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Smart Summary

National Green Tribunal (Principal Bench, New Delhi) — Execution Application No. 52/2018

Factual and Procedural Background

This execution application (Execution Application No. 52/2018 in O.A. No. 454/2018) was filed to enforce an order of the Tribunal dated 23.07.2018 concerning proper maintenance of storm water drains in Gurugram (Gurgaon). The applicants are Subhash Gupta & Ors.; respondents include the Union of India & others. The matter was heard on 10.02.2021. Counsel listed in the order are Mr. Sonal Anand for the applicants in EA 52/2018 and Mr. Rahul Khurana for the Municipal Corporation, Gurugram and GMDA.

The Tribunal considered multiple status reports filed by authorities including the Director, Town and Country Planning Department (report dated 04.01.2019), the Gurugram Metropolitan Development Authority (GMDA) and the Commissioner, Municipal Corporation, Gurgaon (reports dated 01.11.2019, 02.11.2019, 05.03.2020 and 03.10.2020). Earlier directions and observations in related matters (notably O.A. No. 06/2012 and others) were also referred to in the course of proceedings.

The factual record in the reports, as set out in the order, includes: construction completed in parts by HSVP (19 km RCC box drain/covered storm water drain and approximately 7 km open kacha nallah); certain land strips yet to be acquired (about 400 metres near the tail connecting to Najafgarh Drain and 75 metres near village Khandsa); sections (Leg I and Leg II) transferred to or to be transferred to GMDA, with some small incomplete stretches noted; and action plans prepared for desilting and repair of arterial drains within MCG jurisdiction. Subsequent GMDA status reports included quantitative data on sewage discharge and the balance discharge yet to be diverted or treated (a total balance of 47.7 MLD remaining as recorded in the GMDA report), with projected completion dates of 31.12.2021 and stated delays attributed to bans on construction activity in the NCR Region and the Covid-19 lockdown.

Legal Issues Presented

  1. Whether the order dated 23.07.2018 regarding proper maintenance of storm water drains in Gurugram has been complied with and can be enforced through the execution application.
  2. Whether the concerned authorities have taken effective steps and interim measures to prevent discharge of untreated sewage into drains and water bodies as required by prior judicial directions, including timelines mandated by the Supreme Court in Paryavaran Suraksha (2017) 5 SCC 326.
  3. Whether the multiple agencies involved (GMDA, MCG, HSVP, HSIIDC) have coordinated adequately, and whether an appropriate single coordinating mechanism (analogous to an Integrated Drain Management Authority) should be constituted or administrative directions given to ensure compliance.

Arguments of the Parties

The opinion does not contain a detailed account of the parties' legal arguments.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Paryavaran Suraksha Samiti v. Union of India, (2017) 5 SCC 326 The Supreme Court fixed an upper limit of 01.04.2018 for preventing water pollution by installing necessary equipment; it directed initiating prosecution of concerned Secretaries of State where such situation continues after 01.04.2018. The Tribunal held that the timeline proposed by GMDA (stopping discharge of untreated sewage by 30.06.2021) was in conflict with this Supreme Court-mandated timeline and observed that continued discharge would amount to criminal offence and express violation of the Supreme Court directions. The Tribunal referred to the Supreme Court direction on prosecution and to the Tribunal's own direction to recover compensation for violations overseen by the Chief Secretary.
Manoj Misra v. Union of India (O.A. No. 06/2012) Matters dealing with remediation of river Yamuna and related remedial measures (as referenced in the order). The Tribunal referred to observations in this matter when considering remediation obligations and interim measures to prevent pollution entering water bodies, and noted CPCB proposals previously placed on its website as relevant to interim arrangements.
Vaishali Rana Chandra & Ors. v. Union of India & Ors. (O.A. No. 523/2019) Consideration of remedial action concerning past construction (specifically box drains/covered drains) that may obstruct natural flow. The Tribunal noted that remedial action for box drains constructed in the past is a matter for consideration in O.A. No. 523/2019 and observed that the current report did not justify constructing box drains that might obstruct natural flow.
O.A. No. 593/2017 (order dated 28.08.2019) Dealt with preventing any untreated sewage or effluent from being discharged into any water body (as referenced in the order). The Tribunal referred to this order while directing GMDA, MCG and HSIIDC to take further steps and furnish a compliance report, with GMDA designated as the nodal agency.

Court's Reasoning and Analysis

The Tribunal examined the sequence of reports and concluded that a substantial gap remained between sewage generation and treatment capacity in Gurugram, as reflected in the GMDA status table showing 47.7 MLD still to be diverted/treated. The Tribunal observed that:

  • The timeline proposed by GMDA to stop discharge of untreated sewage by 30.06.2021 conflicted with the Supreme Court's deadline of 01.04.2018 (Paryavaran Suraksha), and therefore was unacceptable.
  • The GMDA report did not demonstrate interim arrangements to prevent untreated sewage being discharged into drains until the proposed treatment capacity is established; specific proposals (e.g., by Jamia Millia Islamia University) were stated to be not considered.
  • Some existing STPs were admitted by GMDA officers to be non-compliant with Faecal Coliform norms, meaning sewage remained untreated to the extent of non-compliance and continued to be discharged into water bodies in violation of law.
  • Multiple agencies are involved in handling STPs and sewerage management (MCG, GMDA, HSVP, HSIIDC), creating fragmentation; the Tribunal recalled its view (from O.A. No. 06/2012) in favor of a single coordinating agency and suggested that a similar approach be considered in Haryana to reduce delay and cost.
  • The Tribunal emphasized that interim measures recommended by CPCB (available on its website) could be adopted to prevent pollution without significant cost or advanced technology and noted no explanation was given why such measures were not adopted.

On the basis of these findings, the Tribunal directed senior administrative action: it directed the Chief Secretary, Haryana to monitor the situation and take remedial action in mission mode; it directed GMDA to interact with CPCB for interim arrangements and designated GMDA as nodal for compliance reporting; and it directed that reports be furnished electronically before the next date. The Tribunal also reiterated prior directions regarding recovery of compensation and prosecution referenced in Supreme Court authority where violations persisted beyond the mandated date.

Holding and Implications

DISPOSED OF.

Implications and direct effects of the order on the parties and administration (as expressly recorded in the opinion):

  • The execution application is disposed of subject to the Tribunal's directions recorded in the order.
  • The Chief Secretary, Haryana is directed to take further remedial action in mission mode and to monitor compliance; the GMDA is directed to interact with the Central Pollution Control Board (CPCB) for interim arrangements and act as nodal agency for furnishing compliance reports.
  • CPCB may provide technical assistance as necessary, subject to coordination between senior officers of the Haryana Government and the Member Secretary, CPCB.
  • A copy of the order is to be forwarded by email to the Chief Secretary, Haryana, GMDA, State Pollution Control Board and CPCB for compliance.

The opinion does not state that it establishes any new legal precedent; rather, it applies and enforces prior judicial directions (notably those in Paryavaran Suraksha and related matters) and issues administrative and compliance directions to the State authorities named above.

Delivered by: Hon'ble Mr. Justice Adarsh Kumar Goel (Chairperson), Hon'ble Mr. Justice Sheo Kumar Singh (Judicial Member), Dr. Nagin Nanda (Expert Member). Date: February 10, 2021.

    SH. SUBHASH GUPTA v. MINISTRY OF ENVIRONMENT AND FOREST

    Item No. 03 Court No. 1

    BEFORE THE NATIONAL GREEN TRIBUNAL

    PRINCIPAL BENCH, NEW DELHI

    Execution Application No. 52/2018

    IN

    O. A. No. 454/2018 Subhash Gupta & Ors. Applicant(s) Versus

    Union of India & Ors. Respondent(s) Date of hearing: 10.02.2021

    CORAM: HON'BLE MR. JUSTICE ADARSH KUMAR GOEL, CHAIRPERSON HON'BLE MR. JUSTICE SHEO KUMAR SINGH, JUDICIAL MEMBER HON'BLE DR. NAGIN NANDA, EXPERT MEMBER

    Applicant: Mr Sonal Anand, Adv. for Applicant in EA 52/2018 Respondent: Mr. Rahul Khurana, Adv. for MC, Gurugram & GMDA

    ORDER

    1.1

    1. This execution application has been filed to enforce the order of this Tribunal dated 23.07.2018 for proper maintenance of storm water drains in Gurgaon.

    2. The matter was considered earlier on 08.01.2019 in the light of report dated 04.01.2019 furnished by the Director, Town and Country Planning Department. The observations of this Tribunal are:

    "5. The HSVP has constructed 19 KM RCC box drain/ covered storm water drain and approximately 7 KM is open kacha Nallah through which storm water of the town is dispose of into Najafgarh Drain. About 400 meter strip of land is yet to be acquired near tail connecting to Najafgarh drain and 75 meters piece of land strip in 10 meters width in downstream of village Khandsa. Other outfall drain Leg - I have already been constructed with box drain and transferred to Gurugram Metropolitan Development Authority (GMDA). Similarly, RCC box drain leg - II has also been completed except 600 meters length near Najafgarh drain in Sector 107. After completion of the work, this drain shall also be transferred to GMDA. Action plan with respect to desilting and repair of arterial drains falling within jurisdiction of MCG has been prepared. Further, action plan to prevent sewage from entering into master storm water drains leg - I, II and Badshahpur drain has

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    already been submitted in the form of affidavit in Original Application no. 6 of 2012 of Sh. Manoj Mishra and Writ Petition No. 375 of 2012 Paryavaran Suraksha Samiti Vs. UOI.

    6. Let the ongoing work be completed and orders of this Tribunal be complied with as per action plan before the next date.

    7. A further status report be furnished before the next date by e-mail at ngt.filing@gmail.com."

    3. The matter was further considered on 06.03.2020 in light of reports dated 02.11.2019 and 05.03.2020 filed by the Gurugram Metropolitan Development Authority (GMDA) and reports dated 01.11.2019 and 05.03.2020 filed by the Commissioner, Municipal Corporation, Gurgaon (MCG). The Tribunal, after referring to the observations in O.A. No. 06/2012, Manoj Misra v. Union Of India. dealing with the remediation of river Yamuna and in O.A. No. 593/2017 dated 28.08.2019, dealing with preventing any untreated sewage or effluent from being discharged into any water body, directed the GMDA, the MCG and the HSIIDC to take further steps and furnish a compliance report through GMDA, which was to be the nodal agency.

    4. The matter was last considered on 05.10.2020 in the light of the report of the GMDA dated 03.10.2020 to the effect that discharge of untreated sewage will be stopped by 30.06.2021 by bridging the gap in the generation and treatment of sewage. The Tribunal held that the timeline proposed was in conflict with the timeline mandated under the judgment of the Hon'ble Supreme Court in Paryavaran Suraksha case, (2017) 5 SCC 326 fixing the upper limit of 01.04.2018, for preventing water pollution by installing necessary equipments. The Tribunal accordingly directed further appropriate steps in the matter including interim arrangement to prevent pollution pending further action. Extract from the order dated 05.10.2020 is as follows:-

    2

    "1to3..xxx….……………………………….xxx…………………………xxx

    4. The GMDA has filed its report on 03.10.2020 to the effect that the discharging of untreated sewage will be stopped by 30.06.2021, which may be further delayed on account of the pandemic. Development of infrastructure is being done by the concerned Departments to ensure Zero Liquid Discharge (ZLD) in the main drains during dry weather, except treated waste water. Five STPs are in operation but still there is a gap which has to be bridged for which there is a plan to set up de-centralized STPs and additional STPs, as per details mentioned. With regard to natural wetland, there is a proposal from the Jamia Millia Islamia University which requires 250 acres of land and Rs. 40 crores of cost, in addition to the cost of land.

    5. From the report, we do not find any justification for constructing box drains/covered storm water drains which may obstruct natural flow. However, during hearing, it is explained that the construction of box drain was done in the past against which remedial action is a matter of consideration in O.A. No. 523/2019, Vaishali Rana Chandra & Ors. v. Union of India & Ors. The report does not show any arrangement to prevent untreated sewage being discharged into the drains till June, 2021 or even till December, 2021 till the proposed work of setting up capacity for treatment is completed. It is stated that the proposal submitted by the Jamia Millia Islamia University is not being considered. There is no other proposal for preventing untreated sewage from being discharged into the drains. Thus, the law will continue to be violated and untreated sewage continue to be discharged in water bodies, though it is criminal offence under the law of land and express violation of directions of the Hon'ble Supreme Court in Paryavaran Suraksha case, (2017) 5 SCC 326, directing initiating prosecution of concerned Secretaries of State concerned where such situation continues after 1.4.2018. This Tribunal, in compliance of directions of the Hon'ble Supreme Court, directed recovery of compensation for such violation which is to be overseen by the Chief Secretary. The Tribunal has also directed that pending setting up of STPs etc, interim measures be taken so that not a drop of pollution is discharged in water bodies. As noted in O.A. No. 06/2012, the CPCB has placed various proposals for the purpose on its website enabling interim measures to be adopted without much financial cost and without much technology but there is no explanation why such steps are not being taken.

    6. Further, the officers of the GMDA acknowledge that the STPs are not compliant with regard to the Faecal Coliform norms and thus to that extent the sewage remains untreated and continues to be discharged into the water bodies, in violation of law.

    3

    7. We also note that there are multiple agencies dealing with the STPs, as mentioned in the report viz. the MCG, the GMDA, the HSVP and the HSIIDC. In O.A. No. 06/2012, this Tribunal expressed the view that as far as possible there should be a single coordinating agency for treatment of sewage which will help curtailing delay and cost. In the context of Delhi, the Tribunal directed constitution of Integrated Drain Management Authority (IDMA) to be headed by the Chief Secretary. Other agencies such as the Delhi Jal Board (DJB), the Municipal Corporation, PWD, Irrigation Department being members of such authority. As reported in the said matter, IDMA has been constituted in Delhi. In Haryana also, on similar pattern, an appropriate agency needs to be considered by the Chief Secretary, Haryana so that decisions are taken jointly under the leadership of a Senior functionary of an appropriate rank at the level of State or some Districts. This course may be considered by way of an appropriate administrative direction so that the level of mismanagement which is clearly visible is remedied in the interest of rule of law, environment and public health.

    8. Let appropriate further steps be taken in the matter. For this purpose, we direct the Chief Secretary, Haryana to monitor the situation. The GMDA may have interaction with the CPCB for interim arrangements to deal with the issue. The Chief Secretary, Haryana and GMDA may furnish a report before the next date by e-mail at judicial- ngt@gov.in preferably in the form of searchable PDF/ OCR Support PDF and not in the form of Image PDF."

    5. Accordingly, further report has been filed by the GMDA and other authorities of Haryana. The report of GMDA, filed on 08.02.2020 being the latest, it is not necessary to refer to other reports. The report gives the status of compliance as follows:-

    "State of Leg - I, Leg-II and Leg-III

    Name of drain Total discharge Discharge diverted Balance discharge Balance discharge to be diverted Date of completion of diversion Balance discharge to be treated via construction of STPs Date of completion of STPs Status
    Leg-I 25.20 15.20 10 4.4 31.12.2021 5.6 31.12.2021 Balance 10 MLD is yet to be diverted out of 25.20 MLD. Which is delayed due to ban on construction activity by Hon’ble Supreme

    4

    Court in NCR Region due to air pollution and lockdown due to Covid - 19
    Leg-II 36.84 28.34 8.5 7 31.12.2021 1.5 31.12.2021 Balance 8.5 MLD is yet to be diverted out of 36.84 MLD. Which is delayed due to ban on construction activity by Hon’ble Supreme Court in NCR Region due air pollution and lockdown due to Covid -19
    Leg-III 83.35 54.15 29.2 25.35 31.12.2021 3.85 31.12.2021 Balance 29.2 MLD is yet to be diverted out of 83.35 MLD which is delayed due to ban on construction activity by Hon’ble Supreme Court in NCR Region due to air pollution and lockdown due to Covid – 19
    Total 145.39 97.69 47.70 36.75 10.95 Balance 47.7 MLD (36.75 MLD + 10.95 MLD) is yet to be diverted / treated.

    6. From the above, it is seen that huge gap in generation and treatment of sewage is continuing in violation of law. The Water (Prevention and Control of Pollution) Act, 1974 was enacted 47 years

    5

    back under which pollution of water is a criminal offence. Unfortunately, the concerned Authorities in the State of Haryana continue to violate law without any accountability, in spite of categorical judgment of the Hon'ble Supreme Court. Needless to say that such failure is at the cost of health and lives citizens and cannot be condoned. The lackadaisical approach adopted in the matter is a matter of concern for the citizens.

    7. Accordingly, we direct the Chief Secretary of Haryana to take further remedial action in mission mode to ensure that compliance of the constitutional mandate and for the safety of health of the citizens. CPCB may provide such technical assistance as may be necessary, subject to senior officers of the Haryana Government coordinating with the Member Secretary, CPCB forthwith.

    The application is disposed of.

    A copy of this order be forwarded to the Chief Secretary, Haryana, GMDA, State PCB and CPCB by email for compliance.

    Adarsh Kumar Goel, CP

    S.K. Singh, JM

    Dr. Nagin Nanda, EM

    February 10, 2021

    Execution Application No. 52/2018

    IN O. A. No. 454/2018

    A

    6

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    SH. SUBHASH GUPTA v. MINISTRY OF ENVIRONMENT AND FOREST
    (Feb 10, 2021)