THE SECRETARY, KERALA STATE COASTAL MANAGEMENT AUTHORITYversusDLF UNIVERSAL LIMITED (FORMERLY KNOWN AS ADELIE BUILDERS AND DEVELOPERS PVT. LTD.) & ORS.

146            SUPREME COURT
                         [2018]REPORTS
                                1 S.C.R. 146                 [2018] 1 S.C.R.


A     THE SECRETARY, KERALA STATE COASTAL MANAGEMENT
                         AUTHORITY
                                        v.
                         DLF UNIVERSAL LIMITED
B           (FORMERLY KNOWN AS ADELIE BUILDERS AND
                  DEVELOPERS PVT. LTD.) & ORS.
                       (Civil Appeal Nos. 117-120 of 2018)
                              JANUARY 10, 2018
          [R. F. NARIMAN AND SANJAY KISHAN KAUL, JJ.]
C
            Environmental Laws:
             Environment clearance – Coastal Regulation Zone (CRZ)
      Notification – Violation of – Regularisation of illegal construction
      – On facts, construction of multi-storey residential complex on the
D     bank of Chilavannurkayal (back waters) in Kerela – Allegation
      that the construction project completed in violation of CRZ
      notification – Single Judge of the High Court held that the
      construction was illegal, not capable of being regularized, thus
      passed direction for its demolition – Division Bench of the High
      Court upholding the findings of the Single Judge, set aside the order
E     of demolition and directed regularization on payment of Rs 1 crore
      as fine – On appeal, held: Authorities continue to do a flip-flop-flip
      putting the large investments at stake in a jeopardy – Specialised
      authorities were to carry out the task with promptitude but their
      lackadaisical attitude permitted DLF to raise the issue of a deemed
F     environment clearance – Alleged violations have not emerged with
      clarity – Findings of the courts below on CRZ violations alleged
      against DLF set aside – Approach of MoEF also appears to be
      strange and a complete contradiction between what was stated
      before the courts – Thus, the findings of the impugned order is set
      aside whereas the fine of Rs.1 crore sustained.
G
            Environment clearance for construction project – Application
      for – Held: Need to have more single window clearance, so that
      there is less uncertainty and better enforcement.


H
                                       146
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                       147
                  UNIVERSAL LTD.

      Disposing of the appeals, the Court                              A
      HELD: 1.1 The importance of environment and ecological
balance requires the enforcement of various Regulations, Rules
and enactments to be strictly followed. Specialised bodies like
the Kerela Coastal Zone Management Authority (KCZMA)-
appellant have been created to deal with the Coastal Regulation        B
Zone (CRZ) Regulations for greater sensitivity. It is, thus, no
answer to say that it does not have an enforcement mechanism
and thus, cannot act. [Para 43][164-E]
      Anil Hoble v. Kashinath Jairam Shetye (2016) 10 SCC
      701; Union Territory of Lakshadweep v. Seashells Beach           C
      Resort [2012] 5 SCR 1108 : (2012) 6 SCC 136; Esha
      Ekta Apartments Cooperative Housing Society v.
      Municipal Corporation of Mumbai [2013] 4 SCR 478 :
      [2013] 5 SCC 357; Piedade Filomena Gonsalves v.
      State of Goa [2004] 2 SCR 1135 : (2004) 3 SCC 445 –
      referred to.                                                     D

       1.2 If the allegation of large scale violations by DLF were
to be correct there would be no alternative but to bring down the
structure. There has to be undoubtedly greater clarity on the
processes and a better understanding between various authorities
so that developers are not left in the lurch-violators have to be      E
punished but it cannot be that the authorities continue to do a
flip-flop-flip putting the large investments at stake in a jeopardy.
This is what appears to have happened in the instant case. [Paras
48-49][166-B-D]
      1.3 It is made clear that in the future, wherever permissions    F
are required to come and are to be obtained before
commencement of construction, it would be no answer that activity
can be carried on without obtaining the permissions.
Simultaneously, the permissions itself are envisaged in a time
bound schedule and not through improvement of cases by                 G
authorities running into years. Thus, from the inception itself,
there should be clarity on what is permissible and what is not.[Para
50][166-E]
      1.4 In the said conspectus, if the present project is seen,
there is really no question mark over the various permissions to
                                                                       H
148            SUPREME COURT REPORTS                      [2018] 1 S.C.R.


A     carry on construction having been obtained by DLF. The land
      was purchased through sale deeds and the sale deeds specified
      the nature of the area. It would, thus, be no answer to state that
      even the Revenue authorities are oblivious to what is the nature
      of the land. DLF, thus, purchased the land legally and obtained
      requisite permissions including qua the FAR, which aspect stands
B
      explained by the Corporation as to why it is not 1.50 as alleged
      by KCZMA/appellant nor 2.5 as is alleged by DLF but in the
      given case was taken as 2 and that is why 1.99 FAR was permitted
      so that there is no doubt about the legality of the FAR granted.
      The environmental clearance was also granted and the aspect
C     which remained was relating to the CRZ area. The CESS did give
      a report in May, 2009 categorically stating that there was no CRZ-
      I (i) land in project area or close to it but it was situated in CRZ-
      II. The well developed, constructed area in the large expanse
      around the property also stood enumerated in that report.[ Paras
      51-53][166-F-G; 167-A-C]
D
            1.5 The fault of DLF was that it should have stayed its hand
      till CRZ permission had also been obtained but the fact remains
      that on account of delay in the same it was perceived as a deemed
      permission case-rightly or wrongly. The construction in between
      was also stopped but the appellant itself decided to recommend
E     the project proposal to MoEF on 20.3.2010 on the basis that the
      narrow canal was a drainage canal. If there was any doubt about
      the same, it should have been settled at that stage itself. The
      sub-committee appointed by the appellant also categorically
      observed that the narrow canal was a drainage canal but
F     recommended a fine being imposed for not obtaining prior
      approval/clearance. Really speaking the matter should have ended
      with that, with a quantification of the fine to be imposed. The
      approach of MoEF appears to be strange and a complete
      contradiction between what was stated before the High Court,
      before this Court before the conclusion of hearing and then the
G     endeavour to slip in an additional affidavit post conclusion of
      hearing.[Paras 54, 62][167-C-E; 169-B-C]
            1.6 It is undoubtedly the specialised authorities who have
      to carry out the task, but with promptitude. Their lackadaisical
      attitude has permitted DLF to raise the issue of a deemed
H
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                       149
                  UNIVERSAL LTD.

environment clearance by virtue of Clause 8(3) of the EIA              A
Notification of 2006. While the environment clearance was applied
on 27.11.2007, the integrated clearance was granted on 11.12.2013
after six years, while by 2012, the project stood completed.[Para
56][167-G-H; 168-A]
      1.7 Insofar as the nature of the area is concerned, due          B
weightage is given to the revenue records, which are reflected
in the sale deeds executed. Some of the aspects which have
weighed with the courts below do not find favour. The reason is
that the alleged violations have not emerged with clarity. [Para
57][168-B]
                                                                       C
       1.8 The Coastal Regulation Zone land use map 34A
produced shows that wherever filtration ponds existed they were
so recorded. In 1995-96 much prior to the year 2000 no such
filtration ponds are recorded in the area constructed upon.
Therefore, the findings to the contrary cannot be sustained. There
could not have been a reclamation of the filtration pond by DLF.       D
The Google images produced on behalf of DLF show that in
September, 2003 there was no suggestion of a water body. DLF
has also taken the assistance of a report of the Institute of Remote
Sensing in respect of two Google images relied upon by the
appellant to substantiate its case and explain that there was a        E
large mass of stagnant water in the property of shallow depth
with vegetation below the water visible. This water appears not
to have any permanent link with the backwater of the Chillannavur
canal. The existence of the coconut trees is another aspect which
throws doubt on the submissions made on behalf of the appellant.
If the appellant had acted with promptitude at the relevant time,      F
the correct picture would have been available whether for or
against. [Paras 58-60][168-C-G]
      1.9 The findings of the courts below on the violations alleged
against DLF are not accepted except to the extent that there is a
question mark on the issue of not having obtained prior clearance      G
and proceeding on the basis of a deemed clearance, which aspect,
at least for the future it is clarified that whatever be the manner
in which Clause 8(3) of Notification of 2006 is worded, it should
imply henceforth a prior clearance and necessary clarifications
should be issued by the concerned authorities in a time bound          H
150            SUPREME COURT REPORTS                          [2018] 1 S.C.R.


A     manner to obviate such situations to arise in the future. The
      direction contained in the impugned order to deposit Rs.1 crore
      (stated to be deposited) can be treated as a fine for the said
      purpose. The operative directions against the Collector of the
      State Government to monitor and do this task would be non-
      workable and it is appropriate that this amount is transferred to
B
      the KCZMA for purposes of better enforcement and development
      of CRZ area. [Paras 65-66][169-G-H; 170-A-B]
            1.10 The findings of the impugned order is set aside while
      sustaining the fine of Rs.1 crore with the direction for strict
      adherence to the norms in future and avoidance of such
C     contradictions by the authorities. It is appropriate that in view of
      the professed policy to have more single window clearance, the
      methodology of such processing of such applications should be
      endeavoured to be simplified so that there is less uncertainty
      and better enforcement. [Para 67][170-C]
D                              Case Law Reference
            (2016) 10 SCC 701                   referred to     Para 45
            [2012] 5 SCR 1108                   referred to     Para 45
            [2013] 4 SCR 478                    referred to     Para 46
E           [2004] 2 SCR 1135                   referred to     Para 47
            CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 117-
      120 of 2018.
            From the Judgment and Order dated 21.12.2016 of the High Court
      of Kerala at Ernakulam in W. A. No. 1987 of 2014 and W. P. (C) Nos.
F     20555, 28102 and 33715 of 2015.
                                       WITH
            C. A. Nos. 121, 122 and 123 of 2018.
            Shyam Divan, Pallav Shishodia, Kapil Sibal, Pinaki Mishra,
G     Krishnan Venugopal, Ranjit Kumar, Ajit Kr. Sinha, Sr. Advs., Vipin Nair,
      P. B. Suresh, Prithu Garg, Abhay Pratap Singh, Reji George, John
      Mathew, G. Prakash, Jishnu M. L., Mrs. Priyanka Prakash, Mrs. Beena
      Prakash, Vijay Shankar V. L., Manu Nair, Ishan Gaur, S. S. Shroff,
      Manik Sachdeva, Nikhil Rohatgi, Shashank Khurana, Saiby Jose
H     Kidangoor, Sajith P. Warier, P. S. Sudheer, Renjith B. Marar, Ms. Lakshmi
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                              151
                  UNIVERSAL LTD.

N. Kaimal, Vishnu Pazhanganat, Rajiv Nanda, Gurmeet Singh Makker,             A
Sanjay Kumar Pathak, S. Wasim A. Qadri, Saeed Qadri, Advs. for the
appearing parties.
      The Judgment of the Court was delivered by
      SANJAY KISHAN KAUL, J. 1. Leave granted.
                                                                              B
        2. The battle of environment protection against development is a
never ending one and the present dispute primarily is an offshoot of such
a conflict. The dispute between the developers of a housing project and
the environment authorities is also one where different authorities have
taken variant stands. It is the say of the developer that they obtained all
                                                                              C
requisite permissions and have proceeded with the project in pursuance
thereof while the coastal management authority and the environment
authority plead otherwise. From the perspective of the Kerala State
Coastal Management Authority, which is the main appellant before us, it
has been a saga of a sleeping authority – not having an afternoon siesta
but a Kumbhakarna sleep albeit of almost four years. On being woken           D
up, it suddenly seeks to see various violations wanting to put the clock
back. In this period things have been done and dusted and a huge project
has taken shape, which is at the final stage.
       3. Now coming to the facts of the case at hand, the project in
question is of respondent No.1, which purchased nearly 5.12 acres of          E
property from different vendors in the year 2006 envisaging a multi-
storey residential complex of about 185 units located on the eastern
bank of Chilavannurkayal (backwaters) in Kerala. The area in question,
as apparent from the status report of the Coastal Regulation Zone
(‘CRZ’) itself shows that the area falls in the Kochi Corporation and the
said area, along with the adjoining panchayats is highly developed. A lot     F
of low lying areas including tidal marshes and filtration ponds bordering
the backwaters are alleged to have been reclaimed for construction and
other development activities by various third parties and the area close
to the site in question is well developed and built up.
        4. Respondent No.1 obtained a building permit for the project in      G
question issued by the Corporation of Cochin (hereinafter referred to as
the ‘Corporation’) on 22.10.2007 under the Kerala Building Rules, 1984.
It is also not really disputed that the other linked permissions such as
NOC from State Pollution Control Board, NOC from the Fire & Rescue
Department and height clearance from the Navy was also obtained.              H
152             SUPREME COURT REPORTS                            [2018] 1 S.C.R.


A     The builders DLF Universal Limited (formerly known as ‘Adelie Builders
      & Developers Private Limited’) (hereinafter referred to as ‘DLF’) applied
      for environment clearance to the Ministry of Environment and Forests
      on 27.11.2007. The intervening factor was a Notification dated 14.9.2006
      issued by the Ministry of Environment and Forests in furtherance of the
      environment protection in exercise of power conferred by sub-section
B
      (1) and clause (v) of subsection (2) of Section 3 of the Environment
      Protection Act, 1986 (hereinafter referred to as the ‘said Act’) read
      with clause (d) of sub-rule (3) of Rule 5 of the Environment Protection
      Rules, 1986. This Notification was in supersession of the earlier
      Notification of 27.1.1994. The Notification states that the process was
C     followed duly and in accordance with the objective of the National
      Environment Policy as approved by the Union Cabinet on 18.5.2006,
      such process was being modified. All new projects required prior
      environmental clearance from the Central Government as applicable or
      as the case may be the State Environment Impact Assessment Authority
      (for short ‘SEIAA’) duly constituted by the Central Government under
D
      sub-section (3) of Section 3 of the said Act. The Notification also provided
      that the SEIAA would base its decision on the recommendation of the
      State or Union Territory Level Expert Appraisal Committee ( for short
      ‘SEAC’) as to be constituted following the Notification and in the absence
      of the setting up of these authorities, a category provided would be treated
E     as category ‘A’ project. Clause 8 dealt with the Grant or Rejection of
      Prior Environmental Clearance (EC) and the relevant clauses of the
      same are reproduced hereunder:
            “8. Grant or Rejection of Prior Environmental Clearance
            (EC):
F           (i) The regulatory authority shall consider the recommendations
            of the EAC or SEAC concerned and convey its decision to the
            applicant within forty five days of the receipt of the
            recommendations of the Expert Appraisal Committee or State
            Level Expert Appraisal Committee concerned or in other words
G           within one hundred and five days of the receipt of the final
            Environment Impact Assessment Report, and where
            Environmental Impact Assessment is not required, within one
            hundred and five days of the receipt of the complete application
            within requisite documents, except as provided below.

H                 xxxx                   xxxx             xxxx              xxxx
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                                153
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

      (iii) In the event that the decision of the regulatory authority is not   A
      communicated to the applicant within the period specified in sub-
      paragraphs (i) or (ii) above, as applicable, the applicant may
      proceed as if the environment clearance sought for has been
      granted or denied by the regulatory authority in terms of the final
      recommendations of the Expert Appraisal Committee or State
                                                                                B
      Level Expert Appraisal Committee concerned.”
        5. As we have been informed, these authorities have been
constituted subsequently only on 19.12.2011 and, thus, logically in view
of what has been set out hereinabove, the project in question could
possibly have been treated as a category ‘A’ project. The project of
DLF was examined by the Central Expert Appraisal Committee (for                 C
short ‘CEAC’) in its 63rd meeting and was approved as a “Silver Grading”
project. A suggestion was made by the CEAC that some of the project
area falls under the Coastal Regulation Zone (‘CRZ’) and thus, the details
of the project may be examined by the CRZ Committee of the Ministry
and a separate clearance should be acquired under the CRZ project. In           D
furtherance of this recommendation DLF was required to obtain the
CRZ status report from the Centre for Earth Science Studies (for short
‘CESS’), Thiruvanathapuram, which is stated to be one of the seven
authorised/identified agencies. An application is stated to have been
made by DLF on 23.9.2008 to CESS, which in turn made a positive
recommendation in May, 2009, stating that the project land was situated         E
at CRZ II and there was no area in CRZ (I and i) in the project area or
close to it. It may be noted at this stage that there have been some
subsequent reports by CESS in September, 2011 and a communication
dated 11.8.2014 but the project was more or less over even by the first
date or was sufficiently advanced. The purport of the subsequent                F
developments will be considered hereinafter but suffice to say that the
first report sought to point out reclamation of backwater by DLF after
2009, earlier reclamation of filtration ponds and paddy fields and shifting
of high tide lines. The communication dated 11.8.2014 pertained to
alleged replacement of some photographs from the CESS report of May,
2009 and referred to a stream/natural canal at site that had been mapped        G
by the CESS.
      6. It appears that DLF, however, did not wait for the environment
clearance and the construction activity went on at rapid pace at site
ostensibly on a perceived deemed clearance since there was no
                                                                                H
154            SUPREME COURT REPORTS                            [2018] 1 S.C.R.


A     communication during this period of time. This is apparent from a visit
      report dated 29.10.2009 of Kerala Coastal Zone Management Authority
      (for short ‘KCZMA’)/appellant. This resulted in the KCZMA/appellant
      issuing a letter dated 21.1.2010, seeking explanation for having started
      construction without obtaining the necessary permissions/approval/
      clearance from KCZMA/appellant. However, subsequently on 20.3.2010
B
      in its 40th meeting the KCZMA/appellant, post discussion of the site
      inspection report, decided to recommend the project proposal to the MoEF.
      The relevant portion of this is extracted hereinafter:
            “KCZMA has discussed the site inspection report in detail and
            decided to recommend the project proposal to MoEF. The
C           contention of the Subcommittee that, the narrow canal encountered
            in the imaginary line drawn parallel to the High Tide Line from the
            Choice Garden building is only a drainage canal as has been agreed
            by the meeting, since the narrow drainage canal need not be
            considered as a canal. The Authority also decided to collect a full
D           set of modified documents as per provisions of CRZ Notification,
            including existing FSI & FAR as on 19th February, 1991.”
              7. A sub-committee appointed by KCZMA/appellant visited the
      site again and made certain recommendations dated 19.7.2010. A perusal
      of the report of the sub-committee states that the construction had already
E     commenced and the structure of a sizeable number of floors of a multi-
      storey residential project was nearing completion. This is stated to have
      caused some impediment to the mandate to evaluate the proposed site
      for CRZ clearance. It, however, records that the site falls in CRZ II
      category and does not have any CRZ I(i) areas, such as mangroves. In
      Survey No.1019 Choice Garden Apartments existed which was, however,
F     in existence prior to 19.2.1991. Insofar as the narrow canal was
      concerned it is noted that the same functioned as a municipal drain for
      waste water drainage from urban conglomeration of the northern side
      of the project site. The residential apartment construction NCR II was
      found to be permissible but the proposed construction has to be on the
G     landward side of the existing road. The clarifications given by the MoEF
      were also noted that the imaginary line to be drawn should not cut across
      any river, creek, backwater, estuary,sand beach or mangroves. The
      recommendations were made and there were two significant aspects:
            i. The shortest distance from the high tide line to existing authorised
H               building of the adjoining plot (Choice Garden Apartments), being
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                              155
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

          13.5 mtrs., the imaginary line was drawn parallel to the HTL        A
          towards seaward side of the existing authorised building.
      ii. DLF should have obtained CRZ clearance from KCZMA/
          appellant before starting the construction, which was a
          procedural violation.
      8. In a nutshell while all aspects including the narrow canal was       B
found not to be an impediment, there was a violation of lack of prior
approval.
      9. The aforesaid report of the sub-committee was examined and
minutes drawn on 31.8.2010. The salient aspect recorded in these
minutes is that the sub-committee examined the documents submitted            C
by DLF and also obtained clarifications in respect of SFI from the City
Town Planners. The case was examined in the light of recent
amendments of the MoEF with regard to CRZ-II region and a site visit
was also made on 19.7.2010. On a detailed examination, two aspects,
which once again emerge are: (i) Any portion protruding beyond the            D
imaginary line towards backwaters may be demolished (which has
apparently been done); (ii) In view of “procedural violations” found by
the sub-committee, a penalty for the same should be imposed.
       10. The matter somehow did not end at this since the CESS is
stated to have visited the site again in June, 2011 and submitted a report    E
in September, 2011. This was in a sense the beginning of some further
adverse observations for DLF. It was now opined that apparently land
reclamation was carried out by DLF from 2009 onwards which had
caused the shifting of the backwater’s banks by five metres. A major
part of the area, which was reclaimed was found to be part of low lying
areas such as filtration ponds/paddy fields and lastly the lay out building   F
complex needed to be superimposed on the local level CRZ map to get
the exact distance from HTL.
       11. The Revenue Divisional Officer, Fort Kochi on 21.11.2011
issued a provisional stock memo to DLF to hold back construction on
the project land. There was an allegation made by the village officer         G
that about 50 cents of the Chilavannur river had been illegally reclaimed,
which the RDO on 17.12.2011 reported to the Cochin Corporation.
      12. The trigger for this letter was stated to be a complaint received
from one Mr. Antony A.V. of Chilavannur, Kochi pursuant whereto a
                                                                              H
156             SUPREME COURT REPORTS                            [2018] 1 S.C.R.


A     team of experts from KCZMA/appellant had visited the site. Mr. Antony
      is the original petitioner in the petition from which the present proceedings
      arise. The site was visited on 9.11.2012 by CESS on intimation by
      KCZMA/appellant and a report was submitted seeking to cast certain
      question marks over its own earlier reports. Thus issues, such as the
      status of the plot prior to 2009 having not been considered while delineating
B
      the HTL, reclamation/modification of the backwater site, area being
      part of water body were all sought to be raised. This was followed by a
      petition filed on 15.11.2012 by Mr. Antony, being Writ Petition No.27248/
      2012, seeking to interdict DLF from effecting any further construction
      and to direct Cochin Corporation to implement the various directions of
C     KCZMA/appellant. The said Mr. Antony approached the Court alleging
      to be living in the vicinity of the area and being affected by the
      construction. Interestingly, why he chose to remain silent when the vast
      area of construction was coming up right next to his property, is a mystery.
      So is it a mystery, why DLF was singled out while no mention was made
      of the whole area which was highly constructed as noticed in the reports.
D
      The learned single Judge granted interim orders on 4.12.2012 against
      progress of the project. KCZMA/appellant also became active at that
      stage, asking DLF to submit a CRZ map of the project site with
      construction superimposed on it and addressed to the MoEF a letter
      dated 29.12.2012 for necessary action alleging that there was a land
E     reclamation by DLF. The CEAC in its 124th meeting held on 13/14.5.2013
      decided to consider the environment clearance and noted certain violations
      by DLF. However, since the SEIAA was set up in the meantime vide
      Notification dated 19.12.2011, file of the project was transferred to it.
      On 31.10.2013, the project was cleared by the SEIAA qua environment
      clearance but it also decided to issue a show cause notice to DLF as to
F
      why violation proceedings should not be initiated against it before issuance
      of EC. Finally on 11.12.2013, SEIAA issued an integrated CRZ-cum-
      environment clearance dated 11.12.2013 to the project subject to the
      outcome of the writ proceedings pending before the learned single Judge
      of the Kerala High Court. We may note here itself that one of the
G     aspects pointed out by DLF is that this clearance has not been challenged
      in any proceedings nor were the writ proceedings amended to challenge
      the same.
           13. It is the case of the KCZMA/appellant that there were
      complaints preferred by other persons with regard to the project of DLF
H
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                               157
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

and thus, in its meeting held on 17.2.2014 it was decided to constitute a      A
three member committee to inquire into the CRZ status of the project.
Apparently on 30.6.2014, the Chief Secretary submitted a report to the
Chief Minister reporting certain violations and a three member committee
report was available on 21.7.2014 alleging illegal reclamation of the land
and other violations. CESS also sought to change its course on 11.8.2014
                                                                               B
alleging that there was a natural stream canal from the CRZ map submitted
to the MoEF for CRZ clearance and that some two photographs had
been replaced. The challenge laid to the report by DLF by way of writ
petition No.18483/2014 was disposed of on 19.8.2014 observing that the
report of the Chief Secretary dated 30.6.2014 could only be treated as a
piece of information.                                                          C
       14. The learned single Judge rendered his verdict on 8.12.2014
finding practically everything against DLF and categorised the whole
construction as illegal and in violation of law, particularly the CRZ
notification, and was thus not capable of being regularised. The illegal
structure was directed to be demolished. This order was assailed in writ       D
appeal No.1987/2014 by DLF. A separate writ petition was also filed,
being writ petition No.20555/2015, challenging the report dated 21.7.2014
by the three member committee appointed by the KCZMA/appellant.
The construction being complete and the flat buyers interest being
involved, these apartment buyers also filed writ petition Nos.2810/2015
and 3375/2015 praying for issuance of occupancy certificates.                  E

       15. The Division Bench ultimately by the impugned order while
broadly upholding the findings of the learned single Judge and setting
aside the order of demolition, directed regularisation subject to fine/
compensation amount of Rs.1 crore. This amount was to be deposited
before the District Collector, Ernakulam to be kept in a separate account      F
for being used exclusively for building up the environment, maintaining
ecological balance in the area situated on the eastern side of the
Chilavannur river, with a further direction to the District Collector to
submit periodic reports before the Court as to the utilisation of the amount
for the activities undertaken, in every six months. The writ petitions         G
filed by the prospective buyers were dismissed but without prejudice to
get the occupancy certificates for the building from the local authority
subject to the satisfaction of the costs. Writ petition No.20555/2015
was also dismissed.

                                                                               H
158             SUPREME COURT REPORTS                            [2018] 1 S.C.R.


A     Stand of KCZMA/Appellant
             16. The KCZMA/appellant are before us by appeal with Mr.
      Shyam Divan, learned Senior Advocate seeking to vehemently canvas
      that the various violations required the building to be demolished or in the
      alternative, the fine substantially enhanced. He took us meticulously
B     through the development in the case as discussed above with each of
      the events to canvas the violations which have taken place. On the
      Court query about the silence of this important authority for such a long
      period of time, the only answer available was that it did not have an
      enforcement mechanism and is dependent on the Corporation for the
      same. That, in our view, could hardly be an answer for such inaction if
C     there were violations. Enforcement is different from detection of
      violations. There can hardly be any doubt about the bounden duty of this
      authority to play a crucial role in preserving the environment in the coastal
      area and it cannot wash its hands off by giving an explanation for inaction
      as the alleged absence of an enforcement force. Had this authority kept
D     an eye open right from the beginning and played the role which it was
      required to play, the situation which has come to pass would not have so
      occurred and the identification of the violations, if any, would have been
      made at the threshold stage itself. This did not happen here.
             17. The reliance by the learned counsel has been on the subsequent
E     report, after the horses had bolted from the stable, to allege violations
      from the beginning. The case, which was sought to be put up and
      canvassed, was that no reclamation was permissible since 1991, but
      land was actually reclaimed in 2005-06 and 2009-11. The aspects pointed
      out in the subsequent reports including of the natural stream, as to how
      the HTL measuring norms were violated in coming to conclusions, were
F     pointed out.
             18. One of the main bedrocks of DLF, of having obtained the
      integrated environment/CRZ clearance granted by SEIAA on 11.12.2013
      was not denied but it was sought to be contended that the clearances
      ought to have been obtained prior to the commencement of construction
G     which would at the relevant stage have been granted by the MoEF. In
      any case SEIAA ought to have based its decisions on the recommendations
      of the SEAC, which was not done. The SEAC had only considered the
      environment clearance and not the CRZ clearance for the project. That
      file ought not to have been transferred to SEIAA by the MoEF.
H
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                             159
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

       19. Learned counsel also sought to contend that insofar as CRZ        A
status of the project land and its implications are concerned, the project
area in question included backwater and pokkali fields (filtration ponds)
by referring to various documents, which also show that land reclamation
was undertaken at the project site from 2005 onwards, which was a
prohibited activity. It was also submitted that the imaginary line to be
                                                                             B
drawn was cutting across a natural backwater canal and not a manmade
drainage canal as alleged by DLF.
       20. An issue was also sought to be raised about the FSI and FAR
status of the project as the same had been granted of 1.99 while the
Town and Country Plan Regulation only provided for 1.5.
                                                                             C
       21. In the written synopsis filed, it has been stated that some
action has been taken against some erring officials of Cochin Corporation
and the former Chairman of the KCZMA/appellant, and vigilance cases
are pending. It is admitted that a vigilance case is pending against the
Chief Secretary who addressed the communication dated 10.12.2014,
though not in respect of the project in question.                            D

       22. In order to establish that the action was not restricted to the
project in question, actions taken against other violators also sought to
be set up.
       23. KCZMA/appellant sub-committee report of 31.8.2010 giving          E
in principle approval/recommendation to the project and recommending
imposition of fine is stated to be based on CESS report of May, 2005,
which was based on HTL, which was subsequently found on
superimposition, to involve land reclamation and resulted in a three
member committee report dated 21.7.2014.
                                                                             F
       24. Learned senior counsel also referred to a catena of judgments
to advance the proposition that in the ‘no development zone’ there could
not be permissions granted and that this Court has frowned upon the
practice of regularisation of unauthorised construction where environment
issues are involved.
                                                                             G
Stand of the Cochin Municipal Corporation:
      25. The Corporation has largely confined itself to the issue of
FAR sanction of 1.99. It is stated that the maximum FAR of the
Corporation of Cochin is 2.5 as clarified by MoEF. In the Kerala Building
Rules, 1999, the maximum FAR of 1.5 was extended to 2.5 FAR, which
                                                                             H
160             SUPREME COURT REPORTS                           [2018] 1 S.C.R.


A     continued till 22.2.2001 when Rule 31 was amended and maximum FAR
      was increased to 3.00 extendable on payment of additional fee to 4.00.
            26. The building permit in question was issued on 22.10.2007,
      when the maximum FAR for central city of Kochi was reduced to 2. It
      was in these circumstances that the FAR of 1.99 was made available.
B     Stand of the State of Kerala:
             27. The State of Kerala has more or less supported the stand of
      KCZMA but in the course of arguments it does appear that one aspect
      which had really troubled it was the directions whereby the Collector
      was sought to be made responsible for the management of Rs.1 crore
C     fine to be deposited as also the feasibility of utilising the same.
      Stand of the Ministry of Environment and Forests:
             28. The Ministry of Environment and Forests has indulged in a
      complete flip-flop-flip in its affidavit without even explaining the reasons
D     for the same. The original affidavit was filed before the High Court on
      19.5.2016 by one Dr. S.K. Susarla, Advisor with the Ministry. The
      affidavit records that the Ministry was made a party to the proceedings
      by the orders of the Court in the writ proceedings. The affidavit states
      that based on the recommendations of the KCZMA, SEIAA, Kerala, it
      was found that the project came under category ‘B’ and the project
E     proponents adhered to the conditions laid down and the construction is in
      order. The relevant paras 19 & 20 are reproduced hereinbelow:
            “19. That the project proponents have adhered to the conditions
            laid down by the SEIAA and have not violated any of the
            provisions.
F
            20. That the said constructions are technically as per the provisions
            of the CRZ Notifications 1991 and EIA Notifications 2006.”
            29. In the present proceedings also an affidavit dated 6.11.2017 is
      available, which affirms that SEIAA, Kerala was in place in 2013 and
      the project was a category ‘B’ project as per EIA notification of 2006,
G     the appraisal was to be done at the State level by the SEIAA. The
      averments in para 17 are as under:
            “17. It is submitted that SEIAAs/SEACs comprises of members
            who are well qualified and have requisite expertise in various
            sectors to examine, appraise the projects and recommend them
H
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                                 161
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

       for grant of Environmental Clearance imposing all suitable                A
       environmental conditions to ensure sustainable environmental
       management. The consideration of such projects at SEIAA/SEAC
       level is to decentralise the powers confined to the Union
       Government and to streamline and expedite the process of grant
       of Environmental Clearance to building construction projects in
                                                                                 B
       view of the growing demand of housing to all.”
        30. On the conclusion of the hearing, when crystallised written
synopsis had to be filed, an affidavit is sought to be slipped in by one Mr.
Ritesh Kumar Singh, Joint Secretary of the MoEF, stating that this affidavit
is in “continuation” of the earlier affidavit dated 6.11.2017 filed on
7.11.2017. For the first time, it is sought to be now pleaded that CRZ           C
Notification, 1991, CRZ Notification, 2011 and EIA Notification, 2006
have been violated and that prior clearance under the Notifications before
the commencement of construction activity was mandatory. It is also
sought to be alleged that reclaimed water bodies and land falling under
CRZ for housing projects is prohibited under CRZ Notification. The               D
post construction environment clearance is stated to have been granted
to the project by SEIAA without appraisal and recommendations of SEAC
and in the absence of approval of KCZMA. This affidavit runs into 31
paragraphs with annexures.
      31. We fail to appreciate the contradictory stands of the authority        E
and the endeavour to set up a different case after the conclusion of the
hearing. Such conduct is unacceptable.
DLF’s stand:
       32. DLF has sought to emphasise that while an entrepreneur is
obliged to obtain all the requisite permissions, there is also a corresponding   F
obligation on the Regulatory Authorities to facilitate informed decisions
and compliances by the entrepreneur. DLF is stated to have obtained all
the requisite permissions for construction of the site from various
authorities including the Municipal Authorities. The issue pertains only
to the environment clearance and the CRZ on which aspects there have             G
been varying stands by different authorities and also changing stands of
the same authority.
       33. The allegation of reclamation of land in 2005-2006 and 2009-
2011 is strongly rebutted. It is pointed out that since there are registered
sale deed documents of land, assuming without admitting, that there is
                                                                                 H
162             SUPREME COURT REPORTS                               [2018] 1 S.C.R.


A     any reclamation, DLF had no role to play in the same as the transactions
      took place in 2006. The Revenue Authority would certainly know what
      is the nature of the area, i.e., whether it is land or not. Linked to this
      issue, it is pointed out, that the Coastal Regulation Zone Land Use Map
      No.34A prepared in 1996, which had been received by DLF under RTI
      directly from CESS clearly mentions the nature of the property. The
B
      filtrations ponds are marked as ‘FP’. There is no such FP marked in the
      area where DLF has constructed. The finding by the Court below is,
      thus, assailed as contrary to record.
              34. The aforesaid fact is sought to be buttressed by a reference
      to a recital in the sale deeds where the district, sub-districts, taluk, village,
C     kara, firka, tenure and survey numbers are all mentioned. Thus, the land
      certainly existed at the time of purchase. Not only that the sale deed
      dated 20.10.2006 mentions the boundary of the land with building Nos.CC
      29/288 in Item No.7 and 29/201 in item No.9, thereby suggesting that a
      part of the land had housed two buildings.
D             35. Insofar as the Google maps images of February, 2005 and
      December, 2005 are concerned, it is sought to be denied that the dark
      area in the images is a water body as is sought to be made out by the
      KCZMA. In this behalf a reference has been made to the Google map
      of September, 2002 not suggesting any water body. The report of the
E     Institute of Remote Sensing, where a closer study of Google map of
      February, 2005, through the process of separate enlargement would show
      that the embankment is well protected without any change that there
      was a large massof stagnant water in the property, which has shallow
      depth as vegetation below the water, could easily be noticed. This is not
      stated to have any permanent link with the back water of the Chillavannur
F     canal. The Google map of 26.12.2005 was also enlarged by the Institute
      of Remote Sensing and the entire Chillavannur lake is seen to have
      green patches of Colocasia trees surviving in low salinity. The property
      is stated to have lush and thick vegetation and coconut trees in the middle,
      western, and southern side of the property and the Google map clearly
G     distinguishes the geo morphology of the land which is totally different
      from the Chillavannur canal and confirms the well marked boundary line
      with the water body in the Chillavannur canal.
             36. The December, 2012 map is stated to show thick vegetation
      with no mark of water body and the coastal line abutting Chillavannur
H     canal is well defined and marked. It is also pointed out that the CESS in
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                               163
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

its report of May, 2009 published the coastal regulation zone status report    A
for an apartment complex as Vytilla, Cochi and the photograph of the
front page itself shows that the land in question before the construction
in May, 2009 next to Choice Garden is full of coconut trees thereby
suggesting that in May, 2009, it was clearly not a water body. Such
coconut trees could not have come up overnight as they have a gestation
                                                                               B
period of 10-15 years.
        37. The development arising from the successive CESS report is
sought to be analysed and it is alleged that Mr. K.V. Thomas was a
party to these reports. The reports were with KCZMA and, thus, there
could not be any issue of replacement of photographs. The photograph
on the front cover of the report also shows the coconut trees on the           C
property. The CESS report prepared by the same Mr. Thomas and
others in 2009 marks the drain in red colour and describes it as inter-tidal
zone falling under CRZ-I(ii). In the 2010 report to which Mr. Joseph is
a party while referring to the HTL, the canal is referred to as a drainage
canal and, thus, the requirement of imaginary line not to cut across the       D
water body would not be invoked. In another report in January, 2011,
Mr. Thomas gave recommendations by naming various projects, which
had committed CRZ violations on the banks of Chillavannur lake, which
had committed violations by either constructing on a reclaimed filtration
pond or backwater side of authorised buildings and respondent No.1
project was not named in the same. Thus, right till February, 2011 at          E
least, it is submitted, that in the opinion of the KCZMA/appellant, DLF
was stated to be in compliance of all statutory provisions.
       38. DLF draws strength from the fact that only part of the area
was found to be in CRZ-II, municipal authorities granted approvals and
that no statutory provisions in 1991 Notification or of September, 2006,       F
made prior CRZ approval before commencement of construction
mandatory. Once KCZMA itself recommended the proposal to MoEF,
it was submitted by respondent No.1 that there was no impediment in
the way of proceeding further with the project and there was really no
occasion for the CESS to revisit the issue.                                    G
      39. It has been sought to be emphasised by Mr. Kapil Sibal, learned
senior counsel on behalf of DLF that no explanation was sought from
DLF in respect of the observations of September, 2011. The 2012 report
was also never put to the DLF. Why these aspects were not so put is
unexplained.                                                                   H
164               SUPREME COURT REPORTS                         [2018] 1 S.C.R.


A            40. Learned senior counsel sought to emphasise that the churning
      and the rigmarole ultimately did produce a clearance of the project at
      least on 11.12.2013 and it was only after construction was complete, the
      different aspects were triggered off at the behest of Mr. Antony, who
      had seen the whole project develop near his property as alleged without
      raising a finger on the issue over a number years. The FSI position
B
      stands explained by the Corporation. Lastly, however, it was conceded
      that though the fine was uncalled for, DLF has not sought overturning of
      the fine as it did not file an appeal against the impugned order.
      Conclusion:
C            41. We commenced this order pointing out the sleeping role of the
      authorities which developed into contradictory claims by different
      authorities over factual issues and finally even by the same authority,
      like MoEF taking contradictory stands, even trying to slip in a further
      additional stand after conclusion of hearing. It is a matter of concern to
      us that authorities have not performed their task with promptitude, not
D     realising the importance of the role they play including KCZMA/appellant.
            42. We would like to deal with this matter on two planes – one is
      the general plane; and the other is in the given facts of the case.
             43. It is trite to say that the importance of environment and
E     ecological balance requires the enforcement of various Regulations, Rules
      and enactments to be strictly followed. Specialised bodies like the
      KCZMA/appellant have been created to deal with the CRZ Regulations
      for greater sensitivity. It is, thus, no answer to say that it does not have
      an enforcement mechanism and thus, cannot act.

F           44. The case law, which Mr. Shyam Divan took us through itself
      brings forth the importance of compliances.
             45. In Anil Hoble v. Kashinath Jairam Shetye1, it was held that
      any illegal structure falling within the ‘No Development Zone’ (200 mtrs.
      from the HTL) in a CRZ III area was directed to be demolished and
      even the permission granted by the Coastal Zone Management Authority
G
      was of no avail. Similarly, the practice of regularising unauthorised
      constructions effected by erring buildings in violation of law has not
      found approval from this Court and humanitarian and equitable grounds
      found no place in the same. In Union Territory of Lakshadweep v.
      1
          (2016) 10 SCC 701
H
    SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                           165
        UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

Seashells Beach Resort2, it has been observed as under:                       A
       “30. The High Court’s order proceeds entirely on humanitarian
       and equitable considerations, in the process neglecting equally, if
       not more, important questions that have an impact on the future
       development and management of the Lakshadweep Islands. We
       are not, therefore, satisfied with the manner in which the High        B
       Court has proceeded in the matter.
       31. The High Court obviously failed to appreciate that equitable
       considerations were wholly misplaced in a situation where the
       very erection of the building to be used as a resort violated the
       CRZ requirements or the conditions of land use diversion. No one       C
       could in the teeth of those requirements claim equity or present
       the administration with a faitaccompli. The resort could not be
       commissioned under a judicial order in disregard of
       seriousobjections that were raised by the Administration, which
       objections had to be answered before any direction could issue
       from a writ Court.”                                                    D

     46. To the aforesaid extent are also the observations in Esha
Ekta Apartments Cooperative Housing Society v. Municipal
Corporation of Mumbai3.
      47. In Piedade Filomena Gonsalves v. State of Goa4, it has              E
been observed as under:
       “5. It is pertinent to note that during the pendency of the writ
       petition, the appellant had moved two applications, one of which
       is dated 11.7.1995, for the purpose of regularisation of the
       construction in question. The Goa State Coastal Committee for          F
       Environment, the then competent body constituted a sub-committee
       which inspected the site and found that the entire construction
       raised by the appellant fell within 200 metres of HTL and the
       construction had been carried out on existing sand dunes. The
       Goa State Coastal Committee for Environment, in its meeting dated
       20.10.1995, took a decision inter alia holding that the entire         G
       construction put up by the appellant was in violation of the Coastal
       Regulation Zone Notification.
2
  (2012) 6 SCC 136
3
  (2013) 5 SCC 257
4
  (2004) 3 SCC 445                                                            H
166             SUPREME COURT REPORTS                            [2018] 1 S.C.R.


A           6. The Coastal Regulation Zone Notifications have been issued in
            the interest of protecting environment and ecology in the coastal
            area. Construction raised in violation of such regulations cannot
            be lightly condoned. We do not think that the appellant is entitled
            to any relief. No fault can be found with the view taken by the
            High Court in its impugned judgment.”
B
            48. We are of the view that if the allegation of large scale violations
      by DLF were to be correct there would be no alternative but to bring
      down the structure. The moot point, however, remains is as to what is
      the correct analysis of the factual position in the case.
C            49. We would also like to emphasise that there has to be
      undoubtedly greater clarity on the processes and a better understanding
      between various authorities so that developers are not left in the lurch –
      violators have to be punished but it cannot be that the authorities continue
      to do a flip-flop-flip putting the large investments at stake in a jeopardy.
      This is what appears to have happened in the present case.
D
             50. We also make it clear that in the future, wherever permissions
      are required to come and are to be obtained before commencement of
      construction, it would be no answer that activity can be carried on without
      obtaining the permissions. Simultaneously, the permissions itself are
      envisaged in a time bound schedule and not through improvement of
E     cases by authorities running into years. Thus, from the inception itself,
      there should be clarity on what is permissible and what is not.
             51. In the aforesaid conspectus, if the present project is seen,
      there is really no question mark over the various permissions to carry on
      construction having been obtained by DLF. The land was purchased
F     through sale deeds and the sale deeds specified the nature of the area.
      It would, thus, be no answer to state that even the Revenue authorities
      are oblivious to what is the nature of the land. DLF, thus, purchased the
      land legally and obtained requisite permissions including qua the FAR,
      which aspect stands explained by the Corporation as to why it is not
G     1.50 as alleged by KCZMA/appellant nor 2.5 as is alleged by DLF but in
      the given case was taken as 2 and that is why 1.99 FAR was permitted
      so that there is no doubt about the legality of the FAR granted. We may
      not delve further on this aspect as the crucial question is relating to the
      environment clearance and the clearance required for the CRZ area.
            52. The possibility of some area being CRZ-I area had given rise
H
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                               167
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

to the observations by the CEAC in its 63rd meeting on 16-18.8.2008 for        A
the project to take CRZ clearance as well while granting environmental
clearance. Thus, the environmental clearance was also granted and the
aspect which remained was relating to the CRZ area.
       53. There are stated to be notified authorities numbering seven at
that stage, who would prepare reports for analysis by the KCZMA/               B
appellant and one such notified agency was CESS. The CESS did give
a report in May, 2009 categorically stating that there was no CRZ-I (i)
land in project area or close to it but it was situated in CRZ-II. The well
developed, constructed area in the large expanse around the property in
question, also stood enumerated in that report.
                                                                               C
       54. The fault of DLF was that it should have stayed its hand till
CRZ permission had also been obtained but the fact remains that on
account of delay in the same it was perceived as a deemed permission
case – rightly or wrongly. The construction in between was also stopped
but the appellant itself decided to recommend the project proposal to
MoEF on 20.3.2010 on the basis that the narrow canal was a drainage            D
canal. If there was any doubt about the same, it should have been
settled at that stage itself. The sub-committee appointed by the appellant
also categorically observed that the narrow canal was a drainage canal
but recommended a fine being imposed for not obtaining prior approval/
clearance. Really speaking the matter should have ended with that,             E
with a quantification of the fine to be imposed.
        55. As to why after the initial report of CESS of May, 2009, should
CESS,after two years be again asked to visit at the request of the appellant
is not really understood. In the meantime most of the construction was
apparently done. The complaints made by Mr. Antony started playing a           F
role from 2012, a person who, also for reasons best known to him, decided
to knock at the doors of the authority and the Court when most of the
project was over. Interestingly CESS, once again, visited based on
recommendation of the appellant in November, 2012 at the same time
when Mr. Antony filed the petition.
                                                                               G
       56. In our view it is undoubtedly the specialised authorities who
have to carry out the task, but with promptitude. Their lackadaisical
attitude has permitted DLF to raise the issue of a deemed environment
clearance by virtue of Clause 8(3) of the EIA Notification of 2006, which
has already been extracted hereinabove. While the environment
                                                                               H
168            SUPREME COURT REPORTS                           [2018] 1 S.C.R.


A     clearance was applied on 27.11.2007, the integrated clearance was
      granted on 11.12.2013 after six years, while by 2012, the project stood
      completed.
             57. Insofar as the nature of the area is concerned, we have given
      due weightage to the revenue records, which are reflected in the sale
B     deeds executed. Some of the aspects which have weighed with the
      Courts below do not find favour with us. The reason is that the alleged
      violations have not emerged with clarity.
            58. The Coastal Regulation Zone land use map 34A produced
      before us by DLF and as explained by Mr. Kapil Sibal, learned senior
C     counsel shows that wherever filtration ponds existed they were so
      recorded. In 1995-96 much prior to the year 2000 no such filtration
      ponds are recorded in the area constructed upon. Therefore, the findings
      to the contrary cannot be sustained. There could not have been a
      reclamation of the filtration pond by DLF.

D            59. In the course of arguments, Mr. Shyam Divan, learned senior
      counsel has sought to rely upon the Google images of February, 2005
      and December, 2005 to suggest that there has been obviously large scale
      reclamation. On behalf of DLF, Mr. Sibal has been able to throw grave
      doubts over reliance of such Google images for the purposes of coming
      to the conclusion that the dark area in the image is a water body apart
E     from the fact that in the sale deed dated 20.10.2006 it is not so mentioned
      as per the revenue record. The Google images produced on behalf of
      DLF show that in September, 2003 there was no suggestion of a water
      body. DLF has also taken the assistance of a report of the Institute of
      Remote Sensing in respect of two Google images relied upon by the
F     appellant to substantiate its case and explain that there was a large mass
      of stagnant water in the property of shallow depth with vegetation below
      the water visible. This water appears not to have any permanent link
      with the backwater of the Chillannavur canal. The existence of the
      coconut trees is another aspect which throws doubt on the submissions
      made on behalf of the appellant.
G
             60. As noticed above, if the appellant had acted with promptitude
      at the relevant time, we are sure that the correct picture would have
      been available whether for or against.
            61. On behalf of CESS also there have been meanderings and
      contradictions in the approach, even though Mr. K.V. Thomas was party
H
 SECY., KERALA STATE COASTAL MNGMT. AUTH. v. DLF                                169
     UNIVERSAL LTD. [SANJAY KISHAN KAUL, J.]

to all of them. In the context of the drain, in the 2009 report it is clearly   A
stated to be an inter tidal zone falling under CRZ 1(ii). The report has
been prepared after inspection. The HTL from the Choice Garden
building was found cutting the canal, which was labelled as a drainage
canal and thus, was not cutting a water body. It is not understood how
the contradictions arose subsequently in the 2011 and 2012 reports.
                                                                                B
      62. The approach of MoEF also appears to be strange and a
complete contradiction between what was stated before the High Court,
before us three weeks before the conclusion of hearing and then the
endeavour to slip in an additional affidavit post conclusion of hearing.
       63. The CEAC in 2008 itself had suggested that the CRZ                   C
Committee may examine the proposal which was so done. This was
discussed with the appellant and further requisite information was also
sought. The report from the CESS was obtained in May, 2009 and only
a part of the project area was found in CRZ II category. After going
through all the procedural requirements, the appellant made a
recommendation on 31.8.2010 that the construction falls in CRZ II areas         D
and the narrow canal was not an impediment to the construction. The
appellant itself decided to recommend the proposal to the MoEF.
      64. It is the own wisdom of the MoEF that with the establishment
of SEIAA the whole file should be forwarded to it and this was sought to
be justified on the basis of the experts available with SEIAA. What             E
weighs with us most is that post transfer of the file on 11.12.2013, the
proposal was cleared by SEIAA, being the final authority, and that has
never been withdrawn or cancelled or challenged. This clearance was
post a show cause notice seeking explanation from DLF and on
explanation being offered, was issued. Now for the authorities to say           F
otherwise or contradict themselves would not be fair to DLF and would
cause grave uncertainty if such an approach was to be permitted.
        65. We are, thus, not in agreement with the findings of the Courts
below on the violations alleged against DLF except to the extent that
there is a question mark on the issue of not having obtained prior clearance    G
and proceeding on the basis of a deemed clearance, which aspect, at
least for the future we have clarified that whatever be the manner in
which Clause 8(3) of Notification of 2006 is worded, it should imply
henceforth a prior clearance and necessary clarifications should be issued
by the concerned authorities in a time bound manner to obviate such
                                                                                H
170                SUPREME COURT REPORTS                         [2018] 1 S.C.R.


A     situations to arise in the future. We feel that the direction contained in
      the impugned order to deposit Rs.1 crore (stated to be already deposited)
      can be treated as a fine for the said purpose.
            66. We are also of the view that the operative directions against
      the Collector of the State Government to monitor and do this task would
B     be non-workable and it is appropriate that this amount is transferred to
      the KCZMA/appellant for purposes of better enforcement and
      development of CRZ area.
             67. In conclusion we set aside the findings of the impugned order
      while sustaining the fine of Rs.1 crore with the direction for strict
C     adherence to the norms in future and avoidance of such contradictions
      by the authorities. We also feel it appropriate that in view of the professed
      policy to have more single window clearance, the methodology of such
      processing of such applications should be endeavoured to be simplified
      so that there is less uncertainty and better enforcement. The same may
      be done within a period three months from the receipt of the copy of the
D     order.
             68. The appeals are disposed of in the aforesaid terms. The parties
      are left to bear their own costs.


E     Nidhi Jain                                                 Appeals disposed of.




F




G




H