M.K. RANJITSINH vs. UNION OF INDIA

REPORTABLE  IN THE SUPREME COURT OF INDIA           CIVIL ORIGINAL JURISDICTION                   I.A. NO.85618 OF 2020                                                 IN WRIT PETITION (CIVIL) NO.838 OF 2019       M.K. Ranjitsinh & Ors.                   .…. Petitioner(s) Versus       Union of India & Ors.                    ….Respondent(s)            O R D E R 1. The   writ   petition   is   filed   in   the   nature   of   public Signature Not Verified interest seeking to protect two species of birds namely the Digitally signed by Sanjay Kumar Date: 2021.04.19 16:20:14 IST Reason: Great   Indian   Bustard   (‘GIB’   for   short)   and   the   Lesser 1 Florican, which is on the verge of extinction. The existence of overhead power lines is stated to have become a hazard due to which the said species of birds on collision are getting killed. In the pending writ petition, the application in I.A. No.85618/2020 is filed seeking interim directions to direct the State of Rajasthan (respondents No.5 and 6) and State of Gujarat (respondents No.9 to 11) to ensure predator proof fencing, controlled grazing in the enclosure development and to direct the said respondents not to permit installation of overhead   power   lines   and   also   not   permit   further construction   of   windmills   and   installation   of   solar infrastructure in priority and potential habitat as identified by   the   Wildlife   Institute   of   India.   The   petitioner   is   also seeking a direction to the respondents to install divertors for the powerlines which has been listed in the application.  2. The very subject matter indicates that though such directions are sought against the respondents, the litigation is not adversarial in nature as it is community interest. In fact, the petitioners being environmentalists, are seeking to protect the rare birds which are dwindling in number. It is contended that GIB is one of the heaviest flying birds in the 2 world, about a meter in height and wing span of around seven feet. It has disappeared from 90 per cent of habitat except   parts   of   Rajasthan   and   Gujarat   which   is   to   be protected. According to the petitioners, overhead power lines are   the   biggest   threat   to   the   survival   of   the   GIBs.     The Wildlife   Institute   of   India  (WII)   in   its   Report  “Power   Line Mitigation, 2018” has stated that every year 1 lakh birds die due to collision with power lines.  The Report concluded that unless power line mortality is mitigated urgently, extinction of GIBs is certain.  Surveys conducted by Wildlife Institute of India (WII) in Thar covering 80 km of power lines repeated 7 times over a year found 289 carcasses of around 30 species, including   the   Great   Indian   Bustard   (GIB).     The   study estimated   3   bird   mortalities/km/month   for   low­tension lines, 6 bird mortalities/km/month for high­tension lines, and about 1 lakh birds/per year within a 4200 sq.km area in/around   Desert  National  Park,   Rajasthan.     In  terms  of GIB, 6 mortalities have been recorded in Thar during 2017­ 20,  all  due   to  high­tension   transmission   lines   – some   of them connected to wind turbine. Therefore, petitioner seeks undergrounding   all   future   overhead   power   lines;   selected 3 power   lines   in   priority   GIB   habitat   and   installation   of divertors in potential habitat. 3. In fact, it is admitted by the Ministry of Power, Union of India in their affidavit dated 15.03.2021 as follows: ­

4. But, this Court  while considering IA  Nos.1433 and 1477   of   2005   in   the   case   of   T.N.   Godavarman Thirumulpad Vs. Union of India & Ors.  (2012) 3 SCC 277 has observed as hereunder:

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In that context while taking note of the contention of the State relating to lack of funds, reference was made to the Centrally Sponsored Integrated Development of Wildlife Habitats   Scheme,   2009   which   provides   for   financial sharing between Centre and State.  Though taken note in the context of conservation of wild buffalo the pattern of funding was taken note in para­23 which provides for 100%   central   assistance   in   respect   of   GIB,   for   both recurring and non­recurring items of expenditure. 5.       Further   this   Court   in   the   case   of   Centre   for Environmental   Law,   World   Wide   Fund   –   India   Vs. ,   (2013)   8   SCC   234   while Union   of   India   &   Ors. considering the protection and conservation of endangered 5 species has observed as hereunder:

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The State as well as the Central Government therefore, 7 have a duty cast to preserve the endangered species and as such the expenses incurred will have to be provided by them   either   under   the   schemes   available   or   by earmarking   the   same   in   such   manner.     Needless   to mention that in the instant case the preservation is by undergrounding the powerlines and in that context if cost is incurred, it would also be permissible to pass on a portion   of   such   expenses   to   the   ultimate   consumer subject   to   approval   of   the   Competent   Regulatory Authority. 6.   The respondents though are sensitive to the issue, have contended that the high­voltage lines do not cause GIB deaths due to electrocution but cause death due to collision.    It is contended that the underground  high­ voltage   line   is   not   technically   feasible   due   to   several factors such as (i) high cost (ii) high downtime to repair any failed cable (iii) non­availability of cables at 765 Kv level and (iv) increase in the number of joints with length of run. The petitioners/applicants in order to controvert the same and contend that the undergrounding of high­ 8 voltage line is not a novel move but has been undertaken in other cases, have referred to the tender notification issued   by   Power   Transmission   Corporation   of Uttarakhand Limited for 220 KV transmission line and the one issued by Delhi Transport Limited for 220 KV underground cable.       7.  In addition, the petitioners have also referred to the invitation   of   public   comments   for   laying   underground cable transmission line of 220 KV by the Government of India, Ministry of Road Transport and Highways.   The report   published   by   the   Power   Grid   Corporation   is referred to indicate that the undergrounding of 220 KV power line is possible and is being done in India.   It is specifically contended that the 10 km long power lines were   made   underground   by   GETCO   for   the   safety   of Greater   Flamingos   in   the   Khadir   Region   of   Kutch. Similar such instances of underground power lines being laid is also referred by Mr. Shyam Divan, learned senior counsel for the petitioner.  Ms. Aishwarya Bhati, learned ASG   and   Dr.   Manish   Singhvi,   learned   senior   counsel 9 appearing on behalf of the respondents however sought to indicate that the instances referred, wherein the tender notifications   were   issued   for   underground   power   lines cannot be made comparable in all cases inasmuch as the same would be possible depending on the area, terrain and the distance for which such cable line is to be laid which cannot be of universal application.     8. In that background, keeping in view, the sustainable development   concept   and   on   striking   a   balance   the protection of the rare species of birds is essentially to be made, the effort being to save every bird while at the same   time   allowing   transmission   of   power   in   an appropriate   manner.   Even   as   per   the   study/survey conducted by the Wildlife Institute of India, it would not be feasible to lay underground power cables in certain areas and the conversion of the already existing cables also cannot be made in certain locations. In such of the locations,   it   is   recommended   that   ‘bird   divertors’   be installed   on   the   existing   power   lines   and   the undergrounding   of   the   new   power   line   wherever technically feasible in the vicinity of the habitats of the 10 rare species of birds be undertaken.     9.  The report dated 11.07.2019 was submitted by the Wildlife Institute before the National Green Tribunal to that effect and para 4.2 of the report reads as hereunder: “4.2.   Mitigate   all   power   transmission   lines passing   through   priority   bustard   habitats identified by WII (Please refer Annexure 10) by   undergrounding   cables   (where technically/technologically   feasible)   or installing   bird   divertors   to   make   them prominent to birds. The priority areas where this   intervention   is   required   has   been mapped by the Wildlife Institute of India and a technical­cum­financial proposal has been submitted to RVPNL for necessary approvals from   Rajasthan   Energy   Department   for mitigation. This action must be expeditiously implemented in the short­term (1­3 years), as power­line mortality is currently the biggest threat to the species.”            10.  In addition to the death of the birds due to collision and electrocution, the conservation strategy also requires protecting the eggs of the said species of birds and the same   being   transferred   to   breeding   centres   for   the purpose of hatching. In that regard, for conservation, the habitat   restoration   and   for   making   it   predator   proof, appropriate   fencing   is   to   be   provided   to   the   breeding 11 grounds. In that regard, pictorial representation of the priority and potential area is indicated in Annexure A­7 (page 74) of I.A. No.85618/2020 which is also depicted here below.          11.   In   the   above   background,   there   cannot   be disagreement   whatsoever   that   appropriate   steps   are required to be taken to protect the said species of birds. In that view, insofar as the existing overhead powerlines are concerned the respondents shall take steps forthwith to install divertors and in respect of existing overhead powerlines all future cases of installing the transmission lines   a   study   shall   be   conducted   with   regard   to   the feasibility for the lines to be laid underground. In all such cases where it is feasible, steps shall be taken to lay the transmission line underground. For the lines to be laid in future if as per the technical report the overhead line alone   is   feasible   and   the   same   is   ratified   by   the Committee, in such event the installation of the divertors shall also be a condition attached in the contract to be entered with generating companies. Insofar as, the cost incurred in the said process, the concerned respondents 12 No. 5 to 8 and 9 to 11 shall work out and provide for the same and the respondents No.1 to 4 aid in this regard.  It would   be   open   to   them   to   muster   the   resources   in accordance   with   law.     In   cases   where   the   power generators are required to bear the additional amount adding to the cost of production, it would be open to regulate the manner in which the cost would be mitigated in accordance with contractual terms.  Irrespective of the cost factor the priority shall be to save the near extinct birds. 12. In fact, a few suggestions were made in the course of arguments, as to how financial resources can be mobilised. One of the options that could be explored, is to invite the attention of each electricity utility engaged in the generation of power, to Section 135 of the Companies Act, 2013, which imposes   corporate   social   responsibility   upon   companies having   a   specified   net   worth   or   turnover   or   net   profit. Section   166(2)   of   the   Companies   Act,   2013   ordains   the Director of a Company to act in good faith, not only in the best   interest   of   the   Company,   its   employees,   the 13 shareholders and the community, but also for the protection of   environment.     The   word   “environment”,   though   not defined in the Companies Act, has to be given the meaning assigned to it under the Environment (Protection) Act, 1986. Section   2(a)   of   the   Environment   (Protection)   Act,   1986, defines   the   word   “environment”   to   include   the   “inter­ relationship which exists among and between water, air and land, and human beings, other living creatures, plants, micro­ organisms and property” Moreover, with the implementation of the Compensatory Afforestation   Fund   Act,   2016   (CAF,   2016),   substantial funds   are   available   with   the   National   and   State Authorities.   Sections 4, 5 and 6 of the Act, provide for the   utilisation   of   the   fund   for   measures   to   mitigate threats to wildlife.  The State of Rajasthan has already set up a Compensatory Afforestation Fund Management and Planning Authority (CAMPA) on 12.11.2009.  Rule 5(2)(i) of these Rules permit the use of the State Fund for the improvement of wildlife habitat.  It appears, according to the petitioners that a sum of Rs.47,436 crores, out of a 14 total   of   Rs.54,685   crores   CAMPA   Fund   have   been transferred  by  the  Union Environment Ministry  to the States for afforestation projects.    13.   With regard to the conservation of the habitat to secure the safety of the eggs laid by the birds, the area earmarked   and   indicated   as   islands   and   shown   in Annexure­A­7 and in light colour in sketch here below shall be fenced and protected from invasion by predators so that the eggs laid in these areas are protected. The power supply line regarding which underground passage is to be made should also avoid these areas.   14.    In the light of the contentions urged on this aspect of the matter, we are conscious that the laying of the underground power line more particularly of high­voltage though   not   impossible,   would   require   technical evaluation   on   case­to­case   basis   and   an   omnibus conclusion   cannot   be   reached   laying   down   a   uniform method and directions cannot be issued unmindful of the fact   situation.     Though   that   be   the   position   the consensus shall be that all low voltage powerlines to be laid in the priority and potential habitats of GIB shall in 15 all cases be laid underground in future.  In respect of low voltage   overhead   powerlines   existing   presently   in   the priority and potential habitats of GIB, the same shall be converted  into  underground   powerlines.     In  respect  of high­voltage   powerlines   in   the   priority   and   potential habitats of GIB, more particularly the powerlines referred in   the   prayer   column   of   I.A.   No.85618/2020   and indicated in the operative portion of this order shall be converted into underground power line.   The potential and priority area in Kutch and Thar respectively are as per the sketch shown below: 16 17 While considering the laying of underground power line the said habitats shall be kept in perspective and steps be taken   for   the   safety   of   the   GIB   in   the   said   habitat. 15.      As already taken note above, the laying of high­ voltage underground power line would require expertise to assess   the   feasibility   of   the   same.     For   this   specific purpose   of   assessing   the   feasibility   after   taking   into consideration all technical details, we deem it proper to constitute   a   committee   consisting   of   the   following members: (i) Dr. Rahul Rawat, Scientist, Room No.021, Block­14, Ministry of New and Renewable Energy, CGO Complex, Lodi Road, New Delhi. (ii) Dr. Sutirtha Dutta, Scientist, Wildlife Institute of India, Dehradun. (iii) Dr. Devesh Gadhavi, Deputy Director, The Corbett Foundation.       The   above   committee   may   also   obtain   technical reports if need be, from experts in the field of electricity 18 supply to arrive at their decision. The Government of India shall provide all assistance to the Committee.  16.   The   details   of   the   powerlines   from   Kutch   for installation of bird divertors is as follows:

The   details   of   the   powerlines   for   installation   of divertors from Rajasthan are as follows:

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The   details   of   the   powerlines   to   be   converted   to underground   subject  to  feasibility,   if  not,   to   immediately install divertors;           Lines from Kutch

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        Lines from Rajasthan

17.  The respondents No.5, 6 and 9 to 11 while arranging to   lay   the   powerlines   underground   in   respect   of   the powerlines, the feasibility of which is not in doubt shall proceed with the work right away.  However, in cases where the   respondents   find   that   there   are   issues   relating   to feasibility, the matter shall be referred to the committee with all relevant material and particulars.  The committee shall assess the matter and arrive at a conclusion as to whether   the   underground   powerline   is   feasible   or   not. Based on the report to be rendered by the committee the further action shall be taken by the respondent.  22   18.   In all cases where the overhead powerlines exist as on   today   in   the   priority   and   potential   GIB   area   the respondents shall take steps forthwith to install divertors pending consideration of  the  conversion of the  overhead cables   into   underground   powerlines.     In   all   such   cases where it is found feasible to convert the overhead cables into underground powerlines the same shall be undertaken and completed within a period of one year and till such time   the   divertors   shall   be   hung   from   the   existing powerlines. 19.    Ordered accordingly.     ..…………....................CJI.       (S. A. Bobde) …..…………....................J.       (A.S. Bopanna) ..…..………......................J.       (V. Ramasubramanian)        New Delhi,   April 19, 2021 23