. This is a
classic example how by abuse of the process of law even the
final judgment of the apex court can be circumvented for more
than a decade and a half. This is indeed a very serious matter
concerning the sanctity and credibility of the judicial system in
general and of the apex court in particular. '
F
2. An environmentalist organisation brought to light the
sufferings and woes of people living in the vicinity of chemical
industrial plants in India. This petition relates to the suffering of
people of village Bichhri in Udaipur District of Rajasthan. In the
G Writ Petition No.967 of 1989, it was demonstrated how the
conditions of a peaceful, nice and small village of Rajasthan
were dramatically changed after respondent no. 4 Hindustan
Agro Chemicals Limited started producing certain chemicals
like Oleum (concentrated form of sulphuric acid) and Single
H Super Phosphate. Respondent numbers 4 to 8 are controlled
~.
INQIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 171
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
;<..
by the same group and they were known as chemical A
industries. The entire chemical industrial complex is located
within the limits of Bichhri village, Udaipur, Rajasthan. Pursuit
'
~ of profit of entrepreneurs has absolutely drained them of any
feeling for fellow human beings living in that village.
t B
t 3. The basic facts of this case are taken from the judgment
delivered in the Writ Petition No.967 of 1989. In the beginning
of the judgment of this court delivered on February 13, 1996, it
is observed as under:
"It highlights the disregard, nay, contempt for law and c
lawful authorities on the part of some among the emerging
breed of entrepreneurs, taking advantage, as they do, of
the country's need for industrialisation and export earnings.
• Pursuit of profit has absolutely drained them of any feeling
._
for fellow human beings - for that matter, for anything else . D
And the law seems to have been helpless. Systemic
defects? It is such instances which have led many people
in this country to believe that disregard of law pays and
that the consequences of such disregard will never be
visited upon them -particularly, if they are men with means. E
Strong words indeed - but nothing less would reflect the
deep sense of hurt, the hearing of this case has instilled
in us."
4. It seems that the court was prophetic when it made
4, F
observation that at times men with means are successful in
avoiding compliance of the orders of this court. This case is a
classic illustration where even after decade and a half of the
pronouncement of the judgment by this court based on the
principle of 'polluter pays', till date the polluters (concerned
.... G
industries in this case) have taken no steps to ecologically
restore the entire village and its surrounding areas or complied
with the directions of this court at all. The orders of this court
were not implemented by keeping the litigation alive by filing
interlocutory and interim applications even after dismissal of the
H
172 SUPREME COURT REPORTS (2011] 9 S.C.R.
A writ petition, the review petition and the curative petition by this
court.
5. In the impugned judgment, it is mentioned that because
of the pernicious wastes emerging from the production of 'H'
B acid, its manufacture is stated to have been banned in the
western countries. But the need of 'H' acid continues in the West
and that need is catered to by the industries like the Silver
Chemicals and Jyoti Chemicals in this part of the world.
6. In the impugned judgment, it is also mentioned that since
C the toxic untreated waste waters were allowed to flow out freely
and because the untreated toxic sludge was thrown in the open
in and around the complex, the toxic substances have
percolated deep into the bowels of the earth polluting the
aquifers and the sub-terrain supply of water. The water in the
D wells and the streams has turned dark and dirty rendering it
unfit for human consumption. It has become unfit for cattle to
drink and for irrigating the land. The soil has become polluted
rendering it unfit for cultivation, which is the main source of
livelihood for the villagers. The resulting misery to the villagers
E needs no emphasis. It spreads disease, death and disaster in
the village and the surrounding areas. This sudden degradation
of earth and water had an echo in Parliament too and the
concerned Minister said that action was being taken, but
nothing meaningful was done on the spot. The villagers then
F rose in virtual revolt leading to the imposition of Section 144 •
of the Criminal Procedure Code by the District Magistrate in
the area and the closure of Silver Chemicals in January, 1989.
It is averred by the respondents that both the units, Silver
Chemicals and Jyoti Chemicals have stopped manufacturing
G 'H' acid since January, 1989 and are closed. We may assume
it to be so, yet the consequences of their action remain - the
sludge, the long-lasting damage to earth, to underground water,
to human beings, to cattle and the village economy.
7. The Rajasthan State Pollution Control Board (for short
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 173
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
J..
"R.S.P.C.B.") in pursuance of the show cause notice filed a A
counter affidavit and stated the following averments:
(a) Re.: Hindustan Agro Chemicals Limited
(respondent for short) [R-4]: The unit obtained 'No-
y Objection Certificate' from the R.S.P.C.B. for B
I
• manufacturing sulphuric acid and Aluminum
sulphate. The Board granted clearance subject to
certain conditions. Later 'No-Objection Certificate'
was granted under the Water [Prevention and
Control of Pollution] Act, 1974 [Water Act] and Air
(Prevention and Control of Pollution) Act, 1981 [Air C
Act], again subject to certain conditions. However,
this unit changed its product without clearance from
the Board. Instead of sulphuric acid, it started
manufacturing Oleum and Single Super Phosphate
[S.S.P.]. Accordingly, consent was refused to the D
unit on February 16, 1987. Directions were also
issued to close down the unit.
(b) Re.: Silver Chemicals [R-5]: This unit was
promoted by the fourth respondent without obtaining E
'No-Objection Certificate' from the Board for the
manufacture of 'H' acid. The waste water generated
from the manufacture of 'H' acid is highly acidic and
contains very high concentration of dissolved solids
along with several dangerous pollutants. This unit F
was commissioned in February, 1988 without
obtaining the prior consent of the Board and
accordingly, notice of closure was served on April
30, 1988. On May 12, 1988, the unit applied for
consent under Water and Air Acts which was G
refused. The Government was requested to issue
directions for cutting off the electricity and water to
this unit but no action was taken by the Government.
The unit was found closed on the date of inspection,
viz., October 2, 1989.
H
174 SUPREME COURT REPORTS [2011] 9 S.C.R.
_i
A (c) Re.: Rajasthan Multi Fertilizers [R-6]: This unit was
installed without obtaining prior 'No-Objection
Certificate' from the Board and without even
applying for consent under Water and Air Acts.
Notice was served on this unit on February 20,
B 1989. In reply thereto, the Board was informed that
the unit was closed since last three years and that
...,
electricity has also been cut off since February 12,
1988.
(d) Re.: Phosphates India [R-7]: This unit was also
c established without obtaining prior 'No-Objection
Certificate' from the Board nor did it apply for
consent under the Water and Air Acts. When notice
dated February 20, 1989 was served upon this unit,
D
the Management replied that this unit was closed
for a long time.
..
(e) Re.: Jyoti Chemicals [R-8]: This unit applied for
'No-Objection Certificate' for producing ferric alum.
'No-Objection Certificate' was issued imposing
E various conditions on April 8, 1988. The 'No-
Objection Certificate' was withdrawn on May 30,
1988 on account of non-compliance with its
conditions. The consent applied for under Water
and Air Acts by this unit was also refused.
F Subsequently, on February 9, 1989, the unit applied
for fresh consent for manufacturing 'H' acid. The
consent was refused on May 30, 1989. The Board
has been keeping an eye upon this unit to ensure
that it does not start the manufacture of 'H' acid. On
G October 2, 1989, when the unit was inspected, it
was found closed.
8. The Government of Rajasthan filed counter-affidavit on
January 20, 1990. The Para 3 of the affidavit reads as under:-
H "That the State Government is now aware of the pollution
f
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 175
-J,..
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
of under-ground water being caused by liquid effluents A
from the firms arrayed as Respondent Nos. 4 to 8 in the
writ petition. Therefore, the State Government has initiated
action through the Pollution Control Board to check further
r spread of pollution."
I
B
9. The State Government stated that the water in certain
wells in Bichhri village and some other surrounding villages has
become unfit for drinking for human beings and cattle, though
in some other wells, the water remains unaffected.
10. The Ministry of Environment and Forests, Government c
of India (for short 'MOEF') in its counter affidavit filed on
February 8, 1990 stated that M/s. Silver Chemicals was merely
. granted a Letter of Intent but it never applied for conversion of
._
the Letter of Intent into industrial licence. Commencing
production before obtaining industrial licence is an offence D
under Industries [Development and Regulation] Act, 1951. So
far as M/s. Jyoti Chemicals is concerned, it is stated that it has
not approached the Government at any time even for a Letter
of Intent. The Government of India stated that in June, 1989, a
study of the situation in Bichhri village and some other E
surrounding villages was conducted by the Centre for Science
and Environment. A copy of their report was enclosed with the
counter affidavit. The report states the consequences
~' emanating from the production of 'H' acid and the manner in
which the resulting wastes were dealt with by Respondents F
Nos. 4 to 8 thus:
"The effluents are very difficult to treat as many of the
pollutants present are refractory in nature. Setting up such
. highly polluting industry in a critical ground water area was
essentially ill-conceived. The effluents seriously polluted the G
nearby drain and overflowed into Udaisagar main canal,
severely corroding its cement-concrete lined bed and
banks. The polluted waters also seriously degraded some
agricultural land and damaged standing crops. On being
ordered to contain the effluents, the industry installed an H
176 SUPREME COURT REPORTS [2011) 9 S.C.R.
A unlined holding pond within its premises and resorted to
spraying the effluent on the nearby hill-slope. This only
resulted in extensive seepage and percolation of the
effluents into ground water and their spread down the
aquifers. Currently about 60 wells appear to have been '1
B significantly polluted but every week a few new wells, down
the aquifers start showing signs of pollution. This has
created serious problems for water supply for domestic
purposes, cattle-watering crop irrigation and other
beneficial uses, and it has also caused human illness and
c even death, degradation of land and damage to fruit, trees
and other vegetation. There are serious apprehensions that
the pollution and its harmful effects will spread further after
the onset of the monsoon as the water percolating from
the higher parts of the basin moves down carrying the
.>
pollutants lying on the slopes - in the holding pond and
D
those already underground."
11. This court passed number of orders during the period
1989-1992.
E 12. On February 17, 1992, this Court passed a fairly
elaborate order observing that respondent nos. 5 to 8 are
responsible for discharging the hazardous industrial wastes;
that the manufacture of 'H' acid has given rise to huge
quantities of iron sludge and gypsum sludge - approximately
F 2268 MT of gypsum-based sludge and about 189 mt. of iron-
based sludge; that while the other respondents blamed
respondent no.9 as the main culprit but respondent no. 9
denied any responsibility, therefore, according to the Courts,
the immediate concern was the appropriate remedial action.
G
The report of the R.S.P.C.B. presented a disturbing picture. It
stated that the respondents have deliberately spread the
hazardous material/sludge all over the place which has only
heightened the problem of its removal and that they have failed
to carry out the orders of this Court dated April 4, 1990.
Accordingly, this Court directed the MOEF to depute its experts
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 177
..... UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
immediately to inspect the area to ascertain the existence and A
extent of gypsum-based and iron-based sludge, to suggest the
handling and disposal procedures and to prescribe a package
for its transportation and safe storage. The cost of such storage
.. and transportation was to be recovered from the concerned
respondents. B
13. Pursuant to the above order, a team of experts visited
the area and submitted a report along with an affidavit dated
March 30, 1992. The report presented a highly disturbing
picture. It stated that the sludge was found inside a shed and
also at four places outside the shed but within the premises of
c
the complex belonging to the respondents. It further stated that
(
~
the sludge has been mixed with soil and at many places it is
covered with earth. A good amount of s!udg~· was said to be
j..
lying exposed to sun and rain.
D
14. The report stated: "Above all, the extent of pollution in
the ground water seems to the very great and the entire aquifer
may be affected due to the pollution caused by the industry. The
organic content of the sludge needs to be analysed to assess
the percolation property of the contents from the sludge. It is E
also possible that the iron content in the sludge may be very
high which may cause the reddish colouration. As the mother
liquor produced during the process (with pH-1) was highly
acidic in nature and was indiscriminately discharged on land
"" by the unit, it is possible that this might have eroded soil and F
caused the extensive damage. It is also possible that the
organic contents of the mother liquor would have gone into soil
with water together with the reddish colour." The report also
suggested the mode of disposal of sludge and measures for
re-conditioning the soil. G
15. In view of the above report, the Court made an order
on April 6,. 1992 for entombing the sludge under the supervision
of the officers of the MOEF. Regarding revamping of the soil,
the Court observed that for this purpose, it might become
necessary to stop or sus'pend the operation of all the units of H
178 SUPREME COURT REPORTS [2011] 9 S.C.R.
A the respondent but that, the Court said, requires to be examined
further.
16. The work of entombment of sludge again faced several
difficL•lties. While the respondents blamed the Government
officers for the delay, the Government officials blamed the said
8
respondents of non-cooperation. Several Orders were passed
by this Court in that behalf and ultimately, the work commenced.
Orders passed in 1993. filing of Writ Petition (C) No. 76
of 1994 by Respondent No. 4 and the orders passed
C therein:
17. With a view to find out the connection between the
wastes and sludge resulting from the production of 'H' acid and
the pollution in the underground water, the Court directed on
0 20th August, 1993 that samples should be taken of the
entombed sludge and also of the water from the affected wells
and sent for analysis. Environment experts of the MOEF were
asked to find out whether the pollution in the well water was on
account of the said sludge or not. Accordingly, analysis was
E conducted and the experts submitted the Report on November
1, 1993. Under the heading "Conclusion", the report stated:
5.0 Conclusion
5.1 On the basis of the observations and analysis results,
F it is concluded beyond doubt that the sludge inside the
emoted pit is the contaminated one as evident from the
number of parameters analysed.
5.2 The ground water is also contaminated due to
discharge of H- acid plant effluent as well as H-acid sludge/
G
contaminated soil leachiest as shown in the photographs
and also supported by the results. The analysis result
revealed good correlation between the colour of well water
and H-acid content in it. The analysis results show high
degree of impurities in sludge/soil and also in well water
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 179
~,;-- UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
which is a clear indication of contamination of soil and A
ground water due to disposal of H-acid waste.
The report which is based upon their inspection of the area
in September, 1993 revealed many other alarming
features. It represents a commentary on the attitude and
8
actions of the respondents. In Para-2, under the heading
. "Site Observations & Collection of Sludge/Contaminated
Soil Samples", the following facts are stated:
2.1. The Central team, during inspection of the premises
of M/s. HACL, observed that H-acid sludge (iron gypsum) C
and contaminated soil are still lying at different places, as
shown in Figure 1, within the industrial
premises(Photograph 1) which are the left overs. The area,
where the solar evaporation pond was existing with H-acid
sludge dumped here and there, was observed to have D
been leveled with borrowed soil (Photograph 2). It was
difficult to ascertain whether the sludge had been removed
before filling. However, there are visual evidences of
contaminated soil in the area.
-
E
2.2 As reported by the R.S.P.C.B. representatives, about
720 tonnes out of the total contaminated soil and sludge
scraped from the sludge dump sites is disposed of in six
lined entombed pits covered by lime/flash niix, brick soling
and concrete (Photographs were placed on record). The
remaining scraped sludge and contaminated soil was lying F
near the entombed pits for want of additional disposal
fa9ility. However, during the visit, the left over sludge and
contaminated soil could not be traced at site. Inspection
of the surrounding area revealed that a huge heap of
foreign soil of 5 metre height heap of foreign soil of 5 G
metre height (Photograph was placed on record) covering
a large area, as also indicated in Fig. I, was raised on the
sloppy ground at the foot hill within the industry premises.
The storm water run-off pathway over the area showed
· indication of H-acid sludge leachate coming out of the H
180 SUPREME COURT REPORTS [2011] 9 S.C.R.
A heap. Soil in.the area was sampled for analysis.
2.3 M/s. HACL has a number of other industrial units which
are operating within the same premises without valid
consents from the R.S.P.C.B. These plants are sulphuric
B
acid (H2S04), fertilizer (SSP) and vegetable oil extraction. 1
The effluents of these units are not properly treated and
the untreated effluent particularly from the acid plant is
passing through the sludge dump area playing havoc
(Photograph was placed on record). The final effluent was
collected at the outlet of the factory premises during
c operation of these units, at the time of groundwater
monitoring in September 1993, by the RSPCB. Its quality
was observed to be highly acidic (pH : 1.08, Conductivity
: 37, 100 mg/1, S04 : 21,000 mg/1, Fe : 392 mg/1, COD "
: 167 mg/1) which was also revealed in the earlier visits -l
D of the Central teams. However, these units were not in
operation during the present visit.
Under Para 4.2.1, the report stated inter alia:
The sludge samples from the surroundings of the (presently
E
nonexistent) solar evaporation and the contaminated soil
due to seepage from the newly raised dump site also
exhibited very high values of the above mentioned
parameters. This revealed that the contaminated soil is
buried under the new dump found by the team.
F
25. So much for the waste disposal by the respondents
and their continuing good conduct. To the same effect is
the Report of the R.S.P.C.B. which is dated October 30,
1993.
G
26. In view of the aforesaid Reports, all of which
unanimously point out the consequences of the 'H' acid
production, the manner in which the highly corrosive waste
water (mother liquor) and the sludge resulting from the
production of 'H' acid was disposed of and the continuing
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 181
-;-. UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
"'
discharge of highly toxic effluents by the remaining units A
even in the year 1993, the authorities [R.S.P.C.B.] passed
orders closing down, in exercise of their powers .Under
Section 33A of the Water Act, the operation of the
Sulphuric Acid Plant and the solvent extraction plant
r including oil refinery of the fourth respondent with B
'
immediate effect. Orders were also passed directing
disconnection of electricity supply to the said plants.
The fourth respondent filed Writ Petition (C) No. 76 of
1994 in this Court, under Article 32 of the Constitution,
questioning the said Orders in January, 199.4. The main
c
grievance in this writ petition was that without even waiting
for the petitioner's [Hindustan Agro Chemicals Limited]
y
reply to the show-cause notices, orders of closure and
i. disconnection of electricity supply were passed and that
this was done by the R.S.P.C.B. with a malafide intent to D
cause loss to the industry. It was also submitted that
sudden closure of its plants is likely to result in disaster
and, may be, an explosion and that this consideration was
not taken into account while ordering the closure. In its
Order dated March 7, 1994, this Court found some E
justification in the contention of the industry that the various
counter-affidavits filed by the R.S.P.C.B. are self-
contradictory. The Board was directed to adopt a
). constructive attitude in the matter. By another Order dated
March 18, 1994, the R.S.P.C.B. was directed to examine F
the issue of grant of permission to re-start the industry or
to permit any interim arrangement in that behalf. On April
8, 1994, a 'consent' order was passed whereunder the
industry was directed to deposit a sum of Rupees sixty
thousand with R.S.P.C.B. before April 11, 1994 and the G
R.S.P.C.B. was directed to carry on the construction work
of storage tank for storing and retaining ten days effluents
from the Sulphuric Acid Plant. The construction of
temporary tank was supposed to be an interim measure
pending the construction of an E.T.P. on permanent basis. H
182 SUPREME COURT REPORTS [2011] 9 S.C.R.
A The Order dated April 28, 1994 noted the Report of the
R.S.P.C.B. stating that the construction of temporary tank
was completed on April 26, 1994 under its supervision.
The industry was directed to comply with such other
requirements as may be pointed out by R.S.P.C.B. for
B prevention and control of pollution and undertake any works
required in that behalf forthwith. Thereafter, the matter went
into a slumber until October 13, 1995.
NEER/ REPORT:
c 27. At this juncture, it would be appropriate to refer to the
Report submitted by NEERI on the subject of "Restoration
of Environmental Quality of the affected area surrounding
Village Bichhri due to past Waste Disposal Activities".
This Report was submitted in April, 1994 and it states that )'
D it is based upon the study conducted by it during the period
November, 1992 to February, 1994. Having regard to its
technical competence and reputation as an expert body
on the subject, we may be permitted to refer to its Report
at some length:
E
18. The judgment also dealt with damaging of crops and
fields. The finding of the Court was that the entire contaminated
area comprising of 350 hectares of contaminated land and six
abandoned dump sites outside the industrial premises has
been found to be ecologically fragile due to reckless past
F disposal activities practised by M/s. Silver Chemicals Ltd. and
Mis. Jyoti Chemicals Ltd. Accordingly, it is suggested that the
whole of the contaminated area be developed as a green belt
at the expense of M/s. Hindustan Agrochemicals Ltd. during the
monsoon of 1994.
G
19. Mr. Shanti Bhushan, learned senior counsel appearing
for the respondents-industries made the following submissions:
(1) The respondents are private corporate bodies.
They are not 'State' within the meaning of Article
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 183
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
-!
12 of the Constitution. A writ petition under Article A
32 of the Constitution, therefore, does not lie
against them.
(2) The RSPCB has been adopting a hostile attitude
towards these respondents from the very beginning.
r B
) The Reports submitted by it or obtained by it are,
therefore, suspect. The respondents had no
opportunity to test the veracity of the said Reports.
If the matter had been fought out in a properly
constituted suit, the respondents would have had an
opportunity to cross-examine the experts to
c
establish that their Reports are defective and
cannot be relied upon.;
(3) Long before the respondents came into existence,
'1- Hindustan Zinc Limited was already in existence D
close to Bichhri village and has been discharging
toxic untreated effluents in an unregulated manner.
This had affected the water in the wells, streams
and aquifers. This is borne out by the several
Reports made long prior to 1987. Blaming the E
respondents for the said pollution 1s incorrect as a
fact and unjustified.
(4) The respondents have been cooperating with this
Court in all matters and carrying out its directions
F
faithfully. The Report of the R.S.P.C.B. dated
November 13, 1992 shows that the work of
entombment of the sludge was almost over. The
Report states that the entire sludge would be stored
in the prescribed manner within the next two days.
,;. In view of this report, the subsequent Report of the G
Central team, R.S.P.C.B. and NEERI cannot be
accepted or relied upon. There are about 70
industries in India manufacturing 'H' acid. Only the
units of the respondents have been picked upon by
the Central and Sate authorities while taking no H
184 SUPREME COURT REPORTS [2011] 9 S.C.R.
A action against the other units. Even in the matter of
disposal of sludge, the directions given for its
disposal in the case of other units are not as
stringent as have been prescribed in the case of
respondents. The decision of the Gujarat High
B Court in Pravinbhai Jashbhai Patel case shows that i
j
the method of disposal prescribed there is different
and less elaborate than the one prescribed in this
case.
(5) The Reports submitted by the various so-called
c expert committees that sludge is still lying around
within and outside the respondents' complex and/
or that the toxic wastes from the Sulphuric Acid
Plant are flowing through and leaching the sludge •
and creating a highly dangerous situation is untrue J
D and incorrect. The R.S.P.C.B. itself had constructed
a temporary E.T.P. for the Sulphuric Acid Plant
pursuant to the Orders of this Court made in Writ
Petition (C) No. 76 of 1994. Subsequently, a
permanent E.T.P. has also been constructed. There
E is no question of untreated toxic discharges from
this plant leaching with sludge. There is no sludge
and there is no toxic discharge from the Sulphuric
Acid Plant.
F (6) The case put forward by the R.S.P.C.B. that the
respondents' units do not have the requisite
permits/ consents required by the Water Act, Air Act
and the Environment [Protection] Act is again
unsustainable in law and incorrect as a fact. The
respondents' units were established before the
G
amendment of Section 25 of the Water Act and,
therefore did not require any prior consent for their
establishment.
(7) The proper solution to the present problem lies in
H ordering a comprehensive judicial enquiry by a
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 185
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
J
sitting Judge of the High court to find out the causes A
of pollution in this village and also to recommend
remedial measures and to estimate the loss
suffered by the public as well as by the respondents.
While the respondents are prepared to bear the
t
cost of repairing the damage, if any, caused by B
t them, the R.S.P.C.B. and other authorities should
be made to compensate for the huge losses
suffered by the respondents on account of their
illegal and obstructionist policy adopted towards
them. c
(8) The decision in Oleum Gas Leak. Case has been
explained in the opinion of Justice Ranganath
Misra, CJ., in the decision in Union Carbide
... Corporation etc. etc. v. Union of India etc. etc. AIR
'I
1992 SC 248. The law laid down in Oleum Gas leak D
•
' Case is at variance with the established legal
position in other Commonwealth countries.
20. The Court dealt with the submissions of the
respondents in great detail and did not find any merit in the E
same.
21. In the impugned judgment, the Court heavily relied on
the observations of the Constitution Bench judgment in M. C.
Mehta and Another v. Union of India and Others (1987) 1
;" F
SCC 395 popularly known as Oleum Gas Leak Case, wherein
it was held thus:
"We are of the view that an enterprise which is engaged
in a hazardous or inherently dangerous industry which
poses a potential threat to the health and safety of the G
persons working in the factory and residing in the
surrounding areas owes an absolute and non-delegable
duty to the community to ensure that no harm results to
anyone on account of hazardous or inherently dangerous
nature of the activity which it has undertaken. The H
186 SUPREME COURT REPORTS [2011] 9 S.C.R.
A enterprise must be held to be under an obligation to
provide that the hazardous or inherently dangerous activity
in which it is engaged must be conducted with the highest
standards of safety and if any harm results on account of
such activity, the enterprise must be absolutely liable to
B compensate for such harm and it should be no answer to 1
the enterprise to say that it had taken all reasonable care
and that the harm occurred without any negligence on its
part. Since the persons harmed on account of the
hazardous or inherently dangerous activity carried on by
c the enterprise would not be in a position to isolate the
process of operation from the hazardous preparation of
substance or any other related element that caused the
harm the enterprise must be held strictly liable for causing
such harm as a part of the social cost for carrying on the
hazardous or inherently dangerous activity. If the enterprise
D
is permitted to carry on an hazardous or inherently.
dangerous activity for its profit, the law must presume that
such permission is conditional on the enterprise absorbing
the cost of any accident arising on account of such
hazardous or inherently dangerous activity as an
E appropriate item of its overhear"· Such hazardous or
inherently dangerous activity for private profit can be
tolerated only on condition that the enterprise engaged in
such hazardous or inherently dangerous activity
indemnifies all those who suffer on account of the carrying
F on of such hazardous or inherently dangerous activity
regardless of whether it is carried on carefully or not.. ..We
would therefore hold that where an enterprise is engaged
in a hazardous or inherently dangerous activity and harm
results to anyone on account of an accident in the
G operation of such hazardous or inherently dangerous
activity resulting for example, in escape of toxic gas the
enterprise is strictly and absolutely liable to compensate
all those who are affected by the accident and such liability
is not subject to any of the exceptions which operate vis-
H a-vis the tortuous principle of strict liability under the rule
.. INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 187
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
·~
in Ryland v. Fletcher (1868) LR 3 HL 330. A
We would also like to point out that the measure of
compensation in the kind of cases referred to in the
preceding paragraph must be corelated to the magnitude
t and capacity of the enterprise because such compensation
! B
must have a deterrent effect. The larger and more
prosperous the enterprise, the greater must be the amount
of compensation payable by it for the harm caused on
account of an accident in the carrying on of the hazardous
or inherently dangerous activity by the enterprise."
c
22. This court in M. C. Mehta's case (supra) further
observed as under:
31. We must also deal with one other question which was
.. seriously debated before us and that question is as to what D
is the measure of liability of an enterprise which is
engaged in an hazardous or inherently dangerous industry,
if by reason of an accident occurring in such industry,
persons die or are injured. Does the rule in Rylands v.
Fletcher apply or is there any other principle on which the E
liability can be determined? The rule in Rylands v.
Fletcherwas evolved in the year 1866 and it provides that
a person who for his own p'urposes brings on to his land
and collects and keeps there anything likely to do mischief
if it escapes must keep it at his peril and, if he fails to do
F
so, is prima facie liable for the damage which is the natural
consequence of its escape. The liability under this rule is
strict and it is no defence that the thing escaped without
that person's wilful act, default or neglect or even that he
had no knowledge of its existence. This rule laid down a
-.i. G
principle of liability that if a person who brings on to his
land and collects and keeps there anything likely to do
harm and such thing escapes and does damage to
another, he is liable to compensate for the damage
caused. Of course, this rule applies only to non-natural user
of the land and it does not apply to things naturally on the H
188 SUPREME COURT REPORTS [2011] 9 S.C.R
A land or where the escape is due to an act of God and an
act of a stranger or the default of the person injured or
where the thing which escapes is present by the consent
of the person injured or in certain cases where there is
statutory authority. Vide Halsbury Laws of England, Vol. 45
1
B para 1305. Considerable case law has developed in
England as to what is natural and what is non-natural use
of land and what are precisely the circumstances in which
this rule may be displaced. But it is not necessary for us
to consider these decisions laying down the parameters
c of this rule because in a modern industrial society with
highly developed scientific knowledge and technology
where hazardous or inherently dangerous industries are
necessary to carry out part of the developmental
programme, this rule evolved in the 19th Century at a time •
,,.
when all these developments of science and technology
D
had not taken place cannot afford any guidance in evolving
any standard of liability consistent with the constitutional
norms and the needs of the present day economy and
social structure. We need not feel inhibited by this rule
which was evolved in this context of a totally different kind
E of economy. Law has to grow in order to satisfy the needs
of the fast changing society and keep abreast with the
economic developments taking place in the country. As
new situations arise the law has to be evolved in order to
meet the challenge of such new situations. Law cannot
F afford to remain static. We have to evolve new principles
and lay down new norms which would adequately deal with
the new problems which arise in a highly industrialised
economy. We cannot allow our judicial thinking to be
constricted by reference to the law as it prevails in England
i..-
G or for the matter of that in any other foreign country. We
no longer need the crutches of a foreign legal order. We
are certainly prepared to receive light from whatever source
it comes but we have to build up our own jurisprudence
and we cannot countenance an argument that merely
H because the law in England does not recognise the rule
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 189
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
of strict and absolute liability in cases of hazardous or A
inherently dangerous activities or the rule as laid down in
Rylands v. Fletcher as is developed in England
recognises certain limitalions and exceptions. We in India
must hold back our hands and not venture to evolve a new
/ principle of liability since English courts have not done so. B
We have to develop our own law and if we find that it is
necessary to construct a new principle of liability to deal
with an unusual situation which has arisen and which is
likely to arise in future on account of hazardous or
inherently dangerous industries which are concomitant to c
an industrial economy, there is no reason why we should
hesitate to evolve such principle of liability merely because
it has not been so done in England .
...
.. 23. This Court applied the principle of Polluter pays and
observed thus: / D
"The polluter pays principle demands that the financial
costs of preventing or remedying damage caused by
pollution should lie with the undertakings which cause the
pollution, or produce the goods which cause the pollution. E
Under the principle it is not the role of government to meet
the costs involved in either prevention of such damage,
or in carrying out remedial action, because the effect of
this Would be to shift the financial burden of the pollution
incident to the taxpayer. The 'polluter pays' principle was F
promoted by the Organisation for Economic Co-operation
and Development [OECD] during the 1970s when there
was great public interest in environmental issues. During
this time there were demands on government and other
institutions to introduce policies and mechanisms for the G
protection of the environment and the public from the
threats posed by pollution in a modern industrialised
society. Since then there has been considerable
discussion of the nature of the polluter pays principle, but
the precise scope of the principle and its implications for
H
190 SUPREME COURT REPORTS [2011] 9 S.C.R.
A those involved in past, or potentially polluting activities have
never been satisfactory agreed."
24. After hearing the learned counsel for the parties at
length, this Court gave the following directions:
B "1. The Central Government shall determine the amount •
required for carrying out the remedial measures
including the removal of sludge lying in and around
the complex of Respondents 4 to 8, in the area
affected in village Bichhri and other adjacent
c villages, on account of the production of 'H' acid
and the discharges from the Sulphuric Acid Plant
of Respondents 4 to 8. Chapters-VI and Vil in
NEERI Report [submitted in 1994] shall be deemed
to be the show-cause notice issued by the Central
D Government proposing the determination of the
said amount. Within six weeks from this day,
Respondents 4 to 8 shall submit their explanation,
along with such material as they think appropriate
in support of their case, to the Secretary, Ministry
E of Environment and Forests, Government of India
(for short, M.E.F.). The Secretary shall thereupon
determine the amount in consultation with the
experts of his Ministry within six weeks of the
submission of the explanation by the said
F Respondents. The orders passed by the Secretary,
[M.E.F.] shall be communicated to Respondents 4
to 8- and all concerned - and shall also be placed
before this Court. Subject to the Orders, if any,
passed by this Court, the said amount shall
G represent the amount which Respondents 4 to 8 are
liable to pay to improve and restore the environment
in the area. For the purpose of these proceedings,
the Secretary, [M.E.F.] and Respondents 4 to 8 shall
proceed on the assumption that the affected area
is 350 ha, as indicated in the sketch at Page 178
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 191
,. UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
of NEERI Report. In case of failure of the said A
respondents to pay the said amount, the same shall
be recovered by the Central Government in
accordance with law. The factories, plant,·
machinery and all other immovable assets of
~
! Respondents 4 to 8 are attached herewith. The B
amount so determined and recovered shall be
utilised by the M.E.F. for carrying out all necessary
remedial measures to restore the soil, water
sources and the environment in general of the
affected area to its former state. c
2. On account of their continuous, persistent and
insolent violations of law, their attempts to conceal
the sludge, their discharge of toxic effluents from the
.. Sulphuric Acid Plant which was allowed to flow
through the sludge, and their non-implementation of D
the Orders of this Court - all of which are fully borne
out by the expert committees' Reports and the
findings recorded hereinabove - Respondents 4 to
8 have earned the dubious distinction of being
characterised as "rogue industries". They have E
inflicted untold misery upon the poor, unsuspecting
villagers, despoiling their land, their water sources
and their entire environment - all in pursuance of
their private profit. They have forfeited all claims for
any consideration by this Court. Accordingly, we F
herewith order the closure of all the plants and
factories of Respondents 4 to 8 located in Bichhri
village. The R.S.P.C.B. is directed to seal all the
factories/ units/plants of the said respondents
forthwith. So far as the Sulphuric Acid Plant is G
concerned, it will be closed at the end of one week
from today, within which period Respondent No. 4
shall wind down its operations so as to avoid risk
of any untoward consequences, as asserted by
Respondent No. 4 in Writ Petition (C) No. 76 of H
192 SUPREME COURT REPORTS [2011] 9 S.C.R.
A 1994. It is the responsibility of Respondent No. 4
to take necessary steps in this behalf. The
R.S.P.C.B. shall seal this unit too at the end of one
week from today. The re-opening of these plants
shall depend upon their compliance with the 1
B directions made and obtaining of all requisite
permissions and consents from the relevant
authorities. Respondents 4 to 8 can apply for
directions in this behalf after such compliance.
3. So far as the claim for damages for the loss
c suffered by the villagers in the affected area is
concerned, it is open to them or any organisation
on their behalf to institute suits in the appropriate
~
civil court. If they file the suit or suits in forma
pauperis, the State of Rajasthan shall not oppose >
D their applications for leave to sue in forma pauperis.
4. The Central Government shall consider whether it
would not be appropriate, in the light of the
experience gained, that chemical industries are
E treated as a category apart. Since the chemical
industries are the main culprits in the matter of
polluting the environment, there is every need for
scrutinising their establishment and functioning
more rigorously. No distinction should be made in
F this behalf as between a large-scale industry and
a small-scale industry or for that matter between a
large-scale industry and a medium-scale industry.
All chemical industries, whether big or small, should
be allowed to be established only after taking into
considerations all the environmental aspects and
G
their functioning should be monitored closely to
ensure that they do not pollute the environment
around them. It appears that most of these
industries are water-intensive industries. If so, the
advisability of allowing the establishment of these
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 193
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
industries in arid areas may also require A
examination. Even the existing chemical industries
may be subjected to such a study and if it is found
on such scrutiny that it is necessary to take any
steps in the interests of environment, appropriate
directions in that behalf may be issued under B
Section ~ and § of the Environment Act, the Central
Government shall ensure that the directions given
by it are implemented forthwith.
5. The Central Government and the R.S.P.C.B. shall
file quarterly Reports before this Court with respect C
to the progress in the implementation of Directions
1 to 4 aforesaid.
6. The suggestion for establishment of environment
courts is a commendable one. The experience D
shows that the prosecutions launched in ordinary
criminal courts under the provisions of the Water
Act, Air Act and Environment Act never reach their
conclusion either because of the work-load in those
courts or because there is no proper appreciation E
of the significance of the environment matters on
the part of those in charge of conducting of those
cases. Moreover, any orders passed by the
authorities under Water and Air Acts and the
Environment Act are immediately questioned by the F
industries in courts. Those proceedings take years
and years to reach conclusion. Very often, interim
orders are granted meanwhile which effectively
disable the authorities from ensuring the
implementation of their orders. All this points to the G
need for creating environment courts which alone
should be empowered to deal with all matters, civil
and.criminal, relating to environment. These courts
should be manned by legally trained persons/ .
judicial officers and should be ~llowed to adopt H
194 SUPREME COURT REPORTS [2011] 9 S.C.R.
A summary procedures. This issue, no doubt,
requires to be studied and examined indepth from
all angles before taking any action.
7. The Central Government may also consider the
B advisability of strengthening the environment
protection machinery both at the Center and the
States and provide them more teeth. The heads of
several units and agencies should be made
personally accountable for any lapses and/or
negligence on the part of their units and agencies.
c The idea of an environmental audit by specialist
bodies created on a permanent basis with power
to inspect, check and take necessary action not
only against erring industries but also against erring
officers may be considered. The idea of an
D environmental audit conducted periodically and
certified annually, by specialists in the field, duly
recognised, can also be considered. The ultimate
idea is to integrate and balance the concern for
environment with the need for industrialisation and
E technological progress."
25. The orders of this Court have not been implemented
till date because by filing of number of interlocutory applications
the respondent nos.4 to 8 have kept the litigation alive. These
F respondents have been successful in avoiding compliance of
the judgment of this Court for more than fifteen years.
ORDER IN CONTEMPT PETITION
26. The original record of Writ Petition No. 967 of 1989
G shows that the R.S.P.C.B. has filed a report of the National
Environmental Engineering Research Institute, for short 'NEERI'
in this Court on 6.1.1996. It is on this report that reliance was
placed by the Court while disposing off the said writ petition. If
1he report which was submitted in this Court by the R.S.P.C.B.
H was different from the final report which was submitted by NEERI
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 195
!'
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
to the said Board, then it may have been possible to contend A
that the R.S.P.C.B. and its officers were guilty of fabrication.
The affidavit of Mr. S.N. Kaul, Acting Director of NEERI clearly
shows that what was filed in this Court was the copy of the final
report dated 16.5.1994 which has been prepared by the
i NEERI. In other words, the NEERI itself states that the report
• B
filed in this Court by the Board was a copy of the final report
and that there was no fabrication made therein by the Board
or any of its officials.
27. It appears that the two scientists had inspected the
report in the office of the NEER! and then observed that there c
has been a fabrication carried out by the Pollution Control
Board. From what has been stated hereinabove, the charge of
... fabrication is clearly unfounded. It is possible that these two
~ scientists may have seen the draft report which would be with
NEERI but the original report when prepared would be one D
which was, ultimately, submitted to the sponsoring agency,
namely, the R.S.P.C.8., and it is only a copy of the same which
,• could have been retained by NEERI. Be that as it may, it is clear
that what has been filed in this Court as being the final report
of the NEERI was the copy of the final report which was E
received by it. There is no basis for contending that any of the
respondents have been guilty of fabrication. The whole
application to our mind is devoid of any merit. The contempt
petition was dismissed with costs.
F
IA N0.36 IN WRIT PETITION (Cl No.967 OF 1989
28. This Interlocutory Application has been filed on behalf
of M/s Hindustan Agro Chemical Ltd. (for short "HACL") whose
-' industrial units situated in Udaipur were directed to be closed
down by this Court on the premise that the said units had G
caused pollution in village Bichhri. This Court while directing for
closure of the industrial units of HACL vide its order dated
13.2.1996 had further held that the units be not permitted to run
until they deposit the remediation costs for restoring the
environment in the area. The Court accordingly directed for the H
196 SUPREME COURT REPORTS [2011) 9 S.C.R.
A attachment of the properties of HACL.
29. There is a serious attempt to reopen the entire
concluded case which stands fully concluded by the judgment
of this Court delivered on 13th February, 1996. It may be
B pertinent to mention that even the review and curative petitions
have also been dismissed. By this application, the applicant
has also made an attempt to introduce before this Court the
opinion of various experts, such as, Dr. M.S. Govil, Mr. S.K.
Gupta, Dr. P.S. Bhatt and Ms. Smita Jain who visited the
Bichhri village at the instance of the applicant in the year 2004
C to provide a different picture regarding the conditions of water
and soil in the area. These experts submitted reports to
demonstrate that now hardly any remediation measures are
required in Bichhri village or adjoining areas.
D 30. The applicant in this application is seeking a
declaration that as of now there is no pollution existing in the
area which may have been caused by HACL and accordingly
there is no necessity for this Court to sell the assets of HACL
in order to carry out any remediation in the area. This
E application also is a serious attempt to discredit the NEERI
report of 1996 once again.
31. The sole object of filing of the present application is
to introduce before this Court recent reports prepared by
experts at the behest of the applicant to demonstrate to the
F Court that before embarking upon remediation measures and
for the said purposes putting the properties of the applicant to
sell, the status and conditions of water, soil and environment
in the area as at present be reviewed with a view to realistically
ascertain whether any measures for remediation are called for
G at all in the area and if yes, then the nature and the current cost
of the same may be ascertained.
32. The applicant submitted that the report of the NEERI
which was the basis for the earlier orders of this Court does
H not specify the nature of remediation measures which were
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 197
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
considered necessary. The report merely indicates a lump sum A
amount without giving its break up as being a rough estimate
of amount considered by them necessary for carrying out
remediation measures.
ji 33. It is stated in the application that the Secretary, MOEF B
after issuing notices to the parties called for the expert opinion
of Water and Power Consultancy (WAPCO) and of Engineers
India Limited (Ell), both these institutions were established by
the Government of India. Both these institutions wrote to the
Secretary that the data available was not sufficient to determine
the cost of remediation, if any. The Secretary, who under the
c
directions of the Court was directed to determine the amount
. within six weeks was left with no alternative but to simply affirm
the lump sum amount determined by the NEERI.
~
34. It is stated that now almost fifteen years have passed D
since the final judgment of this Court and the situation in the
area needs to be inspected again to find out as to whether any
remediation is necessary or whether with passage of time
nature on its own has taken care of the pollution iri the area and
because of the same no further "remediation is required to be E
done in the area. This submission is being made without
prejudice to the right of the applicant to contend that the
applicant had not caused any pollution in the area but the
---". applicant for the limited purpose of this application is ready to
assume for the sake of arguments that the applicant had F
caused pollution in the area and that the nature in the last so
many years has taken care of the pollution and on that basis
there is no pollution existing in the area at present.
..... 35. One of the issues that came up for consideration
before this Court was the liability of the Union of India to take G
remediation measures in the area even if the applicant were
not to pay the remediation costs as determined by the
Secretary, MOEF. In these proceedings the counsel on behalf
of the applicant made a suggestion to the Court that a fresh
team be sent to the units of the applicant to find out whether H
198 SUPREME COURT REPORTS [2011] 9 S.C.R.
A there is still any pollution existing in the area and also whether
any remediation as of today is required to be done or not. It
was suggested during the course of hearing that the
remediation cost being sought to be recovered from the
applicant is not some kind of a decree in which the applicant
B is a judgment debtor but is merely a cost which the applicant
is being made liable to pay on the "Polluter Pays" principle and
there is no necessity of payment if there is no pollution existing:
Till date there is no working out as to how the cost of
remediation has been worked out by NEERI which had been
c affirmed by the Secretary, MOEF and which had been further
affirmed by this Court.
36. According to the applicant, on the basis of the reports
of some experts it is quite evident that there is no pollution in
and around the factory premises of the applicant and
D accordingly there is no need for any remediation to be done in
the area and the factory of the aoplicant is required to be
handed over to the applicant forthwith so that the applicant may
take proper steps to re-start the factory and generate resources
to meet the liabilities of the financial institutions and banks.
E
37. It is further prayed that if this Court for any reason
doubts the opinion of the experts placed by the applicant in any
manner, then this Court may appoint any reputed experU
experts to visit the area and to submit a detailed report to this
F Court relating to the pollution existing in the area as of now. In
other words, the effort is to reopen the concluded case and that
also after the review and the curative petitions have been
dismissed by this Court.
38. There are two main prayers in this application, the first
G prayer is that no remediation is required to be done in and
around the industrial units of the applicant on the basis of the
four reports placed by the applicant along with this application
or on the basis of the report submitted by the experUexperts
appointed by this Court; and secondly, that the Court may pass
H consequential order directing for closing of these proceedings
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 199
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
ii'
and thus lift the attachment order dated 13.2.1996. A
39. Reply Affidavits to the Interlocutory Application have
been filed by the Union of India and other respondents. In the
reply affidavits of the respondents it is mentioned that on
i 13.2.1996 this Court directed closure of the units of the
f
B
applicant for the reason that the said industries had caused
environmental pollution in and around the areas where
applicant's units are located. This Court had further directed
that the units of the applicant would be permitted to operate only
after depositing necessary costs for taking measures to restore
the environment of the areas. The judgment of this Court was
c
based upon a report dated 5.4.1994 of the NEERI which was
filed by the R.S.P.C.B. on 6.1.1996.
- -t
40. The applicant questioned the credibilitY of the NEERl's
report. It is submitted that the remediation cost for restoring the D
environmental quality of the area was only Rs.3 crores whereas
in the report submitted in this Court the remediation cost was
stated to be Rs.37.385 crores.
41. The applicant prayed that in the interest of justice the
E
report dated 25.1.2005 submitted by the expert group to the
MOEF be ignored and either accept the reports prepared at
the instance of the applicant or fresh direction be issued for
constitution of an independent expert group not having any
---'. association with NEERI to carry out investigation with relation
to the environment in the village Bichhri. F
42. According to the applicant, the report of NEERI relied
upon by this Court was not the authentic report which was
officially prepared. Even the copy which was actually filed in this
... matter was without any supporting affidavit and the same was G
merely handed over to this Court at the time of hearing.' The
applicant made his own enquiry and was officially given the
report of NEERI. After comparing the report made available to
the applicant from the one filed in this matter it came to light
that the report actually filed in this Court was not bearing any
H
200 SUPREME COURT REPORTS (2011] 9 S.C.R.
A resemblance to the conclusion and findings mentioned in the
actual report.
43. It was also submitted that there have also been
attempts on the part of authorities to shield the role of M/s.
Hindustan Zinc Limited in causing environment damage in
8
village Bichhri. This issue needs to be addressed and the same
can be possible only if an organization having credibility and
not having any association with the NEER! actually carries out
a detailed investigation.
C 44. Reply affidavit has also been filed by the R.S.P.C.B. It
is stated in the said affidavit:
3 (i) That M/s. Hindustan Agro Chemical Ltd., Village
~
Bichhri, Tehsil Girva, District Udaipur, Rajasthan;
~
D respondent no.4, established its Sulphuric Acid and
Oleum Plant in the year 1985 without obtaining prior
consent of the State Board under the provisions of
Sections 25 and 26 of the Water (Prevention and
Control of Pollution) Act, 1974; and section 21 of
the Air (Prevention an Control of Pollution) Act,
E
1981;
(ii) That the State Board vide its letter dated 16.2.1987
refused consent to respondent no.4 under the
provisions of section 25 and 26 of the Water Act
F for discharging trade effluent from its Sulphuric Acid
Plant.
(iii) That the State Board issued directions vide order
dated 26.11.1993, for closure of Sulphuric Acid
G Plant under the provisions of section 33A of the
Water Act, 1974 as it was discharging trade effluent
without proper treatment and in excess of the
prescribed standards. The District Collector
Udaipur implemented the directions of closure of
Sulphuric Acid Plant passed by the State Board.
H
j
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 201
,";!
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
4 (i) That M/s. Hindustan Agro Chemical Ltd., Village A
Bichhri, Tehsil Girva, District Udaipur, Rajasthan;
respondent no.4 established its Solvent Extraction
coupled with Oil Refinery Plant in the year 1991
_withouLobtaining pdor consent of the State Board
~
' under the provisions of section 25 and 26 of the B
Water Act and section 21 of the Air Act.
(ii) That the State Board vide its letter dated 24. 7 .1992
refused consent to respondent no.4 under the
provisions of section 25, 26 of the Water Act for
discharging trade effluent from its Solvent Extraction
c
Plant.
... (iii) That the State Board issued directions, vide order
dated 26.11.1993, for closure of Solvent Extraction
t
Plant under the provisions of section 33A of the D
Water Act, as it was discharging trade effluent
without proper treatment and in excess of the
prescribed standards. The District Collector
Udaipur implemented the directions of closure of
Solvent Extraction Plant passed by the State Board. E
5 (i) That respondent no.4 preferred a petition before
this Court being Writ Petition (C) No.76 of 1994
Hindustan Agro Chemical Ltd. & Anr. v. State of
__. Rajasthan & Ors. challenging the directions dated
26.11.1993 of the State Board closing down
F
Sulphuric Acid Plant and Solvent Extraction Plant
under the provisions of section 33A of the Water
Act, 1974. It was alleged that the action of the State
Board closing down Sulphuric Acid Plant and
Solvent Extraction Plant was arbitrary and G
highhanded.
(ii) That this Court during hearing in the matter on
7.3.94, in WP (C) No.76/94 passed the following
direction inter-alia:- H
202 SUPREME COURT REPORTS [2011] 9 S.C.R.
A "We thought of having the complaints of the
petitioner as to harassment, examined by an
independent Commissioner to ascertain the bona
fides of the action taken by the officers of the
Pollution Control Board and also to fix their
.,_
B responsibility. But we thought that at this stage it
would be appropriate to ask the learned Advocate-
General, who appears for the State of Rajasthan,
to have the matter examined at his instance and
direct the Pollution Control Board to act more
c constructively and to suggest measures by which
the Plant could be re-commissioned immediately."
(iii) That the said writ petition again came up for hearing
on 18.3.94 before this Court. This Court was
pleased to pass the following directions inter a/ia:- .;
D
"In the meanwhile, the Pollution Control Board is not
prevented from and it shall indeed by its duty to
indicate what, according to it, are such minimal
requirements for grant of permission to re-start the
E industries or to permit any interim arrangements in
this behalf."
(iv) That in pursuance of the aforesaid order dated
18.3.94, the respondent Board took appropriate
F
steps and granted permission to restart industry
subject to certain conditions communicated vide
·-
permission order.
It is submitted that the industry was restarted.
However, on subsequent inspection it was found
G that the industry was violating the prescribed norms
and also has not bothered to comply with the
conditions mentioned in the permission order. As
such an application was moved before this Court
for appropriate directions in the matter.
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 203
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
,,, (v) That despite all efforts for re-commissioning of the A
plants, respondent no.4 failed to take measures
required for prevention and control of pollution.
(vi) That this court vide order and judgment dated
13.2.96, dismissed the above mentioned writ
-1
B
petition in view of the decision in writ petition (Civil)
i
No.967 of 1989.
6(i) That M/s. Hindustan Agro Chemical Ltd., Village
Bichhri, Tehsil Girva, District Udaipur, Rajasthan,
respondent no.4, established its Chlorosulphonic c
Acid Plant in June 1992 without obtaining prior
consent of the State Board under the provisions of
Section 25 and 26 of the Water Act and section 21
_, of the Air Act.
+ D
-1 (ii) That the State Board issued directions vide order
_,
' dated 30.12.1992, for closure of Chlorosulphonic
Acid Plant under the provisions of section 33A of
the Water Act and 31A of Air Act. The District
Collector Udaipur implemented the directions of
E
closure of Chlorosulphonic Acid Plant passed by
the State Board.
(iii) That respondent no.4 preferred a petition before
this Court being Writ Petition (C) No.824 of 1993,
~J Hindustan Agro Chemical Ltd. & Anr. v. State of F
Rajasthan & Ors., challenging the directions dated
30.12.1992 of the State Board closing down
Chlorosulphonic Acid Plant under the provisions of
Section 33A of the Water Act, and 31A of the Air
-.1
Act. It was alleged that the action of the State Board G
closing down Chlorosulphonic Acid Plant was
arbitration and highhanded.
(iv) That this Court dismissed the above mentioned writ
petition by judgment dated 13.2.96 in W.P. (Civil)
H
204 SUPREME COURT REPORTS [2011) 9 S.C.R.
I''
A No.824 of 1993 in view of the decision in Writ
Petition (Civil) 967 of 1989.
7(i) That M/s Silver Chemicals, Village Bichhri, Tehsil
Girva, District Udaipur Rajasthan, respondent no.5
came into existence in February 1988 to
B I'-
manufacture H-Acid and continued its operations
upto March 1989 without obtaining prior consent of
the State Board under the provisions of section 25
and 26 of the Water Act and Section 21 of the Air
Act.
c
(ii) That the State Board vide its letter dated 9.1.1989
refused consent application submitted by M/s.
Silver Chemicals under the provisions of Section
25/26 of the Water Act as the unit was discharging
D trade effluent beyond the prescribed standard and '
without having installed a plant for the treatment of
trade effluent. The State Board under the provisions
of section 25(5) of the Water Act also imposed
several conditions on the industry and informed it
E that failure to make compliance of the conditions of
the conditions shall render it liable for prosecution.
(iii) That the industry however continued its operations
and looking to the continued violations of the \.
provisions of the aforesaid Acts, the State Board ,_
F filed an injunction application under the provisions
of section 33 of the Water Act for restraining the
industry from discharging polluted trade effluent in
excess of the prescribed standards and from
causing pollution of underground water n 24.3.89
G before the court of Chief Judicial Magistrate, J..-
Udaipur.
(iv) That the Court of Chief Judicial Magistrate, Udaipur
by order dated 15.6.1989 issued injunction against
H Mis. Silver Chemicals restraining it from
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 205
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
discharging polluted trade effluent without any A
treatment.
(v) That the State Board also filed a criminal complaint
No.. 176/99 against M/s. Silver Chemicals and its
Director on 24.3.89 under the provisions of section B
t1 43 and 44 for violation of the provisions of section
24, 25 and 26 of the Water Act.
{vi) That the court of Chief Judicial Magistrate, Udaipur
by order and judgment dated 11.8.2004 has
convicted M/s. Silver Chemicals with fine of Rs.10 c
lakh each under section 43 & 44 of the Act. The
Court has also sentenced Shri O.P. Agarwal,
Director of the said company with simple
--< imprisonment of one year and fine of Rs.10,000/-
-+ under section 43 and simple imprisonment of six D
months and fine of Rs.10,000/- under section 44 of
the Act. The company and its Director have
preferred criminal appeal no.92 of 2004 under
section 374 (3)(a) of the Code of Criminal
Procedure before the Sessions Judge, Udaipur. E
The appeal is pending before the Ld. Sessions
Judge.
8(i) That M/s. Rajasthan Multi Fertilizers, Vilalge Bichhri,
Tehsil Girva, District Udaipur, Rajasthan respondent
-" F
no.6, established NKP Fertilizer Plant at the site,
without obtaining previous consent of the State
Board under the provisions of section 25, 26 of the
Water Act and section 21 of the Air Act.
--~
(ii) That the Stattl Board on 20.2.89 issued a notice G
and directed respondent no.6 to obtain consent of
the State Board under the provision of the Water
Act for discharging trade effluent from its plant.
9(i) That M/s. Phosphate India, Vilalge Bichhri, Tehsil H
206 SUPREME COURT REPORTS (2011] 9 S.C.R.
A Girva, District Udaipur, Rajasthan, respondent no.7
established Single Super Phosphate Plant at the
site, without obtaining previous consent of the State
Board under the provisions of section 25, 26 of the
Water Act and section 21 of the Air Act.
B
(ii) That the State Board on 20.2.89 issued a show
cause notice and directed respondent no. 7 to
obtain consent of the State Board under the
provisions of the Water Act for discharging trade
effluent from its plant.
c
10(i) That M/s Jyoti Chemicals, Village Bichhri, Tehsil
Girva, District Udaipur, Rajasthan; respondent no.8
established its plant, at the site, in the year 1987,
to manufacture Ferric Alum without obtaining
D previous consent of the State Board under the
provisions of section 25 and 26 of the Water Act
and section 21 of the Air Act.
(ii) That the State Board vide its letter dated 4.8.1988
issued N.O.C. to respondent no.8 for adequacy of
E
pollution control measures for Ferric Alum Plant.
The respondent No.8, however, started
manufacturing H-Acid and continued its operation
till March, 1989.
F (iii) That the State Board vide letter dated 30.5.88
withdrew the NOC for the reason that respondent
no.8 violated the conditions of the NOC.
(iv) That the State Board vide its letter dated 30.5.89
G also refused application filed by respondent no.8 for
discharging trade effluent under section 25, 26 of
the Water Act for the reasons, inter alia, that it failed
to install pollution control measures and changed its
product from Ferric alum to H-Acid without the
H consent of the State Board.
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 207
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
11. That this Court by its common order and judgment A
dated 13.2.96 in the aforesaid Writ Petition (Civil)
No.967/89, Indian Council for Enviro Legal Action
v. Union of India & Others; Writ Petition (Civil)
No.76/94 Hindustan Agro Chemical v. State
Pollution Control Board & Others and Writ Petition B
(Civil) No.824/93 Hindustan Agro Chemical v.
State Pollution Control Board and Others attached
the factories, plant, machinery and a11 other
immovable assets of respondent nos.4 to 8. The
State Pollution Control Board was directed to seal c
all the factories, plants of respondent nos.4 to 8
forthwith. The State Board in compliance of the
aforesaid direction sealed the plants of respondent
nos.4 to 8 as directed by this Court.
45. The written submissions were also filed by the Union D
of India and the R.S.P.C.B. in response to the order dated
03.05.2005 in IA No.36. It is stated in the said affidavit:
2. That the Ministry of Environment & Forests,
Government of India vide its affidavit dated E
29.1.2005 submitted a summary report prepared by
a consortium of SENES Consultants Limited,
Canada; and NEERI, Nagpur before this Court. The
Ministry of Environment & Forest, Government of
India and the Rajasthan State Pollution Control F
Board are making joint submissions herein below
for remediation of the environmental damage
caused in village Bichhri. Based on the
recommendations given in the report of July, 2002,
prepared by SENES/NEERI for remediation of G
degraded environment of Bichhri, District Udaipur,
Rajasthan, the following works will be undertaken
on priority-wise:
First Prioritv:
H
208 SUPREME COURT REPORTS [2011] 9 S.C.R.
A Phase-I: Source Remediation (Short Term)
Clean up of water near the plant site with highest
H-acid contamination.
Remediation of contaminated soil and sludge
B management within the plant site.
Second Priority:
Phase-II: Hot Spots Remediation (Medium Term)
c Clean up of ground water at hot spots.
Third Priority:
Phase-Ill: Residual Contamination Remediation (Long
Term)
D
Clean up of residual contaminated water.
Fourth Priority:
Phase-IV (long-term):
E
Clean up of contaminated soil outside plant
boundary.
3. While dealing with the first phase called as short-
F term remedies, it has been divided in two parts
namely:-
(i) Clean up of water near the plant site with highest
H-acid contamination.
G {ii) Soil and Sludge management within the plant site.
46. The said recommendation given in the SENES/NEERI
report further suggests as follows:
"Considering the available water quality data the following
H alternatives were evaluated in the preliminary review:
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 209
~" UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
Lime soda process plus Fe coagulation A
Reverse osmosis (RO)
Electro-dialysis
t " Ion exchange B
Activated carbon Sorption and
Activated carbon filtration
Similarly, for the second short-term measures namely, the c
remediation of soil and sludge management many
alternative suggestions have been made. The said report
_, has suggested the following four alternatives for clean up
•. of soil:
. Excavation and relocation in a capped landfill.
D
Ex-situ remediation (soil washing}
Phyto-remediation
E
Natural attenuation
4. That out of the aforesaid alternative technologies,
the most suitable alternative with regard to the
__ ;+
human habitation, plantation and vegetation etc., will
have to be decided keeping in view the local F
conditions and priority requirement. This job will
have to be done by Technical Advisory Committee
having sufficient technical know-how in respect of
..,, the remedial measures. The committee may also
like to look into the techno-economic feasibility in G
this regard.
5. In order to go ahead with the above mentioned
works on priority-wise, the following steps will be
taken: H
210 SUPREME COURT REPORTS [2011] 9 S.C.R.
f'
A a) Reconfirmation of National Productivity Council
(NPC) New Delhi as the Project Management
Consultant (PMC) by the Ministry of Environment &
Forests (MoEF). NPC was the PMC for the
purpose of conducting feasibility studies by SENES
B & NEERI in pursuance of the directions dated "
4.11.1997 of this Court. The role of PMC will be to
(i) Co-ordinate preparatory activities such as
bidding and selection of a suitable expert
c agency for undertaking remediation work
before execution of the remediation works.
(ii) Organise Technical Advisory Committee '>-
meetings from time to time to guide, review
D and supervise the progress of remediation
works.
(iii) Co-ordinate activities/works pertaining to
actual remediation and submit progress
reports to the MoEF.
E
(b) Constitution of a Technical Advisory Committee by
the MoEF having representations of MoEF, CPCB,
Government of Rajasthan, RSPCB, NEERI, NPC &
Technical Experts of National repute in the relevant
,_
F fields to -
(i) Evaluation the recommendations of SENES
NEERI Report (July 2002);
(ii) Finalise the detailed line of action and plan ,...
G for remediation of environmental damages;
(iii) Review the alternative technologies from the
technologies recommended in the SENES-
NEERI report and to recommend suitable
H technology for remediation of contaminated
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 211
~' UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
water and soil. A
(iv) Supervise the work of actual remediation.
6. As the remediation of environmental damage would
require a large sum of money .. ,
B
47. All issues raised in this application have been argued
and determined by an authoritative judgment of this Court about
fifteen years ago. This application has been filed to avoid liability
to pay the amount for remediation and costs imposed by the
Court on the settled legal principle that polluter pays principle. c
In other words, the applicant through this application is seriously
making an effort to avoid compliance of the order/judgment of
this Court delivered fifteen years ago. The tendency must be
effectively curbed. The applicant cannot be permitted to avoid
compliance of the final order of this court by abusing the legal
0
process and keep the litigation alive.
/ 48. The applicant is in business where sole motto of most
: businessmen is to earn money and increase profits. If by filing
I repeated applications he can delay in making payment of huge
remediation costs then it makes business sense as far as the E
applicant is concerned but the Court must discourage such
business tactics and ensure effective compliance of the Court's
order. It is also the obligation and bounden duty of the court to
-• pass such order where litigants are prevented from abusing the
system. F
I.A. NO. 44 IN W.P.(C)No.967 OF 1989
49. In this matter the final judgment of the court was
.,.. delivered on 13.2.1996. A Review Petition filed was also
dismissed. Thereafter, a Curative Petition was filed and that G
.vas also dismissed on 18. 7.2002. The applicant did not comply
with the orders passed by this court even after dismissal of
curative petition and has filed this application.
50. This application has been filed by respondent No. 4, H
212 SUPREME COURT REPORTS [2011] 9 S.C.R.
••
A Hindustan Agro Chemicals Limited. By this application
respondent No. 4 sought an investigation into the reports of
April, 1994 prepared by the NEERI, which was employed by
the R.S.P.C.B. in September, 1992 to evaluate the extent of
contamination done by the applicant's plant in Bichhri village ..
B in Rajasthan.
51. It is on the basis of the report that applicant's units in
Bichhri village were closed down and the applicant was asked
to pay a sum of Rs.37.385 crores towards the costs of
remediation to the government. The reports of April, 1994 had
c alleged that the applicant's units polluted the whole area by
discharging its H-acid on the land which would cost Rs.37.385
crores to clean-up.
""
52. According to the applicant various experts employed
D by the applicant had found no evidence of H-acid pollution from
the applicant's units in the area. In the application, serious effort
has been made to discredit the NEERI report. It may be
pertinent to mention all objections of the said reports were
heard and disposed by the judgment dated 13.2.1996:
E "In fact, while one report mentioned the cost of remediation
to be 3 crores, the one which was presented to the Court
showed it as 37.385 crores.
As per the original report it was reported by RSPCB that I -
F most of wells within 1.5 k.m. radius of the plants were
contaminated while the modified report says, wells within
6.5 k.m. radius.
While the original report noted that the sludge had been
,...
stored under the supervision of the RSPCB whereas the
G
modified report stated that the industry had scattered the
sludge in an unmindful-clandestine manner causing gross
pollution to avoid penal liability."
53. According to the reports of the experts, (who visited
H the site at the instance of the applicant, after the dismissal of
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 213
~·~ UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
Review and Curative petition) the report of the NEERI filed in A
April 1994 was untenable and unsustainable. According to the
. applicant the said report was fabricated. In the application it is
also mentioned that this is a fraud in which this court had been
I(
unwittingly dragged by the officers of the RSPCB and the
} ' NEERI to destroy several industries and the livelihood of about B
1700 persons and it has been prayed that this court to direct
an investigation into the report of April, 1994 prepared by the
NEERI at the instance of the RSPCB to examine whether it was
false or malafide.
54. A reply has been filed on behalf of the RSPCB. At the
c
outset it has been mentioned that similar challenge by the
_,
respondent Nos. 4 to 8 regarding the factum of pollution in
village Bichhri and it being attributed to the said respondents
had been dismissed by this court on many occasions. This court
conclusively reached the finding that the respondent Nos. 4 to D
8, by indiscriminate discharge of their polluted trade effluent is
in utter disregard and violation of the provisions of the Pollution
Control and Environmental Protection Laws had caused
intense severe pollution of underground water and of soil in
village Bichhri. The veracity of the report of the NEERI has E
already been upheld by this court. This court on 4.11.1997
passed the following order:
__ j
"... ... ... In the affidavit of Progress Report, the
Gov~rnment of India has proposed that for the purpose of F
undertaking the work relating to remedial measures for the
National Productivity Council (NPC) may be appointed as
the Project Management Consultants and on the basis of
the feasibility report submitted by the NPC, tenders may
"""i be invited for entrusting the remedial work. It is also G
proposed that a High Level Advisory Committee would be
constituted consisting of the representatives from (1)
Ministry of Environment & Forests (2) National Productivity
Council (3) Central Pollution Control Board (4) NEERI and
. (5) Rajasthan State Pollution Control Board to review
H
214 SUPREME COURT REPORTS [2011] 9 S.C.R.
r·
A periodically and give directions and also to approve
decisions to be taken. According to the said affidavit work
would be undertaken in two phases. The cost of Phase-I
would be Rs.1.1 crores (Rs.50.00 lakhs for Project
Management Consultancy and Rs.60.00 lakhs for
'I
8 feasibility studies) and the cost of Phase-II (Actual
Remediation) would come to Rs.40.1 crores. In the
additional affidavit of Dr. M. Sengupta detailed reasons
have been given why it has not been possible to accept
the report of the Experts on which reliance was placed by
c the respondents. We have perused the said reasons given
in the said additional affidavit filed on behalf of the Ministry
of Environment and Forests and keeping in view the
reasons given therein. We are unable to accept the report
of the Experts on which reliance has been placed by the
.
D
respondents. We accept the proposal submitted by the "
Government of India for the purpose of taking remedial
measures by appointing Natiunal Productivity Council as
the Project Management Consultant. In our opinion, the
Ministry of Environment & Forests, Government of India has
rightly made a demand of Rs.37.85 crores.
E
... ... ... Since, we have accepted the aforesaid proposal
of the Government of India, we put it to Shri N.D. Nanavati
that in order that further steps as per the said proposal are
taken the respondents should immediately deposit a sum l -
F of Rs.5.00 crores in advance so that the National
Productivity Council may be asked to undertake the work
of Project Management Consultant and have the feasibility
studies conducted and prepare the Terms of Reference for
inviting the tenders. Shri Nanavati, after taking instructions
,._.
G from the representative of the respondents, expressed the
inability of the respondents to deposit the said amount and
states that they are in a position to deposit Rs.5.00 lakhs
only. In these circumstances, the only alternative left is to
direct that the Ministry of Environment and Forests shall
H take the necessary steps to implement the directions
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 215
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
contained in the judgment of this Court. All that we will say A
at this stage is that the decision regarding remedial
measures taken on the basis of the NEERI Report shall
be treated as final. The I.As. are disposed of accordingly."
55. In the reply of RSPCB it is mentioned that respondent
t B
,• No. 4 had preferred a Contempt Petition (Criminal) No. 7/1999
entitled Hindustan Agro Chemical v. Atka Kala and others and
this court dismissed the contempt petition with the costs
computed at Rs.10,000/- while observing that there was no
basis for contending that any of the respondents have been
guilty of fabrication and the whole contempt application was
c
without any merit.
56. In the reply it is also mentioned that the respondent
...,
Nos. 4 to 8 had been operating their industrial plants without
obtaining consent from the State Board, as required under the D
provisions of the Water (Prevention & Control of Pollution) Act,
1974 and the Air (Prevention & Control of Pollution) Act, 1981
and discharging polluted trade effluent indiscriminately without
providing any treatment so as to bring it in conformity to the
prescribed standards. Discharge of this trade effluent by the E
respondent Nos. 4 to 8 resulted into severe pollution of
underground water and of soil. For the ab<?ve violation, the State
Pollution Control Board filed a Criminal complaint No. 176/
1999, under the provisions of Section 43 read with Sections
--· 24 and 44 read with Sections 25/26 of the Water Act before
the Court of Chief Judicial Magistrate, Udaipur. The learned
F
Chief Judicial Magistrate, Udaipur by its order dated 11.8.2004
found the accused guilty and convicted him with imprisonment
and fine both under Sections 43 and 44 of the Water Act. The
said conviction and sentence was upheld by the learned
"-"< G
Session Judge, Udaipur in its judgment dated 21.7.2005.
Against the judgment dated 21.7.2005 of the learned Sessions
Judge, the accused preferred Criminal Revision Petition No.
'534/2004 before the Rajasthan High Court at Jodhpur. The
~riminal Revision Petition is pending adjudication before the
H
216 SUPREME COURT REPORTS [2011] 9 S.C.R.
A High Court of Rajasthan at Jodhpur. .
57. While denying the averments of the application, the
RSPCB has relied on paragraphs 14 and 15 of the affidavit
dated 18.9.2007 filed by M. Subba Rao, Director, MO!;:F. The
said paras reads as under:
B t
"14. The applicant is making reference and reliance upon
the recent affidavit filed by the Ministry of Environment and
Forests, Government of India dated 08.03.2007 to contend
that the earlier report submitted by the NEERI was a result
c of falsehood/malafide on the parts of some officers
responsible for preparing the report. At the outset it is
submitted that neither in the report nor in the affidavit of
the Union of India dated 08.03.2007 it has been stated that
the earlier report submitted by National Environmental •
D Engineering Research Institute was incorrect. The affidavit
submitted by the Union of India on 08.03.2007 has only
given the present status. The report submitted by Union of
India along with the affidavit has not dealt with the
correctness/incorrectness of the earlier reports submitted
E by National Environmental Engineering Research Institute
to this Hon'ble Court. It is submitted that on the basis of
the affidavit filed by Union of India on 08.03.2007 and the
report submitted therewith, it cannot be contended that the
report submitted by National Environmental Engineering
F Research Institute in April 1994 was incorrect. It is further \ ~
submitted that the experts of Union of India have also not
gone into an examined the merits of the earlier reports.
15. It is seen from paras 46-47 of the judgment of this
Hon'ble Court reported in the order dated 13.2.1996
G (reported at (1996) 3 sec 212 at 227-231) that a ,._4
challenge was already attempted by the respondents on
the reports of NEERI before this Hon'ble Court at the time
of hearing."
H 58. It may be pertinent to mention here that on 22.8.1990
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 217
UNION OF !NOIA & ORS. [DALVEER BHANDARI, J.]
..--;
this court had appointed Mr. Mohinder Vyas as Commissioner A
.to inspect the wells and assess the degree of pollution created
by the operation of H-acid plant and the nature and extent of
the remedial operations. In pursuance of the directions, the
Commissioner visited the site from 31st August to 4th
September, 1990, conducted detailed survey and also B
*
> collected samples from a number of wells and drains. The
Commissioner in his report dated 20. 7.1991 indicated that the
overall quality of ground water in the area had become highly
polluted, the water had become unfit for consumption by man
or animal and was not even fit for irrigation. c
59. This Court by its order dated 17.2.1992 further directed
that the MOEF to inspect the area and ascertain about the
existence and extent of Gypsum and Iron based sludge over
there.. In pursuance of the above directions, a team of experts
of MOEF visited the site on 6.3.1992 and assessed the D
position in regard to storage of sludge collected from various
sites and presence of sludge in the factory premises. Samples
of water of wells around the factory were also collected for
analysis. The Union of India in an affidavit filed before this court
in pursuance of the said directions stated as follows: E
•... .. . ... That the report would reveal that the extent of
pollution in ground water seems to be very great and the
entire aquifer may be effected due to the pollution caused
- . by the industry. F
......... As the mother liquor produced during the process
(with pH-1.0) was highly acidic in nature and was
indiscriminately discharged on land by the unit, it is
possible that this might have eroded the soil and caused
the extensive damage. It is also possible that organic G
~-
contents of mother liquor would have gone into soil with
water to give radish colour.
In another inspection in July, 1992 carried out by a
team of experts of Ministry of Environment & Forests and H
218 SUPREME COURT REPORTS [2011] 9 S.C.R.
1--~
A Central Pollution Control Board, it was observed:
"......... A part of effluent from Sulphuric Acid Plant
is being discharged inside the factory. The effluent
dissolves H-acid sludge, which on percolation is likely to
cause further pollution of ground water.........
.
B ...
60. In pursuance to the order dated 15.7.1992 of this court,
the officials of the MOEF conducted inspection on 7.10.1992
and observed as under:
c "... ... .. . Untreated effluent from the solvent
extraction plant and the sulphuric acid plant were passing
through the sludge dump sites unabated, which was
resulting in further leaching of colour to ground water ....
..
D 61. The MOEF in the month of September, 1993 submitted
a report which reads as under:
"5.0 Conclusion
E 5.1 On the basis of the observations and analysis results,
it is concluded beyond doubt that the sludge inside the
entombed pit is the contaminated one as is evident from
the number of parameters analysed.
5.2 The ground water is also contaminated due to
F discharge of H-acid plant effluent as well as H-acid sludge/ .-
contaminated soul leachates as shown in the photographs
and also supported by the results. The analysis results
revealed good correlation between the colour of well water
and H-acid content in it. The analysis results show high
G degree of impurities in sludge/soil and also in well water
·~
which is a clear indication of contamination of soil and
ground water due to disposal of H-acid waste."
62. The report which was based upon the inspection of the
H area in September, 1993 revealed many other alarming
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 219
UNION OF INDIA & ORS. [DALVE(:R BHANDARI, ·J.]
features. In para 2, under the heading "Site Observations and A
Collection of Sludge/Contaminated Soil Samples", the following
facts were stated:
\
"2.1 The Central team, during inspection of the premises
of M/s. HACL observed that H-acid sludge (iron/
8
gypsum) and contaminated soil are still lying at
different places, as shown in Fig.1, within the
industrial premises (photograph 1) which are the
leftovers. The area, where the solar evaporation
pond was existing with H-acid sludge dumped here C
and there, was observed to have been leveled with
borrowed soil (photograph 2). It was difficult to
ascertain whether the sludge had been removed
before filling. However, there are visual evidences
of contaminated soil in the area.
D
2.2 · As reported by the Rajasthan State Pollution
Control Board (RSPCB) representatives, about 720
tonne out of the total contaminates soil and sludge
scraped from the sludge dump sites id disposed
in six lined entombed pits covered by lime/fly ash E
mix, brick soling and concrete (photographs 3 and
4). The remaining scrapped sludge and
contaminated soil was lying near the entombed pits
for want of additional disposal facility. However,
during the visit, the left over sludge and F
contaminated soil could not be traced at site.
Inspection of the surrounding area revealed that a
huge heap of foreign soil of 5 meter height
(photograph 5) covering a large area, as also
indicated in Fig. 1, was raised on the sloppy ground G
at the foothill within the industry premises. The
storm water run-off pathway over the area showed
indication of H-acid sludge leachates coming out
of the heap. Soil in the area was sampled for
analysis.
H
220 SUPREME COURT REPORTS (2011) 9 S.C.R.
A 2.3 Mis. HACL has a number of other industrial units
which are operating within the same premises
without valid consents from the Rajasthan State
Pollution Control Board (RSPCB). These plants are
Sulphuric Acid (H2S04), fertilizer (SSP) and
B vegetable oil extraction. The effluent of these units
are not properly treated and the untreated effluent
particularly from the acid plant is passing through
the sludge dump area playing havoc (photograph
7). The final effluent was collected at the outlet of
c the factory premises during operation of these units,
at the time of ground water monitoring in
September, 1993, by the RSPCB. Its quality was
observed to be highly acidic (pH: 1.08, Conductivity:
37,100 mg/I, 504:21,000 mg/I, Fe: 392 mg/I, COD:
167 mg/I) which was also revealed in the earlier
D
visits of the Central teams. However, these units
were not in operation during the present visit."
63. Under para 4.2.1, the report(:;d stated inter alia:
E 'The sludge samples from the surroundings of the
(presently non-existent) solar evaporation and the
contaminated soil due to seepage from the newly raised
dump site also exhibited very high values of the above
mentioned parameters. This revealed that the
F contaminated soil is buried under the new dump found by ' -
the team."
64. In the reply it is also mentioned that the NEERI
submitted its report in April, 1994 on the restoration of
environmental quality of the area surrounding village Bichhri,
G severally affected due to discharge of trade effluent and other
industrial wasters by respondent Nos. 4 to 8. The report was
submitted before this court in pursuance of its directions in the
matter. The report states that the studies were carried out by
the NEERI between September, 1992 and February, 1994. The
H report had been considered by this court at length on its own
. INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 221
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
merits and the observations of the court on the report are A
contained in the judgment pronounced by it on 13.2.1996.
65. In the reply it is also stated that this court besides
considering the report of the NEERI also looked into a number
+
of reports pertaining to inspections, surveys, studies and B
analysis of wastes and waste waters carried out by the experts
of the MOEF, Central Pollution Control Board (for short 'CPCB')
and the R.S.P.C.B on various occasions, while hearing the
matter and pronouncing the judgment therein on 13.2.1996.
Therefore, it is totally incorrect and erroneous to contend that
the order dated 13.2.1996 was solely based upon the report
c
submitted by the NEERI. Para IV of the conclusions of the
..... judgment dated 13.2.1996 observed as follows:
"... .. . .. . this court has repeatedly found and has
recorded in the orders that it is respondents who have D
caused the said damage. The analysis reports obtained
pursuant to the directions of the court clearly establish that
the pollution of the wells is on account of the wastes
discharged by respondent Nos. 4 to 8 i.e. production of
'H' Acid ........ ." E
66. In its reply the RSPCB further stated that the
respondent Nos. 4 to 8 filed a Writ Petition No. 338/2000
_.,\ challenging the judgment of this court dated 13.2.1996. This
court dismissed the petition, by order dated 18.7.2002, having
F
regard to the principles laid down in Rupa Ashok Hurra v.
Ashok Hurra & Another (2002) 4 SCC 388.
67. The RSPCB also stated in its reply that this court by
~,. order dated 4.11.1997 directed the MOEF to take necessary
steps to implement the directions contained in the judgment G
dated 13.2.1996 and accepted the proposals submitted by the
MOEF for the purpose of taking rerriedial measures by
appointing National Productivity Council (for short NPC), New
Delhi as Project Management 9onsultant. Pursuant to these
directions, the MOEF awarded the work of conducting H
222 SUPREME COURT REPORTS [2011) 9 S.C.R.
A feasibility studies for suggesting alternative methods for
remediation of affected environment in Bichhari, to a consortium
. '
of consultants namely: Mis. SENES Consultant Limited,
Canada and the NEERI, Nagpur. The above consultants in their
report stated that an area of 540 hectares had been affected
B due to industrial waste and needed remediation of •
contaminated ground water and soil. The said report
categorically stated about contamination of ground water and
of soil by H-acid. The report has been submitted by the MOEF
before this court in January, 2005. This court on 9.12.2004
c made the following order:
"......... The company M/s. Hindustan Agro
Chemical Limited, which is one of the respondents in the
main Writ Petition has filed a Petition supported by an
affidavit of one Shri D.P. Agarwal, a Director in the
D respondent Nos. 4-8 companies enclosing therewith
certain reports of the experts. It is the claim of the applicant
that at present, the effects caused by pollution on account
of operation of the concerned industries do not exist and
remedial measures, as contemplated in the main judgment
E of this Court need not be undertaken. The respondents
namely: UOI, the State of Rajasthan and the Rajasthan
State Pollution Control Board as well as the petitioner will
give their responses, if any, to this I.A. The Government of
F
India may depute an expert and be along with the expert
nominated by the Rajasthan State Pollution Control Board
..
and the nominee of the State Rajasthan shall visit the spot
after giving intimation to the Petitioner-Indian Council for
Enviro Legal Action and verify the facts stated in the
affidavit and report the latest position to the Court by the
G next date of hearing... . .. .. ." ...
68. An additional affidavit was also filed on behalf of
MOEF on the same lines and graphic description of existence
of the pollution has affected the ground water to an extent that
the entire aquifer may be affected due to the pollution caused
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 223
/
... UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
by the industry. The report further reveals that the problem in A
relation to the area in question is basically the contamination
of water and the major factor contributing to the cause has been
the improper disposal of sludge and liquid wastes from the unit.
It has been recommended by the expert team that due to
leachable components of the sludge the industry should prepare B
~
a double line pit containing impervious liners comprising
impervious clay and polyethylene sheets. The sludge should be
placed in this lined pit and covered with water proof layering
to such extent that no water can percolate through the stored
sludge. The soil in the premises of the industry has also been c
contaminated by the disposal of liquid effluents as well as the
sludge on the ground. The contaminated soil needs to be
removed and the entire area should be revamped. All industrial
... activities going on in the premises should be stopped to enable
the revamping process.
" D
69. Mr. Shanti Bhushan and Mr. Prashant Bhushan,
learned senior counsel in the written submissions filed by the
respondent Nos. 4 to 8 have quoted this court's direction. The
same is reproduced as under :-
E
"The Central Government shall determine the amount
required for carrying out the remedial measures .... The
Secretary shall thereupon determine the amount in
consultation with the experts of the Ministry......... the said
-~ amount shall represent the amount which respondents 4 F
to 8 are liable to pay to improve and restore the
environment in the area ....the factories, plant, machinery
and all other immovable assets of respondents 4 to 8 are
attached herewith. The amount so determine and
recovered shall be utilized by the MEF for carrying out all
~" G
necessary remedial measures to restore the soil, water
resources and the environment in general of the affected
area to its former state."
70. According to respondent nos. 4 to 8, two reports of the
NEERI of the same date were at variance with each other. In H
224 SUPREME COURT REPORTS [2011) 9 S.C.R.
A one report, the cost of remediation is mentioned as Rs.3 crores
whereas in other report presented before the court, the amount
was 37.385 crores.
71. Mr. Bhushan, learned senior counsel has submitted in
his written submission that according to the original report, it
8
was reported by the RSPCB that most of the wells within 1.5
km radius of the chemical plants of the respondents were
contaminated whereas according to the modified report those
wells were located within 6.5 km radius.
C 72. Mr. Bhushan has also submitted that the sludge had
been stored under the supervision of the RSPCB whereas
according to the modified report the industry had scattered the
sludge in an unmindful clandestine manner causing gross
pollution to avoid penal liability. ...
D
73. Reference has been made to the opinion of some
experts whose opinions were obtained at the behest of
respondent nos. 4 to 8. Their reports are contrary to the earlier
reports given by the other experts.
E 74. In the written submissions it is mentioned that M/s
Hindustan Zinc Limited was responsible for discharging
noxious and polluting effluents.
75. According to the applicant-industry, the RSPCB has
F not taken a consistent stand. ,~
76. In the supplementary submissions filed by Mr. K.B.
Rohatagi, the learned counsel appearing on behalf of
R.S.P:C.B., it is mentioned that in Interlocutory Application Nos.
36 and 44 the applicant-industry has resurrected the same
G grounds which have previously been settled by this court in ~"
Indian Council for Enviro-Legal Action and others v. Union
of India and Others (1996) 3 SCC 212.
77. Mr. Rohatagi also submitted in the supplementary
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 225
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
..... ~'
submissions that the question of liability and the amounts A
payable by the applicants based on the NEERI report has been
decided by the judgment in the writ petition. The review petition
against the said judgment was also dismissed by this court. On
4.11.1997 the applicants had even given an undertaking that
-; they would not dispute any fresh estimate for remedial B
.•
measures as prepared by the NEERI. The question of fraud and
tampering of the NEERI report of 1994 has been dealt with by
this court while dismissing the contempt petition filed by the
applicants against the R.S.P.C.B. Even the Curative Petition
filed by the applicants was also dismissed by this court on c
18.7.2002.
78. In the supplementary submissions it is also mentioned
••-.J that through Interlocutory Application Nos. 36 and 44 the
, applicants are merely trying to evade paying the amounts to be
paid as remedial measures by reopening issues already settled D
by this court. In the submissions Mr. Rohatagi has drawn our
attention to para 66 of the said judgment regarding the
applicant's liability, which reads as under:
"66. Once the law in Oleum Gas Leak case is held to be E
the law applicable, it follows, in the light of our findings
recorded hereinbefore, that Respondents 4 to 8 are
absolutely liable to compensate for the harm caused by
them to the villagers in the affected area, to the soil and
>-- -~ to the underground water and hence, they are bound to take F
all necessary measures to remove the sludge and other
pollutants lying the affected area (by affected area, we
mean the area of about 350 has indicated in the sketch
.at p. 178 of NEERI report) and also to defray the cost of
... ,, the remedial measures required to restore the soil and the G
underground water resources."
79. It is also submitted in the written submissions that the
Central Government was directed to determine the amounts for
remedial measures for the affected area of 350 hectares, as
mentioned in the NEER! report, after allowing the applicants to H
226 SUPREME COURT REPORTS [2011) 9 S.C.R.
.. ,
A make a representation. This court in para 70 of the said
judgment observed as under:
"Chapters VI and VII in the NEERI Report (submitted in
1994) shall be deemed to be the show cause notice
issued by the Central Government proposing the
B
determination of the said amount. Within six weeks from
this day, Respondents 4 to 8 shall submit their explanation,
along with such material as they think appropriate in
support of their case, to the Secretary, 'Ministry of
Environment and Forests, Government of India (MOEF).
c The Secretary shall thereupon determine the amount in
consultation with the experts of his Ministry within six
weeks of the submission of the explanation by the said
respondents. The orders passed by the Secretary (MOEF) ....
shall be communicated to Respondents 4 to 8 - and all
D concerned - and shall also be placed before this Court"
80. This court in the said judgment also directed that the
factories, plant, machinery and all other immovable assets of
Respondents 4 to 8 are attached herewith. The court also
E observed that the amount so determined and recovered shall
be utilized by the MOEF for carrying out all necessary remedial
measures to restore the soil, water resources and the
environment in general of the affected area in the former state.
81. It is also submitted in the supplementary submissions ••
F of RSPCB that this court in para 70 of the said judgment also
observed that the applicants have inflicted untold misery upon
the poor, unsuspecting villagers, despoiling their land, their
water resources and their entire environment, all in pursuance
of their private profit. They have forfeited all claims for any f· ..
G consideration by this court.
82. In the supplementary submissions filed by Mr. Rohatagi
it is also mentioned that the court even settled the issue of the
alleged hostility of the RSPCB towards the applicants and felt
H no reason to suspect the veracity of the reports submitted by
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 227
,... .~ "\:
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
the RSPCB. This court in para 39 of the said judgment A
observed as under:
"If the respondents establish and operate their plants
contrary to law, flouting all safety norms provided by law,
the RSPCB was bound to act. On that account, it cannot
B
be said to be acting out of animus or adopting a hostile
attitude. Repeated and persistent violations call for
repeated orders. That is no proof of hostility. Moreover, the
reports of RSPCB officials are fully corroborated and
affirmed by the reports of the Central team of experts and
of NEERI. We are also not prepared to agree with Shri c
Bhat that since the repor:t of NEERI was prepared at the
instance of RSPCB, it is suspect."
,.....
83. It is further submitted in the supplementary submissions
that in para 55 of the said judgment this court specifically held D
that Hindustan Zinc Limited is not responsible for the pollution
at Bichhri village. The court has observed as under:
"No report among the several reports placed before us in
these proceedings says that Hindustan Zinc Limited is
E
responsible for the pollution at Bicchhri village. Shri Bhat
brought to our notice certain reports stating that the
' discharges from Hindustan Zinc Limited were causing
pollution in certain villages but they are all downstream, i.e.,
.,._., ~
to the north of Bichhri village and we are not concerned
F
with the pollution in those villages in these proceedings.
The .bringing in of Hindustan Zinc Limited in these
proceedings is, therefore, not relevant. If necessary, the
pollution, if any, caused by Hindustan Zinc Limited can be
...... ::,- the subject-matter of a separate proceeding."
G
84. It is also further mentioned ~n the written submission
of RSPCB that the issue of quantification of amounts to be paid
by the industry has been settled by this court in its order dated
4.11.1997. The relevant portion of the order reads as under:
H
.;.i
...
228 SUPREME COURT REPORTS [2011] 9 S.C.R.
,_.
A " ...... remedial measures taken on the basis of the
NEERI report shall be treated as final.
We accept the proposal submitted by the
Government of India for the purpose of taking remedial
measures by appointing National Productivity Council as
8
the Project Management Consultant. In our opinion the
Ministry of Environment and Forests, Government of India
has rightly made a demand for Rs.37.385 crores."
85. It is also mentioned in the supplementary submissions
c that this court on 3.8.2005 directed that the sale should take
place expeditiously to realize the amount for remedial
measures. The assessment of areas affected by the pollution
and settled by the District Collector at 642 hectares was also ~.
accepted by this court vide its order dated 3.8.2005.
D
86. It may be pertinent to mention that this court had
accepted the affidavit of Mr. S.N. Kc:.ul, Acting Director, NEERI
regarding tampering with the report and this court by its order
dated 1.10 .1999 observed as under:
E "It appears that two scientists appointed by the
petitioner had inspected a report in the office of NEERI and
then observed that there has been a fabrication carried out
by the Pollution Control Board. From what has been stated
-
hereinabove, the charge of fabrication is clearly unfounded. ..
F It is possible that these two scientists may have seen the
draft report which would be with the NEERI but the original
report when prepared would be one which was, ultimately,
submitted to the sponsoring agency, namely the Rajasthan
Pollution Control Board and it is only a copy of the same
G which could have been retained by the NEERI. Be that as ' ....
it may, it is clear that what has been filed in this Court as
being the final report of NEERI was the copy of the final
report which was received by it. There is no basis for
contending that any of the respondents have been guilty
H of fabrication. The whole application to our mind is without
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 229
,..__ .,. UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
any merit." A
87. It is further submitted in his supplementary submissions
that this court in para 54 of its order dated 13.2.1996 had upheld
the integrity of the reports submitted by the NEERI. Para 54 of
order dated 13.2.1996 reads as under:
B
"Moreover, the reports of RSPCB officials are fully
corroborated and affirmed by the reports of the central
team of experts and of the NEERI. We are also not
prepared to agree with Shri Bhat that since the report of
the NEERl·was prepared anhe instance of RSPCB, it is c
suspect. This criticism is not only unfair but is also
uncharitable to the officials of NEERI who have no reason
_.., to be inimical to the respondents. If, however, the actions
of the respondents invite the concern of the experts and if
~
they depict the correct situation in their reports, they cannot D
be accused of any bias .
... ... ...
... ... ...
E
The persons who made the said reports are all experts in
their field and under no obligation either to the RSPCB or
for that matter to any other person or industry. It is in view
of their independence and competence that their reports
.,.._ ~
were relied upon and made the basis of passing orders F
by this court from time to time."
88. In the supplementary submissions it is also mentioned
that the report of 25th January, 2005 is a joint report by the
... NEERI, R.S.P.C.B. and officers of Department of Environment,
Government of Rajasthan. The team collected soil samples from
G
7 sites, one sample from lake Udaisagar and 17 well water
samp1es from the impacted and nearby areas. The report
concluded as under:
"All the well water samples in the impacted zone have also H
230 SUPREME COURT REPORTS [2011] 9 S.C.R.
A shown colour from pale yellow to dark brown. As the
...
industries located within the HACL plant premises were
the only source of H-acid, HACL alone is responsible for
causing pollution by H-acid and its derivatives in the
impacted area. Considering the remediation goal of Omg/
B I for H-acid and its derivatives are potential carcinogenic,
all well waters, contaminated with H-acid and its
derivatives, require remediation.
c
fiudden emergence of H-acid in wells W7(Aug.99) and W9
(Aug. 99) clearly indicate that the plume of H-acid
c:ontaminated groundwater is moving away from the
D source of origin and spreading in the direction of
9roundwater flow. This is further confirmed from another
fairly conservative parameter TJS whose emergence has
been documented in all the wells (W7, W9, W1, W13 and
W16) from time to time. Similar trend could be observed
with respect to sulphate and chloride in well water samples
E
collected from these five wells. Comparison of the results
obtained in the present study with that of earlier studies
establish that the ground water plume contaminated by H-
acid and its derivatives is still moving in the direction of
ground water flow thereby contamination area being larger
F than that earlier. This was predicted in the joint report
prepared by SENES and the NEER! (SENES and the
NEERI, 2002)."
89. This report was submitted to the court along with the
G affidavit dated 8.3.2007 filed by the Union of India. • ..
90. In the supplementary submissions it is also submitted
that due to some alleged variations, the Director of ITRC (Indian
Toxicological Research Centre) was asked to make a rapid
H assessment on 6.5.2006. In response, the Director of ITRC
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 231
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
. _ ~·
stated that there may be a variation due to a lapse of time A
between the 2002 and 2005 reports. Based on this, MOEF
asked the National Chemical Laboratory, Pune to undertake a
study, the results of which (placed before the Court in affidavits
of 22.1.07 and 8.3.2007) showed that no aspersions can be
-~
cast on the NEERI report of 1994. Further, it would be incorrect B
to suggest that the remedial measures as imposed on the
applicants were limited to neutralizing the presence of H-acid
in the soil alone, in fact it is clear from the judgment of 1996
and subsequent reports that what has to be done is:
(a) removal of sludge which has also percolated down
c
in the soil; and
(b) restoration of the area including perforce, making
--· , it possible for farmers and others to return to the
natural uses of the affected land. D
91. It is further submitted in the supplementary submissions
of RSPCB that the Interlocutory Applications Nos. 36 and 44
are just another example of obstructive litigatior; undertaken to
avoid responsibility. Since 1996 the applicants have filed E
various applications and petitions in this court to delay the
payment of damages. It is also submitted that any delay caused
in the payment of damages for remedial measures has,
therefore, been on the part of the applicants. It would be wrong
.... to suggest that the Union is responsible for the delay in sale of
F
assets of the industry. The applicants have violated orders of
this court in relation to disclosure of assets dated 18.8.04,
9.12.04 and 17.3.05, because of which it was impossible for
the Union of India to sell the applicant's attached properties.
.: ~
92. Mr. Rohatagi submitted that the applicants relied upon G
a series of reports by private consultants, filed subsequent to
the decision, which are as follows:
(a) llT Bombay Report of May 2005 suggesting that the
samples collected on 5th April, 2005 show that there is no
H
232 SUPREME COURT REPORTS (2011] 9 S.C.R.
·-.
A H-acid or other pollutants.
(b) A report by Dr. BR Bamniya dated 22.4.04 stating that
no soil pollutants or water pollutants found and
" ... the presence of H-acid has not been recorded >
B in any water sample of well and in tube well."
(c) Report of Expert Group on Water Pollution of March
1981 showing that pollution caused by M/s. Hindustan
Zinc Ltd. Further no action has been taken against M/s.
c Hindustan Zinc Limited on the basis of that report.
(d) Report of Mis. Shah Doctor Associates of April, 1994
critical of the analysis in the NEERI report.
'""-
(e) Report of SP Mahajan of llT Bombay dated 19.8.1999
D stating that no H-Acid found in the well waters.
93. It is further submitted in the supplementary submissions
that the NEERI report of 2005 also dealt with three private
reports which were rejected on the basis that they were
E superficial.
94. Mr. Rohatagi further submitted that the liability of the
applicants-industries has been fixed far back in 1996. Merely
because there may be a diminution in respect of some
pollutants due to the passage of time does not, in any way, take ••
F away from the responsibility on the applicant to undertake
remedial measures for the past and continuing damage to the
people and the environment caused by the applicants-
industries. The individual claims of farmers may be dealt within
individual cases, which would not obviate the need for
G restoration of the area. This flows from a joint reading of
directions of the court in para 71 of the judgment reported in
Indian Council for Enviro-Legal Action (supra).
95. According to the RSPCB Interlocutory Application Nos.
H 36 and 44 are blatant examples of vexatious litigation indulged
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 233
. _.,
_
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
in to avoid the responsibility fixed by this court. These A
applications should be dismissed with heavy costs on the
applicants.
96. Mr. M.C. Mehta, Advocate has filed written
),
submissions on behalf of Indian Council for Enviro Legal Action. B
( • It is reiterated in the submissions that these applications are
blatant disregard towards complying with the directions of this
court. They have made mockery with the environmental justice
delivery system by filing these applications. They have shown
no contrition for causing irreparable damage to the life, health
and property of the people affected by their commercial
c
activities. The applicants are trying to delay the payment of
Rs.37.385 crores for carrying out remedial measures. This
-- ,
court in para 70 of the judgment reported in Indian Council for
Enviro-Legal Action (supra) observed as under:
D
"On account of (the respondents) continuous,
persistent and insolent violations of the law.... and their
non-implementation of the orders of this .... (the
respondents) have earned the dubious distinction of being
characterized as "rogue industries". They have inflicted E
untold misery upon the poor, unsuspecting villagers,
despoiling their land, their water sources and their entire
environment - all in pursuit of private profit."
...... \ 97. Mr. Mehta also submitted in his submissions that the
F
applicants (respondent Nos. 4 to 8) are related to the
discharge of untreated chemical effluents in violation of the laws
of the land in Bichhri and surrounding villages and caused grave
harm to the environment and people in Bichhri and surrounding
. ~
villages.
98. In the written submissions Mr. Mehta also submitted
G
that the reports procured by the respondent companies by hiring
consultants do not hold any weight due to lack of substantial
scientific investigations. They cannot in any way question the
credibility of nine scientific reports, submitted following H
234 SUPREME COURT REPORTS [2011] 9 S.C.R.
A extensive field visits, survey and research by scientists from
...
reputed scientific institutions such as the CPCB, NEERI,
SENES, RSPCB.and the Centre for Science and Environment
and other reports, respectively submitted by the district collector
and the Court Commissioner appointed by this court.
B
99. Mr. Mehta also mentioned in his written submissions
that the veracity of the contents of the NEERI report has been
affirmed in at least four subsequent reports from reputed
scientific organizations, MOEF, State of Rajasthan as well as
the district collector.
c
100. Mr. Mehta has also submitted that assuming, though
not conceding, that there is currently no pollution in Bichhri
village, this cannot absolve the applicants-industries from the
obligation to pay monies necessary for eco-restoration and
D damages caused to the life and health of the people as well
as their property in the past. The polluters/respondents
recklessly destroyed the environment, surface and underground
water and the soil and killed fruit trees, animals and vegetation
apart from causing suffering and irreparable damages to the
E lands, property, life and health of the people in flagrant violation
of environmental laws and directions given by various
authorities including the orders of this court. The civil and
criminal liability upon the respondents for the environmental
crimes, irreparable damages caused to the environment, flora
F and fauna, life, health and property of innocent people living in ...
Bichhri and surrounding villages cannot be condoned at any
cost.
101. Mr. Mehta submitted that even if it was possible to
accept that all H-acid traces have been removed, the presence
G of other contaminants in the affected area (including highly toxic • ,.
wastes emanating from the Sulphuric Acid Plant and other
plants) would necessitate remediation. The amount can be
deposited in a Fund and utilized for remediation, providing
potable water, tree plantation, and such other measures which
H would be helpful to the environment of the area apart from
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 235
. _, UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
paying d,amages to the people. A
102. Mr. Mehta has further submitted that this court may
impose upon the errant industries as exemplary punitive
damages apart from the amount required for eco-restoration
> by way of remediation of the land, water and the environment.
i B
This may be considered in the light of the continuing public
nuisance and suffering due to pollution, severely degraded
environment, loss to the property, irreparable damage to the
ecology and precious natural resources - land, air, aquifers,
surface water, flora and fauna - for over twenty years since the
original petition was filed. The implications of failing to c
remediate the affected land, water and environment over such
an extensive period of time are far more severe than had the
-- applicants-industries immediately complied with the orders of
this court.
D
103. Mr. Mehta also placed reliance on a judgment of this
court in the case of M. C. Mehta v. Kamal Nath and others
(2000) 6 sec 213, in which the court observed as under:
"... pollution is a civil wrong. By its very nature, it is a E
tort committed against the community as a whole. A
person, therefore, who is guilty of causing pollution, has to
pay damages (compensation) for restoration of the
environment and ec.ology. He has also to pay damages to
.--'ii those who have suffered loss on account of the act of the
F
offender. The powers of this court under Article 32 are not
restricted and it can award damages in a PIL or a Writ
.· Petition as has been held in a series of decisions. In
_J
addition to damages aforesaid, the person guilty of
:t causing pollution can also be held liable to pay exempla
"''I
y damages so that it may act as a deterrent for oth G
rs not to cause pollution in any manner." 104. Mr. Mehta su
milted that having regard to the respondent's conduct in t
e present case, it would be reasonable to impose an addition
I pecuniary penalty on them. Reliance is placed on M
nister for the environment and Heritage v. Greentree (No.3) H
236 SUPREME COURT REPORTS [2011] 9 S.C.R.
A (2004] FCA 1317, wherein the Federal Court imposed a
pecuniary penalty against the respondents totaling $450,000
for having illegally cleared declared a Ramsar wetland. A strong
factor contributing to the imposition of a substantial penalty was
because the actions of the respondent were deliberate,
B sustained and serious, they took place over a substantial period
of time and the respondents did not exhibit any contrition.
105. Mr. Mehta also submitted that the present case would
warrant a severe penalty because the respondents carried out
their activities without even possessing any appropriate
C licenses. Respondents must be required to pay exemplary
damages so as to act as a deterrent for others, as also to
remedy the harm they have caused to the environment and the
villagers of Bichhri.
D 106. Mr. Mehta has also placed reliance on the famous
"Love Canal Case" United States v. Hooker Chems and
Plastics Corp., 722 F. Supp 960 (W.D.N.Y. 1989). This case
was initiated after it was discovered thct a school, homes and
rental units were built over approximately 21,000 tonnes of
E chemical waste at Niagara Falls, New York. The Federal Court
of New York allowed a claim against the defendants based on
public nuisance. This case was ultimately settled with the
defendant agreeing to pay $129 million to the Environment
Protection Authority. This case led to the development of the
F Comprehensive Response Compensation and ••
Environmental Liability Act, 1.980, more commonly
referred to as the "Superfund", into which polluters contribute
monies to enable clean-up of toxic sites.
107. In the written submissions filed by Mr. Mehta he has
G also mentioned about principle of accountability and it is the
duty and obligation of the court to protect the fundamental rights
of the citizens under Article 32 of the Indian constitution.
Pollution and public nuisance resulting from mis-regulation
infringes on the fundamental rights, including the right to life
H under Article 21 of the Indian constitution. Mr. Mehta also
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 237
·" ... UNION OF INDIA & ORS: [DALVEER BHANDARI, J.]
submitted that applicants are liable for causing continuous A
suffering to the people in Bichhri and surrounding villages.
108. Mr. Mehta also submitted in his written submissions
that in several cases of environmental pollution the courts have
! ordered the payment of damages by the errant industries/ B
individuals responsible for causing pollution in violation of
environmental related issues and the money recovered be
spent for remediation or eco-restoration and damages be paid
to the victims or spent for their benefit. It is the duty of the
government to ensure proper administration of this fund in a
transparent and accountable manner. The establishment of
c
such a fund would ensure that polluters take responsibility for
- ·1
their actions and that monies derived from penalties, damages
and settlement are directly invested towards remediating the
environmental damage that has occurred.
D
109. Mr. Mehta further mentioned in his submissions that
creation of such a fund would be consistent with the
precautionary principle which has been evolved and accepted
by this court. He has also mentioned that similar funds have
been set-up in United States of America, Canada, Australia, E
Malaysia and other countries.
110. Mr. Mehta also made a reference regarding Public
Liability Insurance Act, 1991 which makes it mandatory for
--- ;J4
industries handling hazardous material to be insured against
F
environmental hazards. However, this legislation only provides
relief to persons affected by accidents whilst handling
hazardous materials, who are most likely to be workers.
Members of the local community would not obtain relief under
*'" ~ this legislation, though they are also adversely affected by
hazardous industries. This is most pertinently exemplified in the G
present case.
111. In his written submissions Mr. Mehta also submitted
that the applicants clearly show defiance of the environmental
laws and the orders of this court. Mr. Mehta prayed for H
238 SUPREME COURT REPORTS [2011] 9 S.C.R.
A. dismissal of Interlocutory Application Nos. 36 of 2004 and 44
of 2007 with heavy costs and direct the respondents to deposit
Rs.37.385 crores with the MOEF as per the judgment of this
court.
112. This case raises many substantial questions of law.
8
We would briefly deal with some of them.
113. 'v'Je would also like to discuss the concept of Finality
of the Judgment passed by the Apex Court.
C FINALITY OF JUDGMENT
114. The maxim 'interest Republicae ut sit finis litium' says
that it is for the public good that there be an end of litigation
after a long hierarchy of appeals. At some stage, it is
necessary to put a quietus. It is rare that in an adversarial
D system, despite the judges of the highest court doing their best,
one or more parties may remain unsatisfied with the most
correct decision. Opening door for a further appeal could be
opening a flood gate which will cause more wrongs in the
society at large at the cost of rights.
E
• 115. It should be presumed that every proceeding has
gone through infiltration several times before the decision of the
Ap~x Court. In the instant case, even after final judgment of this
court, the review petition was also dismissed. Thereafter, even
F the curative petition has also been dismissed in this case. The
...
controversy between the parties must come to an end at some
stage and the judgment of this court must be permitted to
acquire finality. It would hardly be proper to permit the parties
to file application after application endlessly. In a country
G governed by the rule of law, finality of the judgment is absolutely
..,,,
imper~tive and great sanctity is attached to the finality of the
judgment. Permitting the parties to reopen the concluded
judgments of this court by filing repeated interlocutory
applications is clearly an abuse of the process of law and would
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 239
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
~~ 11
have far reaching adverse impact on the administration of A
justice.
116. In Manganese Ore (India) Ltd. v. The Regional
Assistant Commissioner of Sales Tax, Jabalpur (1976) 4
sec 124 this court held that the doctrine of stare decisis is a
B
very valuable principle of precedent which cannot be departed
from unless there are extraordinary or special reasons to do
so.
117. In Green View Tea & Industries v. Collector, Go/aghat
and Another (2002) 1 sec 109 this court reiterated the view c
that finality of the order of the apex court of the country should
not lightly be unsettled.
--...., 118. A three-Judge Bench of this court in Mis Northern
y
India Caterers (India) Ltd. v. Lt. Governor of Delhi (1980) 2
sec 167 held that a party is not entitled to seek a review of D
this court's judgment merely for the purpose of rehearing and
for a fresh decision of the case. Departure from the normal
principle that the court's judgment is final would be justified only
when compelling our substantial circumstances make it
necessary to do so. Such circumstances may be that a material E
statutory provision was not drawn to the court's attention at the
original hearing or a manifest wrong has been done.
119. Relying on Union of India & Another v. Raghubir
..,.._ '.II; Singh (Dead) by L.Rs. (1989) 2 SCC 754, this Court in
F
·Krishna Swami v. Union of India and others (1992) 4 SCC 605
held that the plea for reconsideration is not to be entertained
merely because the petitioner chooses to reagitate the points
concluded by the earlier decision in Sub-committee on Judicial
. '.\
Accountability v. Union of India (1991) 4 SCC 699.
G
120. In Mohd. Aslam v. Union of India & Others (1996) 2
sec 749, the Court considered the earlier decisions and held .
that the writ petition under article 32 of the Constitution assailing
the correctness of a decision of the Supreme Court on merits
or claiming reconsideration is not maintainable. H
240 SUPREME COURT REPORTS [2011] 9 S.C.R.
\ 121. In Khoday Distilleries Ltd. and Another v. Registrar
' .
General, Supreme Court of India (1996) 3 SCC 114, the Court
held the reconsideration of the final decision of the Supreme
Court after review petition is dismissed by way of writ petition
under article 32 of the Constitution cannot be sustained.
B
122. In Gurbachan Singh & Another v. Union of India &
Another (1996) 3 SCC 117, the Court held that the judgment
order of this court passed under Article 136 is not amenable
to judicial review under Article 32 of the Constitution.
c 123. Similar view was taken in Babu Singh Bains and
others v. Union of India and Others (1996) 6 SCC 565, a three-
Judge bench of this Court held that a writ petition under Article
32 of the Constitution against the order under Article 136 of the
Constitution is not maintainable. ,.,..
D v
124. Another three-Judge bench of this Court in P.
Ashokan v. Union of India & Another(1998) 3 SCC 56, relying
upon the earlier cases held that the challenge to the correctness
of a decision on merits after it has become final cannot be
questioned by invoking Article 32 of the Constitution. In the
E
instant case the petitioner wants to reopen the case by filing
the interlocutory application.
125. In Ajit Kumar Barat v. Secretary, Indian Tea
Association & Others (2001) 5 SCC 42, the Court placed
F reliance on the judgment of a nine-judge Bench in Naresh ...
Shridhar Mirajkar v. State of Maharashtra and another AIR
1967 SC 1 and the Court observed as under:
"It is difficult to see how this decision can be pressed into
G service by Mr. Setalvad in support of the argument that a
judicial order passed by this Court was held to be subject
' .
to the writ jurisdiction of this Court itself.... In view of this
decision in Mirajkar case it must be taken as concluded
that judicial proceedings in this Court are not subject to the
writ jurisdiction thereof."
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 241
UNION OF INDIA & ORS. [DALVEER !3HANDARI, J.]
~ i I
I
126. The Court in the said case observed that having A
regards to the facts and circumstances of the case, this. is not
a fit case to be entertained to exercise jurisdiction under Article
32 of the Constitution.
;
127. In Mr. "X' v. Hospital "Z" (2000)9 SCC 439, this Court I
held thus: Bl
"Writ petition under Article 32 of the Constitution
· against the judgment already passed by this Court cannot
be entertained. Learned counsel for the petitioner stated
that prayer (a) which seeks overruling or setting aside of c
the judgment already passed in Mr X v. Hospital Z may
be deleted. This prayer shall accordingly be deleted. So
_..., also, the other prayers which indirectly concern the
correctness of the judgment already passed shall stand
..,
deleted. Learned counsel for the petitioner stated that the D
petition may not be treated as a petition under Article 32 .
of the Constitution but may be treated as an application
for clarification/directions in the case already decided by
this Court, viz., Mr Xv. Hospital Z (CA No. 4641of1998)."
E
128. In Triveniben v. State of Gujarat (1989)1 SCC 678
speaking for himself and other three learned Judges of the
Constitution Bench through Oza, J., reiterated the same
principle. The court observed: (SCC p. 697, para 22)
. ·- . " ... It is well settled now that a judgment of court can F
never be challenged under Articles 14 or 21 and therefore
the judgment of the court awarding the sentence of death
is not open to challenge as violating Article 14 or Article
21 as has been laid down by this Court in Naresh
#- -~ Shridhar Mirajkar (supra) and also in A.R. Antu/ay v. R.S. G
Nayak, the only jurisdiction which could be sought to be
exercised by a prisoner for infringement of his rights can
be to challenge the subsequent events after the final
judicial verdict is pronounced and it is because ofthis that
on the ground of long or inordinate delay a condemned H
242 SUPREME COURT REPORTS [2011] 9 S.C.R.
..
A prisoner could approach this Court and that is what has
consistently been held by this Court. But it will not be open
to this Court in exercise of jurisdiction under Article 32 to
go behind or to examine the final verdict reached by a
competent court convicting and sentencing the condemned
B prisoner and even while considering the circumstances in
order to reach a conclusion as to whether the inordinate
delay coupled with subsequent circumstances could be
held to be sufficient for coming to a conclusion that
execution of the sentence of death will not be just and
c proper. ... "
129. In Rupa Ashok Hurra (supra), this Court observed
thus:
I \.---
24.... when reconsideration of a judgment of this Court is
•
D sought the finality attached both to the law declared as well
as to the decision made in the case, is normally brought
under challenge. It is, therefore, relevant to note that so
much was the value attached to the precedent of the
highest court that in The London Street Tramways Co. Ltd.
E v. London County Council (1898 AC 375) the House of
Lords laid down that its decision upon a question of law
was conclusive and would bind the House in subsequent J
cases and that an erroneous decision could be set right
F
only by an Act of Parliament.
.; .. '
.........
... ... ...
26 .... This Court will not sit as a court of appeal from its
G own decisions, nor will it entertain applications to review
on the ground only that one of the parties in the case
conceives himself to be aggrieved by the decision. It would
in our opinion be intolerable and most prejudicial to the
public interest if cases once decided by the Court could
be reopened and reheard:
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 243
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
t· t
"There is a salutary maxim which ought to be A
observed by all courts of last resort - interest
reipublicae ut sit finis litium. (It concerns the State
that there be an end of Jawsuits. It is in the interest
of the State that there should be an end of lawsuits.)
·•. Its strict observance may occasionally entail B
hardship upon individual litigants, but the mischief
arising from that source must be small in
comparison with the great mischief which would
necessarily result from doubt being thrown upon the
finality of the decisions of such a tribunal as this." c
32. "... When this Court decides questions of law, its
decisions are, under Article 141, binding on all courts within
... the territory of India, and so, it must be the constant
endeavour and concern of this Court to introduce and
maintain an element of certainty and continuity in the D
interpretation of law in the country. Frequent exercise by
this Court of its power to review its earlier decisions on
the ground that the view pressed before it later appears
to the Court to be more reasonable, may incidentally tend
to make law uncertain and introduce confusion which must E
be consistently avoided. That is not to say that if on a
subsequent occasion, the Court is satisfied that its earlier
decision was clearly erroneous, it should hesitate to correct
the error; but before a previous decision is pronounced to
be plainly erroneous, the Court must be satisfied with a fair F
amount of unanimity amongst its members that a revision
of the said view is fully justified. It is not possible or
desirable, and in any case it would be inexpedient to lay
down any principles which should govern the approach of
... \ the Court in dealing with the question of reviewing and G
revising its earlier decisions."
33. In Magan/al Chhaganlal (1974) 2 SCC 402 case a
Bench of seven learned Judges of this Court considered,
inter alia, the question: whether a judgment of the Supreme
244 SUPREME COURT REPORTS [2011) 9 S.C.R.
A Court in Northern India Caterers case (1967) 3 SCR 399
..
was required to be overruled. Khanna, J. observed: (SCC
p. 425, para 22)
"At the same time, it has to be borne in mind that
certainty and continuity are essential ingredients of
B
rule of law. Certainty in law would be considerably
eroded and suffer a serious setback if the highest
court of the land readily overrules the view
expressed by it in earlier cases, even though that
view has held the field for a number of years. In quite
c a number of cases which come up before this Court,
two views are possible, and simply because the
Court considers that the view not taken by the Court
in the earlier case was a better view of the matter
would not justify the overruling of the view. The law '"
D laid down by this Court is binding upon all courts in
the country under Article 141 of the Constitution,
and numerous cases all over the country are
decided in accordance with the view taken by this
Court. Many people arrange their affairs and large
E number of transactions also take place on the faith
of the correctness of the view taken by this Court.
It would create uncertainty, instability and confusion
if the law propounded by this Court on the basis of
which numerous cases have been decided and
F many transactions have taken place is held to be
not the correct law."
42. The concern of this Court for rendering justice in a
cause is not less important than the principle of finality of
its judgment. "We are faced with competing principles - i ,...
G
ensuring certainty and finality of a judgment of the Court
of last resort and dispensing justice on reconsideration of
a judgment on the ground that it is vitiated being in violation
of the principles of natural justice or giving scope for
apprehension of bias due to a Judge who participated in
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 245
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
r· 1
the decision-making process not disclosing his links with A
a party to the case, or on account of abuse of the process
of the court. Such a judgment, far from ensuring finality, will
always remain under the cloud of uncertainty. Almighty
alone is the dispenser of absolute justice - a concept
which is not disputed but by a few. We are of the view that B
'~ though Judges of the highest court do their best, subject
of course to the limitation of human fallibility, yet situations
may arise, in the rarest of the rare cases, which would
require reconsideration of a final judgment to set right
miscarriage of justice complained of. In such case it would c
not only be proper but also obligatorY both legally and
morally to rectify the error. After giving our anxious
consideration to the question, we are persuaded to hold
that the duty to do justice in these rarest of rare cases shall
.. have to prevail over the policy of certainty of judgment as D
though it is essentially in the public interest that a final
judgment of the final court in the country should not be open
to challenge, yet there may be circumstances, as
mentioned above, wherein declining to reconsider the
judgment would be oppressive to judicial conscience and
E
would cause perpetuation of irremediable injustice."
130. A four-judge bench of this court in Sumer v. State of
U.P. (2005) 7 SCC 220 observed as under:
. )
"In Rupa Ashok Hurra (supra) while providing for the F
remedy of curative petition, but at the same time to prevent
abuse of such remedy and filing in that garb a second
review petition as a matter of course, the Constitution
Bench said that except when very strong reasons exist, the
court should not entertain an application seeking .G
""" ~ reconsideration of an order of this Court which has
become final on dismissal of review petition. In this view,
strict conditions including filing of certificate by a Senior
Advocate were provided in Rupa Ashok Hurra (supra).
Despite it, the apprehension of the Constitution Bench that H
246 SUPREME COURT REPORTS [2011) 9 S.C.R.
••
A the remedy provided may not open the flood gates for filing
a second review petition has come true as is evident from
filing of large number of curative petitions. It was expected
that the curative petitions will be filed in exceptional and
in rarest of rare case but, in practice, it has just been
B opposite. This Court, observing that neither it is advisable
nor possible to enumerate all the grounds on which curative
petition may be entertained, said that nevertheless the
petitioner is entitled to relief ex debito justitiae if he
establishes (1) violatio,n of principles of natural justice in
c that he was not ~ party to the lis but the judgment adversely
affected his interests or, if he was a party to the lis, he was
not served with notice of the proceedings and the matter
proceeded as if he had notice, and (2) where in the
proceedings a learned Judge failed to disclose his
connection with the subject-matter or the parties giving
D
scope for an apprehension of bias and the judgment
adversely affects the petitioner. To restrict filing of the
curative petitions only in genuine cases, Rupa Ashok
Hurra (supra) provided that the curative petition shall
contain a certification by a Senior Advocate with regard
E
to the fulfilment of all the requirements provided in the
judgment. Unfortunately, in most of the cases, the
certification is casual without fulfilling the requirements of
the judgment."
F 131. In Sita Ram Bhandar Society, New Delhi v. ••
Lieutenant Governor, Government of NCT, Delhi & Others
(2009) 10 SCC 501, this Court held thus:
"41. We must also observe that the petitioner has been
able to frustrate the acquisition and development of the
G ' :al(
land right from 1980 onwards by taking recourse to one
litigation after the other. The record reveals that all the suits/
writ petitions, etc. that had been filed had failed.
Undoubtedly, every citizen has a right to utilise all legal
H means which are open to him in a bid to vindicate and
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 247
)'' "' UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
protect his rights, but if the court comes to the conclusion A
that the pleas raised are frivolous and meant to frustrate
and delay an acquisition which is in public interest,
deterrent action is called for. This is precisely the situation
in the present matter.
' B
42. The appeals are, accordingly, dismissed with costs
which are determined at rupees two lakhs. The
respondents, shall, without further loss of time proceed
against the appellant."
132. This court in a recent judgment in M. Nagabhushana c
v. State of Kamataka and others (2011) 3 SCC 408 observed
that principle of finality is passed on high principle of public
policy. The court in para 13 of the said judgment observed as
.. under:
D
<\ "That principle of finality of litigation is based on high
principle of public policy. In the absence of such a principle
great oppression might result under the color and pretence
of law inasmuch as there will be no end of litigation and a
rich and malicious litigant will succeed in infinitely vexing
E
his opponent by repetitive suits and actions. This may
compel the weaker party to relinquish his right. The
doctrine of res judicata has been evolved to prevent such
an anarchy. That is why it is perceived that the plea of res
judicata is not a technical doctrine b~t a fu~damen~al
"~ principle which sustains the rule of law m ensuring finality
F
in litigation. This principle seeks to promote hones~ and
.•
a fair administration of justice and to .preven~ abuse m ~he
matter of accessing court for agitating on issues which
have become final between the parties." G
\
133. In order to discourage a litigation which reopen~ !he
final judgment of this court, while dismissing the pet1t1on
imposed costs of rupees 10 lakhs.
134. We find full corroboration of this principle from the H
248 SUPREME COURT REPORTS [2011] 9 S.C.R.
.. .
A cases of other countries. We deem it appropriate to mention
some of these relevant cases in the succeeding paragraphs.
ENGLAND
135. The England cases have consistently taken the view
B that the judgments of final court must be considered final and
conclusive. There must be certainty in the administration.
Uncertainty can lead to injustice. Unless there are very
exceptional or compelling reasons the judgment of apex courts
should not be reopened.
c
136. In Regina v. Gough, [1993] 1 A.C. 646, with regards
to setting aside judgments due to judicial bias, the House of
Lords held that there "is only one established special category
and that exists where the tribunal has a pecuniary or proprietary •
D interest in the subject matter of the proceedings as in Dimes
v. Proprietors of Grand Junction Canal, (1852) 3 H.L. Cases
759. The courts should hesitate long before creating any other
special category since this will immediately create uncertainty
as to what are the parameters of that category and what is the
test to be applied in the case of that category." Lord Goff of
E
Chievely stated that
"I wish to draw attention to the fact that there are certain
F
cases in which it has been considered that the
circumstances are such that they must inevitably shake
public confidence in the integrity of the administration of
.'
justice if the decision is to be allowed to stand. Such cases
G
attract the full force of Lord Hewart C.J.'s requirement that
justice must not only be done but must manifestly be seen
to be done. These cases arise where a person sitting in
a judicial capacity has a pecuniary interest in the outcome
of the proceedings. In such a case, as Blackburn J. said
....
in Reg. v. Rand (1866) LR. 1 Q.B. 230, 232: "any direct
pecuniary interest, however small, in the subject of inquiry,
does disqualify a person from acting as a judge in the
H matter. n The principle is expressed in the maxim that
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 249
r _, UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
nobody may be judge in his own cause (nemo judex in sua A
causa) ... In such a case, therefore, not only is it irrelevant
that there was in fact no bias on the part of the tribunal,
but there is no question of investigating, from an objective
point of view, whether there was any real likelihood of bias,
t " or any reasonable suspicion of bias, on the facts of the B
particular case. The nature of the interest is such that public
confidence in the administration of justice requires that the
decision should not stand" (p. 661).
137. In R v. Bow Street Metropolitan Stipendiary
Magistrate, ex parte Pinochet Ugarte (No 2) (1999) 2 W.L.R.
c
272, the House of Lords set aside one of its earlier orders. In
this case, the majority at the House of1Lords had earlier ruled
__, whether Augusto Pinochet, the former dictator of Chile, could
be extradited to Spain in order to stand trial for alleged crimes
against humanity and was not entitled to sovereign immunity. D
Amnesty International had been an intervener in this case in
opposition to Pinochet. Lord Hoffman, one of the majority
'
judges, was a director of Amnesty International Charitable Trust,
an organization controlled by Amnesty International, and Lady
Hoffman had been working at Al's international secretariat E
since 1977. The respondent was not aware of Lord Hoffman's
relationship to Al during the initial trial. In this case, the House
of Lords cited with approval the respondents' concession
,.,- ~ acknowledging the House of Lords' jurisdiction to review its
decisions - F
"In principle it must be that your Lordships, as the ultimate
court of appeal, have power to correct any injustice caused
by an earlier order of this House. There is no relevant
>~ statutory limitation on the jurisdiction of the House in this G
regard and therefore its inherent jurisdiction remains
unfettered."
138. According to the English law, the judgment of the
Apex Court can be reviewed in exceptional circumstances
H
250 SUPREME COURT.REPORTS [2011] 9 S.C.R.
~ .
A particularly when the judge associated with any of the
organizations to be a good ground for reviewing the judgment.
139. In Pinochet test in Regina (Edwards) v Environment
Agency and others [2010] UKSC 57, the Supreme Court of the
United Kingdom overruled an earlier order of costs made by
B "
the erstwhile apex court, the House of Lords, on the grounds
that the House of Lords had made a substantive error in the
original adjudication. However, this appeal was lodged under
Rule 53 of the The (U.K.) Supreme Court Rules, 2009, 2009
No. 1603 (L. 17). Rule 53 provides as follows:
c
53. (1) A party who is dissatisfied with the assessment of
costs made at an oral hearing may apply for that decision
to be reviewed by a single Justice and any application ,_ -
under this rule must be made in the appropriate form and
D be filed within 14 days of the decision.
(2) The single Justice may (without an oral hearing) affirm
the decision made on the assessment or may, where it
•
appears appropriate, refer the matter to a panel of
Justices to be decided with or without an oral hearing.
E
(3) An application may be made under this rule only on a
question of principle and not in respect of the amount
allowed on any item in the claim for costs.
140. In this case, Lord Hope, citing the Pinochet case
, ,
F
stated that:
The Supreme Court is a creature of statute. But it has
inherited all the powers that were vested in the House of
Lords as the ultimate court of appeal. So it has the same
G powers as the House had to correct any injustice caused '4-
by an earlier order of the House or this Court... In this case
it seems that, through no fault of the appellant, an injustice
may have been caused by the failure of the House to
address itself to the correct test in order to comply with the I-
H requirements of [certain EU] directives [at para. 35].
-·
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 251
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
~ " CANADA. A
141. The Canadian Supreme Court is of the same view
that judicial bias would be a ground for reviewing the judgment.
In Wewaykum Indian Band v. Canada [2003] 2 SCR 259 the
court relied on Taylor Ventures Ltd. (Trustee of) v. Taylor 2005 B
" BCCA 350 where principle of judicial bias has been
summarized.
142. The principles stated in Roberts regarding judicial
bias were neatly summarized in Taylor Ventures Ltd. (Trustee
of) (supra), where Donald J.A. stated - c
(i) a judge's impartiality is presumed;
. "'"' (ii) a party arguing for disqualification must establish
that the circumstances justify a finding that the judge
• must be disqualified;
D
(iii) the criterion of disqualification is the reasonable
apprehension of bias;
(iv) the question is what would an informed, reasonable E
and right-minded person, viewing the matter
realistically and practically, and having thought the
matter through, conclude;
... ~
(iv) the test for disqualification is not satisfied unless it
is proved that the informed, reasonable and right- F
minded person would think that it is more likely than
not that the judge, whether consciously or
unconsciously, would not decide fairly;
(v) the test requires demonstration of serious grounds G
on which to base the apprehension;
(vi) each case must be examined contextually and the
inquiry is fact-specific (at para 7).
143. Cases from Australia also support the proposition that H
252 SUPREME COURT REPORTS [2011] 9 S.C.R.
A a final judgment cannot ordinarily be reopened, and that such
... .
steps can be taken only in exceptional circumstances.
144. In State Rail Authority of New South Wales v.
Code/fa Constructions Propriety Limited (1982) 150 CLR 29,
the High Court of Australia observed:
8
•... it is a power to be exercised with great caution. There
may be little difficulty in a case where the orders have not
been perfected and some mistake or misprision is
disclosed. But in other cases it will be a case of weighing
C what would otherwise be irremediable injustice against the
public interest in maintaining the finality of litigation. The
circumstances that will justify a rehearing must be quite
exceptional. ... "
0 145. In Bailey v. Marinoff (1971) 125 CLR 529, Judge
Gibbs of the High Court of Australia observed in a dissenting
opinion:
"It is a well-settled rule that once an order of a court
has been passed and entered or otherwise perfected in
E a form which correctly expresses the intention with which
it was made the court has no jurisdiction to alter it. ...... The
rule tests on the obvious principle that it is desirable that
-
there be an end to litigation and on the view that it would
be mischievous if there were jurisdiction to rehear a matter
F decided after a full hearing. However, the rule is not .
inflexible and there are a number of exceptions to it in
addition to those that depend on statutory provisions
such as the slip rule found in most rules of court. Indeed,
as the way in which I have already stated the rule implies,
G the court has the power to vary an order so as to carry out
its own meaning or to make plain language which is
doubtful, and_that power does not depend on rules of court,
but is inherent in the court .... "
And, further:
rl
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 253
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
... ,,,. -.f
"The authorities to which I have referred leave no A
doubt that a superior court has an inherent power to vary
its own orders in certain cases. The limits of the power
remain undefined, although the remarks of Lord Evershed
already cited suggest that it is a power that a court may
1 exercise "if, in its view, the purposes of justice require that B
~
it should do so".
146. In DJL v. Central Authority (2000) 170 ALR 659, the
High Court of Australia observed:
" ... It is now recognized both in Australia and c
England that orders made by ultimate appellate courts
may be reopened by such courts in exceptional
circumstances to repair accidents and oversights which
-·-.
would otherwise occasion a serious injustice. In my view,
this can be done although the order in question has been D
perfected. The reopening may be ordered after due
account is taken of the reasons that support the principle
of finality of litigation. The party seeking reopening bears
a heavy burden to demonstrate that the exceptional
course is required "without fault on his part. . .. " E
147. Lastly, in Lexcray Pty. Ltd. v. Northern Territory of
Australia 2003 NTCA 11, the Court appeals of the Supreme
Court of the Northern Territory expressly stated:
"' ~ " ... As a final court of appeal the High Court of F
Australia has inherent jurisdiction to vacate its orders in
cases where there would otherwise be an irremediable
injustice .... n
} ...
- 148. American courts also follows a similar pattern. In G
United States of America v. Ohio Power Company 353 US
98 (1957), the U.S. Supreme Court vacated its earlier order
denying a timely petition for rehearing, on the ground that "the
interest in finality of litigation must yield where interests of justice
.vould make unfair, strict application of Supreme Court's Rules. H
254 SUPREME COURT REPORTS [2011] 9 S.C.R.
A 149. In Raymond G. Cahill v. The New York, New Haven
and Hartford Railroad Company 351 US 183, the Supreme
Court observed:
"... There are strong arguments for allowing a second
petition for rehearing where a rigid application of this rule
B
would cause manifest injustice."
150. The Supreme Court of Fiji Islands incorporating
c Australian and British case law summarized the law applicable
to review of its judgments. It has been held that the Supreme
Court can review its judgments pronounced or orders made by
it The power of the appellate courts to re-open and review their
orders is to be exercised with great caution.
D 151. The cases establish that the power of appellate courts
to re-open and review their orders is to be exercised with great
caution. The power, and the occasions for its exercise were
considered in In Re Transferred Civil Servants (Ireland)
Compensation (1929) AC 242, 248-52; and State Rail
E Authority NSW v Code/fa Construction Pty Ltd (1982) HCA 51
: (1982) 150 CLR 29, 38-9, 45-6, where earlier Privy Council
cases are referred to. The principles were summarised
in Smith v NSW Bar Association (1992) 176 CLR 252, 265
where the High Court of Australia said:
F • •
"The power is discretionary and, although it exists up until
the entry of judgment, it is one that is exercised having
regard to the public interest in maintaining the finality of
litigation. Thus, if reasons for judgment have been given,
G the power is only exercised if there is some matter calling
for review ... these considerations may tend against the re- ' '
opening of a case, but they are not matters which bear on
the nature or the review ... once the case is re-opened ...
the power to review a judgment ... where the order has not
H been entered will not ordinarily be exercised to permit a
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 255
"" ... ~ UNION OF INDIA & ORS. [DALVEER BHANDARI, J.].
general re-opening ... But ... once a matter has been re- A
. opened, the nature and extent of th ..~ review must depend
on the error or omission which has led to that step being
taken."
·, 152.. The principles were further considered in Autodesk
B
Inc v Dyason (No 2) (1993) HCA 6: (1993) 176 CLR 300, 303
where Mason CJ said:
"What must emerge, in order to enliven the exercise of the
jurisdiction, is that the Court has apparently proceeded
according to some misapprehension of the facts or the c
relevant law and this ... cannot be attributed solely to the
neglect of the party seeking the rehearing. The purpose
-- of the jurisdiction is not to provide a backdoor method by
which unsuccessful litigants can seek to reargue their
cases." D
153: The ratio of these judgments is that a court of final
appeal has power in truly exceptional circumstances to recall
its order even after they have been entered in order to avoid
irremediable injustice. E
154. Reviewing of various cases of different jurisdictions
lead to irresistible conclusion that though the judgments of the
apex court can also be reviewed or recalled but it must be done II
... ' in extremely exceptional circumstances where there is gross·
F
I
'1
violation of principles of natural justice.
155. In a case where the aggrieved party filing a review
or curative petition was not a party to the lis but the judgment
adversely affected his interest or he was party to the lis was
~
/ not served with notice of the proceedings and the matter G
proceeded as if he had notice. This court in State of M.P. v.
Sugar Singh & Others on 9th March, 201 Opassed the following
order in a curative petition :
"Though there were eight accused persons, only four
accused were arrayed as party respondents in the said H
256 SUPREME COURT REPORTS [2011] 9 S.C.R.
~
.....
A appeals namely, Sughar, Laxman, Onkar and Ramesh.
Other accused, namely,Bhoja, Raghubir, Puran and Balbir
were not impleaded as respondents in these Criminal
Appeals and consequently notices were not issued to
them. This Court, by judgment on 7th November, 2008 in
B the aforesaid Criminal Appeals, reversed the acquittal of
the accused by the High Court and found them guilty of the
offences punishable under Section 304 Part-II read with
Section 149 of the l.P.C. and sentenced them to undergo
imprisonment for a period of six years. The conviction of
c the accused for the offences punishable under Section 148
as also Section 326 read with the Section 149 of the I. P. C.
and the sentence imposed by the Sessions Court in
regard to the said offences was upheld by this Court.
~-
We have heard learned counsel for the petitioners.
D The respondent State, though served with a notice through
standing counsel, has not chosen to enter appearance.
These Curative Petitions have been filed by accused No.2
(Raghubir) and by accused no.4 and 5 (Sughar Singh and
Laxman) on the ground that acquittal of Bhoja, Raghubir,
E Puran and Balbir have been reversed without affording an
opportunity of being heard. We see that there is serious
violation of principles of natural justice as the acquittal of
all the accused has been set aside even though only four
F
of them were made respondents before this Court and the
others were not heard. We are, therefore, constrained to
. ~
recall the 3 judgment passed by this Court in Criminal
Appeal Nos.1362-1363 of 2004 on 7th November, 2008.
Consequently, the accused Sughar Singh, Laxman,
G
Onkar and Ramesh, if they are in custody, are directed to ..
be released forthwith.
In the result, these Curative Petitions are disposed
of and the Criminal Appeal Nos.1362-1363 of 2004 are
restored to the file for being heard afresh with a direction
H that the other four accused (Bhoja, Raghubir, Puran and
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 257
.., •. UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
Balbir) be impleaded as respondents and all accused be A
served with fresh notices."
156. In the instant case, the applicants had adequate
opportunity and were heard by the court at length on number
of occasions and only thereafter the writ petition was disposed B
of. The applicants aggrieved by the said judgment filed a review
petition. This review petition was also dismissed. In the instant
case even the curative petition has also been dismissed. The
applicants now want to reopen this case by filing these
interlocutory applications.
c
157. The applicants certainly cannot be provided an entry
by back door method and permit the unsuccessful litigant to re-
agitate and reargue their cases. The applicants have filed
these applications merely to avoid compliance of the order of
the court. The applicants have been successful in their D
endeavour and have not permitted the judgment delivered on
3.2.1996 to acquire finality till date. It is strange that other
respondents did not implement the final order of this court
without there being any order or direction of this court. These
applications being devoid of any merit deserve to be dismissed E
with heavy costs.
The other im12ortant 12rinci12les which need elucidation are
regarding unjust enrichment, restitution and com~ound
. ~ interests. F
158. Dr. Arun Mohan, Senior Advocate of this court in a
recently published book with the title "Justice, Courts an.d
Delays" analytically, lucidly while taking .in view prag.m~t1c
..... realities elucidated concepts of unjust enrichment, restitution
and compound interest. G
159. By the judgment dated 13.02.1996 this court fixed the
liability but did not fix any specific amount, which was ordered
to be ascertained. It was on the lines of a preliminary decree
in a suit which determines the liability, but leaves the precise
H
258 SUPREME COURT REPORTS [2011] 9 S.C.R.
• •
A amount to be ascertained in further proceedings and upon the
process of ascertainment being completed, a final decree for
payment of the precise amount is passed.
160. By judgment dated 4.11.1997 this Court, accepting
the ascertainment, fixed the amount. The order reads as under:
8
"......... remedial measures taken on the basis of
the NEERI report shall be treated as final.
We accept the proposal submitted by the Government of
c India for the purpose of taking remedial measures by
appointing National Productivity Council as the Project
Management Consultant. In our opinion the Ministry of
Environment and Forests, Government of India has
rightly made a demand for Rs.37.385 crores."
D
161. The exact liability was quantified which the applicant-
M/s Hindustan Agro Chemical Ltd. was under an obligation to
pay. The liability to pay arose on that particular date i.e.
4.11.1997. In other words, this was in the lines of a final decree
pursuant to a preliminary decree.
E
162. On that judgment being passed, the position of the
applicant in Application No.44 was that of 'judgment-debtor'
and the applicant became liable to pay forthwith.
F 163. Admittedly, the amount has not been paid. Instead,
that payment they sought to postpone by raising various
challenges in this court and in the meantime 'utilised' that
money, i.e., benefitted. As a consequence, the non-applicants
(respondents-states herein) were 'deprived' of the use of that
money for taking remedial measures. The challenge has now
G - nearly 14 years later - been finally decided against them.
164. The appellant they must pay the amount is one thing
but should they pay only that amount or something more? If the
period were a few days or months it would have been different
H but here it is almost 14 years have been lapsed and amount
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 259
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
has not been paid. The questions therefore are really three: A
1. Can a party wlio does not comply with the court
order be permitted to retain the benefits of his own
wrong of non-compliance?
2. Whether the successful party be not compensated B
by way of restitution for deprivation of its legitimate
dues for more than fourteen years? and
3. Whether the court should not remove all incentives
for not complying with the judgment of the court? c
Answering these questions will necessitate analysis of
certain concepts. ·
I
·""' 165. It is settled principle of law that no one can take
advantage of his own wrong. D
166, Unless courts disgorge all benefits that a party availed
by obstruction or delays or non-compliance, there will always
be incentive for non compliance, and parties are ingenious
enough to come up with all kinds of pleas and other tactics to E
achieve their end because they know that in the end the benefit
will remain with them.
167. Whatever benefits a person has had or could have
had by not complying with the judgment must being disgorged
and paid to the judgment creditor and not, allowed to be F
retained by the judgment-debtor. This is the bounden duty and
obligation of the court.
168. In fact, it has to be looked from the position of the
creditor. Unless the deprivation by reason of delay is fully G
restituted, the creditor as a beneficiary remains a loser to the
extent of the un-restituted .amount.
UNJUST ENRICHMENT
169. Unjust enrichment has been defined as: "A benefit H
260 SUPREME COURT REPORTS (2011) 9 S.C.R.
. ..
A obtained from another, not intended as a gift and not legally
justifiable, for which the beneficiary must make restitution or
recompense." See Black's Law Dictionary, Eighth Edition
(Bryan A. Garner) at page 1573.
B 170. A Claim for unjust enrichment arises where there has
been an "unjust retention of a benefit to the loss of another, or
the retention of money or property of another against the
fundamental principles of justice or equity and good
conscience."
C 171. 'Unjust enrichment' has been defined by the court as
the unjust retention of a benefit to the loss of another, or the
retention of money or property of another against the
fundamental principles of justice or equity and good
conscience. A person is enriched if he has received a benefit,
.
D and he is unjustly enriched if retention of the benefit would be
unjust. Unjust enrichment of a person occurs when he has and
retains money or benefits which in justice and equity belong to
another.
E 172. Unjust enrichment is "the unjust retention of a benefit
to the loss of another, or the retention of money or property of
another against the fundamental principles of justice or equity
and good conscience." A defendant may be liable "even when
the defendant retaining the benefit is not a wrongdoer" and
"even though he may have received [it] honestly in the first
F instance." (Schock v. Nash, 732 A.2d 217, 232-33 (Delaware.
1999). USA)
173. Unjust enrichment occurs when the defendant
wrongfully secures a benefit or passively receives a benefit
G which would be unconscionable to retain.
174. In the leading case of Fibrosa v. Fairbairn, (1942) 2
All ER 122, Lord Wright stated the principle thus :
".... (A)ny civilized system of law is bound to provide
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 261
-t
.UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
'
remedies for cases of what has been called unjust A
enrichment or unjust benefit, that is, to prevent a man from
retaining the money of, or some benefit derived from
another which it is against conscience that he should keep.
Such remedies in English law are generically different from
remedies in contract or in tort, and are now recognized to 8
fall within a third category of the common law which has
been called quasi-contract or restitution."
175. Lord Denning also stated in Nelson v. Larholt, [1947]
2 All ER 751 as under:-
c
"It is no longer appropriate, however, to draw a
distinction between law and equity. Principles have now
- J
to be stated in the light of their combined effect. Nor is it
necessary to canvass the niceties of the old forms of
action. Remedies now depend on the substance of the D
right, not on whether they can be fitted into a particular
frame-work. The right here is not peculiar to equity or
contract or tort, but falls naturally within the important
category of cases where the court orders restitution if the
justice of the case so requires." E
176. The above principle has been accepted in India. This
Court in several cases has applied the doctrine of unjust
enrichment.
f )
RESTITUTION AND COMPOUND INTEREST F
177. American Jurisprudence 2d. Volume 66 Am Jur 2d
defined Restitution as follows:
'«,
"The word 'restitution' was used in the earlier common law
to denote the return or restoration of a specific thing or G
condition. In modern legal usage, its meaning has
frequently been extended to include not only the restoration
or giving back of something to its rightful owner, but also
compensation, reimbursement, indemnification, or
H
262 SUPREME COURT REPORTS [2011] 9 S.C.R.
A reparation for benefits derived from, or for loss or injury
caused to, another. As a general principle, the obligation
to do justice rests upon all persons, natural and artificial;
if one obtains the money or property of others without
authority, the law, independently of express contraCt, will
B compel restitution or compensation."
178. While Section (§) 3 (Unjust Enrichment) reads as
under:
"The phrase "unjust enrichment" is used in law to
C characterize the result or effect of a failure to make
restitution of, or for, property or benefits received under
such circumstances as to give rise to a legal or equitable
obligation to account therefor. It is a general principle,
underlying various legal doctrines and remedies, that one
D person should not be permitted unjustly to enrich himself
at the expense of another, but should be required to make
restitution of or for property or benefits received, retained,
or appropriated, where it is just and equitable that such
restitution be made, and where such action involves no
E violation or frustration of law or opposition to public policy,
either directly or indirectly."
179. Unjust enrichment is basic to the subject of restitution,
and is indeed approached as a fundamental principle thereof.
They are usually linked together, and restitution is frequently • •
F based upon the theory of unjust enrichment. However, although
unjust enrichment is often referred to or regarded as a ground
for restitution, it is perhaps more accurate to regard it as a
prerequisite, for usually there can be no restitution without unjust
enrichment. It is defined as the unjust retention of a benefit to
G the loss of another or the retention of money or property of
another against the fundamental principles of justice or equity
and good conscience. A person is enriched if he has received
a benefit, and he is unjustly enriched if retention of the benefit
would be unjust. Unjust enrichment of a person occurs when he
H has and retains money or benefits which in justice and equity
'
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 263
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
-' l
belong to another. A
180. While the term 'restitution' was considered by the
Supreme Court in South-Eastern Coalfields 2003 (8) SCC 648
...
and other cases excerpted later, the term 'unjust enrichment'
came to be considered in Sahakari Khand Udyog Manda/ Ltd B
} vs Commissioner of Central Excise & Customs {{2005) 3
sec 738). 181. This Court said: "'Unjust enrichment' means
retention of a benefit by a person that is unjust or inequi
able. 'Unjust '..3nrichment' occurs when a person retains
money or benefits which in justice, equity and good
conscience, belong to someone else."
c
182. The terms 'unjust enrichment' and 'restitution' are like
the two shades of green - one leaning towards yellow and the
other towards blue. With restitution, so long as the deprivation
of the other has not been fully compensated for, injustice to that D
extent remains. Which label is appropriate under which
circumstances would depend on the facts of the particular case
before the court. The courts have wide powers to grant
restitution, and more so where it relates to misuse or non-
compliance with court orders. E
183. We may add that restitution and unjust enrichment,
along with an overlap, have to be viewed with reference to the
two stages, i.e., pre-suit and post-suit. In the former case, it
r ) becomes a substantive law (or common law) right that the court
F
will consider; but in the latter case, when the parties are before
the court and any act/omission, or simply passage of time,
results in deprivation of one, or unjust enrichment of the other,
the jurisdiction of the court to levelise and do justice is
independent and must be readily wielded, otherwise H will be
' allowing the Court's own process, along with time delay, to do G
injustice.
184. For this second stage (post-suit), the need for
restitution in relation to court proceedings, gives full jurisdiction •
to the court, to pass appropriate orders that levelise. Only the H
264 SUPREME COURT REPORTS [2011] 9 S.C.R.
.
A court has to levelise and not go further into the realm of penalty
which will be a separate area for consideration altogether.
185. This view of law as propounded by the author Graham
Virgo in his celebrated book on "The Principle of Law of
Restitution" has been accepted by a later decision of the House
B
of Lords (now the UK Supreme Court) reported as Sempra
Metals Ltd (formerly Metaflgesef/schaft Limited) v Her
Majesty's Commissioners of Inland Revenue and Another
= =
(2007] UKHL 34 (2007] 3 WLR 354 (2008] 1 AC 561 =
(2007) All ER (D) 294.
c
186. In similar strain, across the Altantic Ocean, a nine
judge Bench of the Supreme Court of Canada in Bank of
America Canada vs Mutual Trust Co. (2002] 2 SCR 601 =
2002 SCC 43 (both Canadian Reports) took the view :
D
"There seems in principle no reason why compound
interest should not be awarded. Had prompt recompense
been made at the date of the wrong the plaintiff should have
had a capital sum to invest; the plaintiff would have
received interest on it at regular intervals and would have
E
invested those sums also. By the same token the
defendant will have had the benefit of compound interest.
Although not historically available, compound interest is
well suited to compensate a plaintiff for the interval
between when damages initially arise and when they are ._ ~
F finally paid."
187. This view seems to be correct and in consonance with
the principles of equity and justice.
G 188. Another way of looking at it is suppose the judgment-
debtor had borrowed the money from the nationalised bank as
a clean loan and paid the money into this court. What would
be the bank's demand.
189. In other words, if payment of an amount equivalent of
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 265
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
what the ledger account in the nationalised bank on a clean load A
would have shown as a debit balance today is not paid and
something less than that is paid, that differential or shortfall is
what there has been : (1) failure to restitute; (2) unfair gain by
the non-complier; and (3) provided the incentive to obstruct or
delay payment. B
190. Unless this differential is paid, justice has not been
done to the creditor. It only encourages non-compliance and
litigation. Even if no benefit had been retained or availed even
then, to do justice, the debtor must pay the money. In other c
words, it is this is not only disgorging all the benefits but making
the creditor whole i.e. ordering restitution in full and not
dependent on what he might have made or benefitted is what
justice requires.
LEGAL POSITION UNDER THE CODE OF CIVIL D
PROCEDURE
191. One reason the law has not developed on this is
because of the wording of Section 34 of the Code of Civil
Procedure which still proceeds on the basis of simple interest. E
In fact, it is this difference which prompts much of our
commercial litigation because the debtor feels - calculates and
assesses - that to cause litigation and then to contest with
obstructions and delays will be beneficial because the court is
;-- J empowered to allow only simple interest. A case for law reform F
on this is a separate issue.
192. In the point under consideration, which does not arise
from a suit for recovery under the Code of Civil Procedure, the
inherent powers in the court and the principles of justice and G
""' equity are each sufficient to enable an order directing p~yment
of compound interest. The power to order compound interest
as part of restitution cannot be disputed, otherwise there can
never be res\i\u\ion.
H
266 SUPREME COURT REPORTS [2011) 9 S.C.R.
\- ..
A PRECEDENTS ON EXERCISE OF POWERS BY THE
COURT TOMAKE THE BENEFICIARY WHOLE -
RESTITUTION
193. This court in Grindlays Bank Limited vs Income Tax
B Officer, Calcutta (1980) 2 SCC 191 observed as under :-
"... When passing such orders the High Court draws on its
inherent power to make all such orders as are necessary
for doing complete justice between the parties. The
interests of justice require that any undeserved or unfair
c advantage gained by a party invoking the jurisdiction of the
court, by the mere circumstance that it has initiated a
proceeding in the court, must be neutralised. The simple
fact of the institution of litigation by itself should not be
permitted to confer an advantage on the party responsible -·
D for it. .. ."
194. In Ram Krishna Verma and Others vs State of U.P.
and Others (1992) 2 sec 620 this court observed as under:-
"The 50 operators including the appellants/ private
E operators have been running their stage carriages by
blatant abuse of the process of the court by delaying the
hearing as directed in Jeevan Nath Bah/'s case and the
High Court earlier thereto. As a fact, on the expiry of the
initial period of grant after Sept. 29, 1959 they lost the right
F to obtain renewal or to ply their vehicles, as this Court
declared the scheme to be operative. However, by sheer
abuse of the process of law they are continuing to ply their
vehicles pending hearing of the objections. This Court in
Grindlays Bank Ltd. vs Income-tax Officer - [1990] 2 SCC
G 191 held that the High Court while exercising its power
under Article 226 the interest of justice requires that any
undeserved or unfair advantage gained by a party invoking
the jurisdiction of the court must be neutralised. It was
further held that the institution of the litigation by it should
H not be permitted to confer an unfair advantage on the party
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 267
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
responsible for 'it. In the light of that law and in view of the A
power under Article 142(1) of the Constitution this Court,
while exercising its jurisdiction would do complete justice
and neutralise the unfair advantage gained by the 50
operators including the appellants in dragging the litigation
to run the stage carriages on the approved route or area 8
or portion thereof and forfeited their right to hearing of the
objections filed by them to the draft scheme dated Feb.
26, 1959.... "
195. This court in Kavita Trehan vs Balsara Hygiene
Products (1994) 5 SCC 380 observed as under:- C
"The jurisdiction to make restitution is inherent in every
court and will be exercised whenever the justice of the
case demands. It will be exercised under inherent powers
where the case did not strictly fall within the ambit of D
Section 144. Section 144 opens with the words "Where
and in so far as a decree or an order is varied or reversed
in any appeal, revision or other proceeding or is set aside
or modified in any suit instituted for the purpose, .. .". The
instant case may not strictly fall within the terms of Section E
144; but the aggrieved party in such a case can appeal to
the larger and general powers of restitution inherent in
every court."
196. This court in Marshall Sons & Co. (/) Ltd. v. Sahi
Oretrans (P) Ltd. and Another (1999) 2 SCC 325 observed F
as under:-
"From the narration of the facts, though it appears
to us, prima facie, that a decree in favour of the appellant
is not being executed for some reason or the other, we do G
not think it proper at this stage to direct t~e respond_ent to
deliver the possession to the appellant since the suit filed
by the respondent is still pending. It is true that
proceedings are dragged for a long time ~n one coun~ or
the other and on occasion become highly technical H
268 SUPREME COURT REPORTS [2011] 9 S.C.R.
A accompanied by unending prolixity, at every stage
providing a legal trap to the unwary. Because of the delay
unscrupulous parties to the proceedings take undue
advantage and person who is in wrongful possession
draws delight in delay in disposal of the cases by taking
B undue advantage of procedural complications. It is also
known fact that after obtaining a decree for possession of
immovable property, its execution takes long time. In such
a situation for protecting the interest of judgment creditor,
it is necessary to pass appropriate order so that
reasonable mesne profit which may be equivalent to the
c market rent is paid by a person who is holding over the
property. In appropriate cases, Court may appoint
Receiver and direct the person who is holding over the
property to act as an agent of the Receiver with a direction
to deposit the royalty amount fixed by the Receiver or pass
D such other order which may meet the interest of justice.
·This may prevent further injury to_ the plaintiff in whose favour
decree is passed and to protect the property including
further alienation.·
E 197. In Padmawati vs Harijan Sewak Sangh - CM (Main)
No.449 of 2002 decided by the Delhi high Court on 6.11.2008,
the court held as under:-
"The case at hand shows that frivolous defences and
frivolous litigation is a calculated venture involving no risks
F
situation. You have only to engage professionals to prolong
the litigation so as to deprive the rights of a person and
enjoy the fruits of illegalities. I consider that in such cases
where Court finds that using the Courts as a tool, a litigant
has perpetuated illegalities or has perpetuated an illegal
G possession, the Court must impose costs on such litigants
which should be equal to the benefits derived by the litigant
and harm and deprivation suffered by the rightful person
so as to check the frivolous litigation and prevent the
people from reaping a rich harvest of illegal acts through
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 269
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
.; -I
the Court. One of the aims of every judicial system has to A
be to discourage unjust enrichment using Courts as a tool. _
The costs imposed by the Courts must in all cases should
be the real costs equal to deprivation suffered by the
rightful person."
B
198. We approve the findings of the High Court of Delhi
in the aforementioned case.
199. The Court also stated: "Before parting with this case,
we consider it necessary to observe that one of the main
reasons for over-flowing of court dockets is the frivolous c
litigation in which the Courts are engaged by the litigants and
which is dragged as long as possible. Even if these litigants
ultimately loose the /is, they become the real victors and have
the last laugh. This class of people who perpetuate illegal acts
by obtaining stays and injunctions from the Courts must be D
made to pay the sufferer not only the entire illegal gains made
by them as costs to the person deprived of his right and also
must be burdened with exemplary costs. Faith of people in
judiciary can only be sustained if the persons on the right side
of the law do not feel that even if they keep fighting for justice E
in the Court and ultimately win, they would turn out to be a fool
since winning a case after 20 or 30 years would make
wrongdoer as real gainer, who had reaped the benefits for all
those years. Thus, it becomes the duty of the Courts to see that
such wrongdoers are discouraged at every step and even if F
they succeed in prolonging the litigation due to their money
power, ultimately they must suffer the costs of all these years
long litigation. Despite settled legal positions, the obvious
wrong doers, use one after another tier of judicial review
mechanism as a gamble, knowing fully well that dice is always
~ G
loaded in their favour, since even if they lose, the time gained
is the real gain. This situation must be redeemed by the
Courts."
200. Against this judgment, Special Leave to Appeal
H
270 SUPREME COURT REPORTS [2011] 9 S.C.R.
A (Civil) No 29197/2008 was preferred to the this Court. The
Court passed the following order:
"We have heard learned counsel appearing for the parties.
We find no ground to interfere with the well-considered
judgment passed by the High Court. The Special Leave
B
Petition is, accordingly, dismissed."
Interest on interest
201. This court in Alok Shanker Pandey vs Union of India
c & Others (2007) 3 SCC 545 observed as under:-
"We are of the opinion that there is no hard and fast rule
about how much interest should be granted and it all
depends on the facts and circumstances of the each case.
We are of the opinion that the grant of interest of 12% per
D annum is appropriate in the facts of this particular case.
However, we are also of the opinion that since interest was
not granted to the appellant along with the principal amount
the respondent should then in a, 1rlition to the interest at the
rate of 12% per annum also pay to appellant interest at
E the same rate on the aforesaid interest from the date of
payment of instalments by the appellant to the respondent
till the date of refund on this amount, and the entire amount
mentioned above must be paid to the appellant within two
months from the date of this judgment.
F
It may be mentioned that there is misconception
about interest. Interest is not a penalty or punishment at
all, but it is the normal accretion on capital."
G Compound Interest
202. To do complete justice, prevent wrongs, remove
incentive for wrongdoing or delay, and to implement in practical
terms the concepts of Time Value of Money, restitution and
unjust enrichment noted above - or to simply levelise - a
H convenient approach is calculating interest. But here interest
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 271
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
-~ 1
has to be calculated on compound basis - and not simple - A
for the !atter leaves much uncalled for benefits in the hands of
the wrongdoer.
203. Further, a related concept of inflation is also to be kept
in mind and the concept of compound interest takes into
.} B
account, by reason of prevailing rates, both these factors, i.e.,
use of the money and the inflationary trends, as the market
forces and predictions work out.
204. Some of our statute law provide only for simple
interest and not compound interest. In those situations, the c
courts are helpless and it is a matter of law reform which the
Law Commission must take note and more so, because the
. serious effect it has on administration of justice. However, the
power of the court to order compound interest by way of
restitution is not fettered in any way. We request the Law D
Commission to consider and recommend necessary
amendments in relevant laws.
205. 'Compound interest' is defined in Black's Law
Dictionary, Eighth Edition (Bryan A. Garner) at page 830 as
E
'Interest paid on both the principal and the previously
accumulated interest.' It is a method of arriving at a figure which
nears the time value of money submitted under Head-2 earlier.
206. As noted, compound interest is a norm for all
' 1
commercial transactions. F
207. Graham Virgo in his important book on 'The
Principles of the Law of Restitution" at pp26-27 has stated and
relevant portion is reproduced as under:
-·· "In w·estdeutsche Landesbank Girozentra/e v
London Borough Council 1996 A.C. 669 the issue for the
House of Lords was whether compound interest was
G
available in respect of all restitutionary claims. By a
majority it was decided that, since the jurisdiction to award
H.
272 SUPREME COURT REPORTS (2011) 9 S.C.R.
'
.....
A compound interest was equitable, compound interest
could only be awarded in respect of equitable restitutionary
claims. Consequently, where the claim was for money had
and received the claimant could only obtain simple interest
because this was a common law claim. The majority
B supported their conclusion by reference to a number of
different arguments. In particular, they asserted that, since
Parliament had decided in 1981 that simple interest
should be awarded on claims at common law, it was not
for the House of Lords to award compound interest in
c respect of such claims. But the Supreme Court Act 1981
does not specifically exclude the award of compound
interest in respect of common law claims. Rather, it
recognizes that the court can award simple interest for
such claims. The equitable jurisdiction to award compound ~
interest is still available in appropriate cases.
D
In two very strong dissenting judgments, Lords Goff and
Woolf rejected the argument of the majority. They asserted
that, since the policy of the law of restitution was to remove
benefits from the defendant, compound interest should be
E available in respect of all restitutionary claims, regardless
of whether they arise at law or in equity. This argument can
be illustrated by the following example. In the
straightforward case where the claimant pays money to the
defendant by mistake and defendant is liable to repay that
F money, the liability arises from the moment the money is
received by the defendant, who has the use of it and so
should pay the claimant for the value of that benefit. This
was accepted by all the judges in the case. The difficulty
relates to the valuation of this benefit. If the defendant was
G to borrow an equivalent amount of money from a financial I ''
institution, he or she would be liable to pay compound
interest to that institution. It follows that the defendant has
saved that amount of money and so this is the value of the
benefit which the defendant should restore to the claimant,
H in addition to the value of the money which the defendant
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 273
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
received in the first place. If it could be shown that, had A
the defendant borrowed the equivalent amount of money,
the institution would only have paid simple interest, it would
be appropriate for the interest awarded to the claimant to
be simple rather than compound. Usually, however, the
interest awarded in commercial transactions will be B
compound interest."
208. In Marshall sons and company (/) Limited v. Sahi
Oretrans (P) Limited and another (1999) 2 sec 325 this court
in para 4 of the judgment observed as under:
c
"... It is true that proceedings are dragged for a long time
on one count or the other and, on occasion, become highly
technical accompanied by unending prolixity at every stage
providing a legal trap to the unwary. Because of the delay,
unscrupulous parties to the proceedings take undue D
advantage and a person who is in wrongful possession
draws delight in delay in disposal of the cases by taking
undue advantage of procedural complications. It is also a
known fact that after obtaining a decree for possession of
immovable property, its execution takes a long time. In E
such a situation, for protecting the interest of the judgment-
creditor, it is necessary to pass appropriate orders so that
reasonable mesne profit which may be equivalent to the
market rent is paid by a person who is holding over the
_; i property. In appropriate cases, the court may appoint a F
Receiver and direct the person who is ,holding over the
property to. act as an agent of the Receiver with a direction
to deposit the royalty amount fixed by the Receiver or pass
such other order which may meet the interest of justice.
-....
/
. This may prevent further injury to the plaintiff in whose favour G
the decree is passed and to protect the property including
further alienation .... "
209. In Ouseph Mathai and others v. M. Abdul Khadir
(2002) 1 sec 319 this court reiterated the legal position that
the stay granted by the court does not confer a right upon a party H
274 SUPREME COURT REPORTS [2011] 9 S.C.R.
\
..__
A and it is granted always subject to the final result of the matter
in the court and at the risk and costs of the party obtaining the
stay. After the dismissal, of the lis, the party concerned is
relegated to the position which existed prior to the filing of the
petition in the court which had granted the stay. Grant of stay
B does not automatically amount to extension of a statutory
protection.
210. This court in South Eastern Coalfields Limited v.
State of M.P. and others (2003) 8 sec 648 on examining the
principle of restitution in para 26 of the judgment observed as
c under:
"In our opinion, the principle of restitution takes care of this
submission. The word "restitution" in its etymological sense
means restoring to a party on the modification, variation
D or reversal of a decree or order, what has been lost to him
in execution of decree or order of the court or in direct
consequence of a decree or order (see Zafar Khan v.
Board of Revenue, U.P - (1984) Supp SCC 505) In law,
the term "restitution" is used in three senses: (1) return or
E restoration of some specific thing to its rightful owner or
status; (i1) compensation for benefits derived from a wrong
done to another; and (iii) compensation or reparation for
the loss caused to another."
211. The court in para 28 of the aforesaid judgment very • 1-
F carefully mentioned that the litigation should not turn into a fruitful
industry and observed as under:
"......... Litigation may turn into a fruitful industry. Though
litigation is not gambling yet there is an element of chance
G in every litigation. Unscrupulous litigants may feel I •
encouraged to approach the courts, persuading the court
to pass interlocutory order:) favourable to them by making
- out a prima facie case when the issues are yettabe heard
and determined on merits and if the concept of restitution
H is excluded from application to interim orders, then the
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 275
-J_' ..,;J' ~ UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
litigant would stand to gain by swallowing the benefits A
yielding out of the interim order even though the battle has
been lost at the end. This cannot be countenanced. We
are, therefore, of the opinion that the successful party finally
held entitled to a relief assessable in terms of money at
the end of the litigation, is entitled to be compensated by 8
award of interest at a suitable reasonable rate for the
period for which the interim order of the court withholding
the release of money had remained in operation."
212. The court in the aforesaid judgment also observed
that once the doctrine of restitution is attracted, the interest is · C
often a normal relief given in restitution. Such interest is not
controlled by the provisions of the Interest Act of 1839 or 1978.
213. In a relatively recent judgment of this court in Amarjeet
Singh and others v. Devi Ratan and others (2010) 1 SCC 417 D
the court in para 17 of the judgment observed as under:
"No litigant can derive any benefit from mere pendency of
case in a court of law, as the interim order always merges
in the final order to be passed in the case and if the writ
petition is ultimately dismissed, the interim order stands E
nullified automatically. A party cannot be allowed to take
any benefit of its own wrongs by getting an interim order
and thereafter blame the court. The fact that the writ is
found, ultimately, devoid of any merit, shows that a frivolous
Wiit petition had been filed. The maxim actus curiae F
neminem gravabit, which means that the act of the court
shall prejudice no one, becomes applicable in such a case.
In such a fact situation the court is under an obligation to
undo the wrong done to a party by the act of the court. Thus,
any undeserved or unfair advantage gained by a party G
invoking the jurisdiction of the court must be neutralised,
as the institution of litigation cannot be permitted to confer
any advantage on a suitor from delayed action by the act
of the court ...... ."
H
276 SUPREME COURT REPORTS [2011] 9 S.C.R.
._
; ...
A 214. In another recent judgment of this court in Kalabharati
Advertising v. Hemant Vimalnath Narichania and others
(2010) 9 sec 437 this court in para 15 observed as under:
"No litigant can derive any benefit from the mere pendency
of a case in a court of law, as the interim order always
B merges into the final order to be passed in the case and
if the case is ultimately dismissed, the interim order stands
nullified automatically. A party cannot be allowed to take
any benefit of his own wrongs by getting an interim order
and thereafter blame the court. The fact that the case is
c found, ultimately, devoid of any merit, or the party withdrew
the writ petition, shows that a frivolous writ petition had
been filed. The maxim actus curiae neminem gravabit,
which means that the act of the court shall prejudice no
one, becomes applicable in such a case. In such a
D situation the court is under an obligation to undo the wrong
done to a party by thP act of the court. Thus, any
undeserved or unfair advantage gained by a party invoking
the jurisdiction of the court must be neutralised, as the
institution of litigation cannot be permitted to confer any
E advantage on a party by the delayed action of the court."
215. In consonance with the concept of restitution, it was
observed that courts should be careful and pass an order
neutralizing the effect of all consequential orders passed in
pursuance of the interim orders passed by the court. Such
F express directions may be necessary to check the rising trend
among the litigants to secure the relief as an interim measure
and then avoid adjudication on merits.
216. In consonance with the principle of equity, justice and
G good conscience judges should ensure that the legal process
I
'
is not abused by the litigants in any manner. The court should
never permit a litigant to perpetuate illegality by abusing the
legal process. It is the bounden duty of the court to ensure that
dishonesty and any attempt to abuse the legal process must
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 277
...)
UNION OF INDIA & ORS. [DALVEER BHANDARI, J.]
•
be effectively curbed and the court must ensure that there is A
no wrongful, unauthorized or unjust gain for anyone by the abuse
of the process of the court. One way to curb this tendency is to
impose realistic costs. which the respondent or the defendant
has in fact incurred in order to defend himself in the legal
proceedings. The courts would be fully justified even imposing B
punitive costs where legal process has been abused. No one
should be permitted to use the judicial process for earning
undeserved gains or unjust profits. The court must effectively
discourage fraudulent, unscrupulous and dishonestlitigation.
217. The court's constant endeavour must be to ensure that c
everyone gets just and fair treatment. The court while rendering
justice must adopt a pragmatic approach and in appropriate
cases realistic costs and compensation be ordered in order
to discourage dishonest litigation. The object and true meaning
of the concept of restitution cannot be achieved or D
accomplished unless the courts adopt a pragmatic approach
in dealing with the cases.
218. This court in a very recent case Ramrameshwari Devi
and Others v. Nirmala Devi and Others 2011 (6) Scale 677 had E
an occasion to deal with similar questions of law regarding
imposition of realistic costs and restitution. One of us (Bhandari,
J.) was the author of the judgment. It was observed in that case
... ./
as under:
"While imposing costs we have to take into consideration
F
pragmatic realities and be realistic what the defendants
or the respondents had to actually incur in contesting the
litigation before different courts. We have to also broadly
___,,___, take into consideration the prevalent fee structure of the
-~
lawyers and other miscellaneous expenses which have to G
be incurred towards drafting and filing of the counter .
affidavit, miscellaneous charges towards typing,
photocopying, court fee etc.
The other factor which should not be forgotten while H
278 SUPREME COURT REPORTS [2011] 9 S.C.R.
• '-
A imposing costs is for how long the defendants or
respondents were compelled to contest and defend the
litigation in various courts. The appellants in the instant
case have harassed the respondents to the hilt for four
decades in a totally frivolous and dishonest litigation in
B various courts. The appellants have also wasted judicial
time of the various courts for the last 40 years."
219. We reiterate that the finality of the judgment of the
Apex Court has great sanctity and unless there are extremely
compelling or exceptional circumstances, the judgments of the
c Apex Court should not be disturbed particularly in a case where
review and curative petitions have already been dismissed.
220. This Court has consistently taken the view that the
judgments delivered by this Court while exercising its
D jurisdiction under Article 136 of the Constitution cannot be
reopened in a writ petition filed ·mder Article 32 of the
Constitution. In view of this legal position, how can a final
judgment of this Court be reopened by merely filing interlocutory
applications where all possible legal remedies have been fully
E exhausted? \Nhen we revert to the facts of this case. it becomes
abundantly clear that this Court delivered final judgment in this
case way back in 1996. The said judgment has not been
permitted to acquire finality because the respondent Nos. 4 to
8 had filed multiple interlocutory applications and has ensured
F non-compliance of the judgment of this Court.
221. On consideration of pleadings and relevant judgments
• .
of the various courts, following irresistible conclusion emerge:
(i) The judgment of the Apex Court has great sanctity
G and unless there are extremely compelling,
overriding and exceptional circumstances, the
judgment of the Apex Court should not be disturbed
particularly in a case where review and curative
petitions have already been dismissed
H
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 279
UNION OF INDIA & ORS. [DALVEER BHAN~ARI, J.]
_,.
(ii) The exception to this general rule is where in the A
proceedings the concerned judge failed to disclose
the connection with the subject matter or the parties
giving scope of an apprehension of bias and the
judgment adversely affected the petitioner.
B
<~ (iii) The other exception to the rule is the circumstances
incorporated in the review or curative petition are
such that they must inevitably shake public
confidence in the integrity of the administration of
justice if the judgment or order is allowed to stand.
c
222. These categories are illustrative and not exhaustive
but only in such extremely exceptional circumstances the order
can be recalled in order to avoid irremedial injustice.
~
223. The other aspect which has been dealt with in great D
details is to neutralize any unjust enrichme,nt and undeserved
gain made by the litigants. While adjudicating, the courts must
keep the following principles in view.
1. It is the bounden duty and obligation of the court to
neutralize any unjust enrichment and undeserved E
gain made by any party by invoking the jurisdiction
of the court.
,. ./
2. When a party applies and gets a stay or injunction
from the court, it is always at the risk and F
responsibility of the party applying. An order of stay
cannot be presumed to be conferment of additional
right upon the litigating party.
3. Unscrupulous litigants be prevented from taking
~ undue advantage by invoking jurisdiction of the G
Court.
4. A person in wrongfd possession should not only be
removed from that place as early as possible but
be compelled to pay for wrongful use of that H
280 SUPREME COURT REPORTS (2011] 9 S.C.K.
premises fine, penalty and costs. Any leniency
. ...
would seriously affect the credibility of the judicial
system.
5. No litigant can derive benefit from the mere
pendency of a case in a court of law.
B
6. A party cannot be allowed to take any benefit of his
own wrongs.
7. Litigation should not be permitted to turn into a
c fruitful industry so that the unscrupulous litigants are
encouraged to invoke the jurisdiction of the court.
8. The institution of litigation cannot be permitted to
confer any advantage on a party by delayed action
of courts.
D
224. It may be pertinent to mention that even after
dismissal of review petition and of the curative petition on
18.7.2002, the applicants (respondent Nos. 4 to 8) have been
repeatedly filing one petition or the other in order to keep the
E litigation alive. It is indeed astonishing that the orders of this
court have not been implemented till date. The applicants have
made all possible efforts to avoid compliance of the judgment
of this Court. This is a clear case of abuse of process of the
court.
F
225. The Court in its order dated 04.11.1997 while
accepting the report of the MOEF directed the applicant -
M/s Hindustan Agro Chemical Ltd. to pay a sum of Rs.37.385
crores towards the costs of remediation. The amount which
ought to have been deposited way back in 1997 has yet not
G been deposited by keeping the litigation alive.
226. We have carefully considered the facts and
circumstances of this case. We have also considered the law
declared by this Court and by other countries in a number of
H cases. We are clearly of the opinion that the concerned
INDIAN COUNCIL FOR ENVIRO-LEGAL ACTION v. 281
UNION OF INDIA & ORS. IDALVEER BHANDARI, J.]
.) '
applicant-industry must deposit the amount as directed by this A
Court vide order dated 4.11.1997 with compound interest. The
applicant-industry has deliberately not complied with the orders
·of this court since 4.11.1997. Thousands of villagers have been
adversely affected because no effective remedial steps have
been taken so far. The applicant-industry has succeeded in their B
design in not complying with the court's order by keeping the
litigation alive.
227. Both these interlocutory applications being totally
devoid of any merit are accordingly dismissed with costs. C
Consequently, the applicant-industry is directed to pay
Rs.37.385 crores along with compound interest @ 12% per
annum from 4.11.1997 till the amount is paid or recovered.
228. The applicant~industry is also directed to pay costs
of litigation. Even after final judgment of this Court, the litigation D
has been kept alive for almost 15 years. The respondents have
been compelled to defend this litigation for all these years.
Enormous court's time has been wasted for all these years.
2~29. On consideration of the totality of the facts and · E
circumstances of this case, we direct the applicant-industry to
pay costs of Rs.10 lakhs in both the Interlocutory Applications.
The amount of costs would also be utilized for carrying out
remedial measure in village Bichhri and surrounding areas in
t1daipur District of Rajasthan on the direction of the concerned F
authorities.
230. In case the amount as directed by this Court and costs
imposed by this Court are not paid within two months, the same
. '
would be recovered as arrears of the land revenue.
231. Both these interlocutory applications are accordingly
disposed of.
G
Interlocutory Applications dismissed.
R.P.
H
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