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TheHighLevelCommitteeReportonEnvironmentalLaw:AnanalysisforIASaspirants|Paperwallah

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TheHighLevelCommitteeReporton
EnvironmentalLaw:Ananalysisfor
IASaspirants
January11,2015January11,2015
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DearfriendspleaseensurethatyouunderstandallaspectsoftheHighLevelCommittee
ReportonEnvironmentalLaw,aslotsofquestions,includingconceptualones,canbeasked
fromthisreport,bothinPTaswellasinMains.SometimebackTeamPaperwallahhadposted
ontheactualrecommendationsoftheTSRSubramanianCommitteereport(ClickHERE
(https://paperwallah.wordpress.com/2014/12/01/kindattentioniasaspirantsreportofthe
tsrsubramaniancommitteeonforestandenvironmentrelatedlaws/));andtodayweare
postingadetailedcriticalanalysisofthesamereport.Dofocusonthethingswhichhavebeen
markedbold,asUPSCtendstomentionalineaboutareport,andyouhavetosupport,
analyse,critiquethatstatement.Wepresenttoyouadetailedcritiqueofthisreport.
TheHighLevelCommittee(HLC)wassetuptobytheMinistryofEnvironment,Forestsand
ClimateChange(MoEF&CC).TheCommitteecomprisedofformerCabinetSecretaryT.S.R
SubramanianasChairperson,withformerSecretarytoGovernmentofIndiaVishwanath
Anand,formerJudgeoftheHighCourtJustice(retd)A.KSrivastavaandformerAdditional
SolicitorGeneralofIndiaK.NBhatasmembers.
TheReportisagainsttheConstitution:ItviolatesArticle21,sinceinterestofbusinessand
industryhasbeengivenparamountimportanceandoverridestherighttocleanair,waterand
balancedecosystem.IftheHLCrecommendationsareaccepted,theStatewillabdicateits
protectiverolemandatedunderArticle48(A)oftheConstitutionandwillratherrelyon
UtmostGoodFaithonthepartoftheindustry.Thefundamentaldutyofeverycitizento
protectenvironment,forestandwildlifeasprovidedunderArticle51(a)oftheConstitution
willbeviewedwithsuspicion,sincetheHLCrequiresthatthebonafideofthosewhointendto
protecttheenvironmentbesubjectedtoscrutinywiththreatofexemplarypunishment.The
HLCreportviolatesIndiasInternationalcommitmentundertheRioDeclarationof1992
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andotherInternationalTreaties.PublicParticipationandPublic
hearings:theessenceofdemocracyissoughttoberemovedfora
rangeofprojectsandwouldrenderpeoplevoiceless.TheHLC
reportisoutoftunewiththecurrentenvironmentalrealities:the
reportistotallyblindtoclimatechangeconcerns.Thereisno
th
discussionoranalysisonclimatechangeatall.Indias12 Five
YearPlanspecificallygivesimportancetoclimatechangewhenit
acknowledgesthatIndiawillbeoneofthecountriesmostseverely
affectedifglobalwarmingproceedsuncheckedandassuch
appropriatedomesticactionisnecessary.

powersisthusplannedtobedisturbed.

Mostdisturbingly,
theHLCaimstodefangtheNationalGreen
Tribunal:AquasiJudicialbodythathasemerged
asthemosteffectivegrievanceredressal
mechanismonenvironmentalissues.TheHLC
limitstheroleoftheNGTtothenarrowconfines
ofjudicialreviewasopposedtoa
comprehensivemeritreview.Ithas
recommendedthatpowertoreviewthedecisions
shouldvestwithabodycomprisingofserving
andretiredsecretariestotheGovernment.The
basisconstitutionalschemeofseparationof

Flawedprocess
AsperdirectionsissuedbytheGovernmentofIndia,aHighLevelCommitteecanbe
constitutedonlyaftertheapprovalofthePrimeMinister,
nosuchapprovalhasbeenobtainedforthisHighLevel
Committee.
SomeofthemembersoftheHLChavequestionable
background:VishwanathAnandhasthedubious
distinctionofdismissingeverysingleappealwhenhewas
theViceChairpersonoftheNationalEnvironment
AppellateAuthority.Noneoftheothermembershaveany
priorexperienceintheareaofenvironment.
TheprocessofconsultationbytheCommitteewasalso
highlyopaque.Publiccommentswereinvitedbutwiththeriderthatthecommentsshouldnot
exceed1000characters.ThefewConsultationmeetingsthatwereheldwereinurban
locations(mostlycapitalcities),withtheparticipationlimitedtoselectedindividualsby
invitation.
ForestGovernance
DefinitionThereportobservesthatthedefinitionofaforestisanunresolvedissue,and
suggeststhattillforestisdefinedbytheGovernment,anexplanatorynotemaybeadded
intheIndianForestActtomeananyforestnotifiedundertheIndianForestAct,1927andany
th
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th
landrecordedasforestandnotused/brokenbefore25 October,1980.Thislimitedlegalistic
definitionproposedbytheHLCwouldeffectivelyreverttothepre1996situationwherelarge
scaledeforestationhastakenplacesimplyonthegroundthattheforestswerenotlegally
notified.

Sabha.

Someofthemostdamagingrecommendations
regardingtheprocedureforforestdiversion
includesremovingtherequirementofphysical/
fieldverificationinvolvinggroundtruthingtill
stageIapprovalunderForest(Conservation)Act,
1980isobtained.TheCommitteehasalso
recommendedamendingtheForestRightsAct,
2006,withrespecttolinearprojects,todispense
withtheobligationofapprovaloftheGram

ThefarceofNoGoAreasTheHLCrecommendsthatonlyProtectedAreasandforestareas
withacanopycoverofover70%(outsideProtectedAreas)shouldbetreatedasNoGo
areas,andshouldnotbedisturbedexceptinexceptionalcircumstancesandthattoowiththe
priorapprovaloftheUnionCabinet.Thisrecommendationisactuallyadilutionofthe
existingrequirement:Protectedareasarealreadynogozones,andanynonforestryactivity
impactingprotectedareasrequirethepriorapprovalfromtheNationalBoardforWildlifeand
theSupremeCourtofIndia.Forestcoverwithtreedensitycoverof70%arecalledVeryDense
Forests(VDF).AccordingtotheForestSurveyofIndiareport2013,VDFisonly2.54%ofthe
totalforestcoverofthecountry.TheHLCsrecommendationinfactopensawindowfor
exploitationbystatingthattheNoGoAreasmaybedisturbedinexceptionalcircumstances
forwhich,incidentally,thereisnodefinition.Secondly,veryfewareasexistoutsideProtected
Areasthathaveacanopydensityofmorethan70%.Infact,theForestSurveyofIndiaregards
areaswith40%crowndensityasdenseforest.ClearlytheHLChasnoobjectionfordiversion
ofdenseforests(between40%to70%)inthecountry.
WildlifeConservation
Thechapteronwildlifeissketchy,piecemealandrepletewithfactualinaccuracies.Thereis
hardlyanymentionofimpactsofdestructiveprojectson
forests,communitiesandwildlife.Thelinesareclearly
drawnatcompensatoryafforestation,raisedNetPresent
Value(NPV),monitisedafforestation,webbased
monitoring,priceddatabases,etc.However,therationale
behindseverallargescaledestructiveprojectsisnot
questionedevenonce.Toillustrate,inthecaseofWild
LifeProtectionAct,thereportdoesnottalkabouthabitat
destructionduetodevelopmentprojectsasoneofthe
majorthreatstowildlife,butlimitsitselftohunting,
poaching,mananimalconflictsandlossofcorridors.
EnvironmentalGovernance

ThechapterwithrespecttoEnvironmentalGovernanceclearlydemonstratesitstruepurpose, 3/7

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ThechapterwithrespecttoEnvironmentalGovernanceclearlydemonstratesitstruepurpose,
whichisincreasingthespeedoftheenvironmentalapprovalprocess,ratherthan
environmentalprotection
TheNEMAissupposedtorecommendapprovalorrejection(withreasons)withintwo
monthsofreceivingtheapplication.Linearprojects,projectsofstrategicimportanceandpower
andminingprojectswhichareenginesofthenationsgrowthareputonaseparatefastertrack.
Potentially,projectslikethePolavaramDamwhichcansubmergenearly300villagesinthree
statesortheGosiKhurddamwhichcansubmerge100villages,hundredsofhectaresofforest
landandismiredindeepcorruptioncharges,canbefasttrackedforbeingofNational
ImportanceastheyalreadyhavethetagofbeingNationalProjects.Thefactthatsuch
projectscouldpotentiallychangetheecosystemoftheregionevolvedoverthousandsofyears
isignoredaltogether.
Asformonitoring,thecommitteesuggestsanironicallynamedMandatoryprovisionof
voluntarydisclosureawebbased,technologicallyassistedplatformrequiringminimalneed
forsitevisits.Thisleavesabsolutelynochanceforanylocalaffectedcommunitytobeapart
ofmonitoring,orbeabletovoiceitsconcernswhichmaynotshowuponsuchmonitoring
devises.Theonlyplacewherecommitteementionsaccountabilityiswithreferencetospeedof
clearance,failingwhichtheChairpersonofNEMAwillbeheldaccountable.Thereisno
accountabilitydemandedaboutfailingtoaddressimpactsoneitherecologyorpeople.
TheCommitteereliesontheconceptofuberrimafides,i.e.,utmostgoodfaith,basedin
insurancelaws.Essentially,theNEMA,SEMAandthe
Ministrywillputabsolutefaithinwhateverstudies,
impactassessmentreports,compliancereportsthatthe
proponentsubmits.Interestingly,underthepresentlegal
frameworkoftheEPAitself,anyfalseinformation
providedatthetimeofappraisalprocessisaviolationof
EnvironmentProtectionActandinvitespunishment.
However,therehasnotbeenevenasingleinstancewhere
theMoEF&CChasinitiatedanytakeactionevenwhen
clearevidenceispresentedtothemaboutpoor,andeven
fraudulent,informationinEIAReportspresentedbythe
proponent.
PublicParticipation
Amongstthemostdamagingaspectsofthereportisitsabsolutecontemptforpeoples
voicesintheenvironmentaldecisionmakingprocess.InthelargestdemocracyintheWorld,
theTSRSubramanianCommitteereportseverelyrecommendscurtailingthedemocraticspace
existingintheenvironmentallawsofIndiafor:projectsofnationalimportance;projectsof
strategicimportance;projectstobesetupinindustrialzone,manufacturingzone;projectsin
areasofhighpollutionload;projectswhicharelocatedawayfromsettlements;andlinear
Projectsincludingtransmissionlines,roads,irrigationcanals,etc.;
Thecommitteealsorecommendsthattheissuesthatcanberaisedinpublichearingsistobe
limitedonlytoenvironmental,rehabilitationandresettlementissues.Itfurther
recommendsthatonlygenuinelocalparticipationshouldbepermitted.
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AccesstoJustice
TheCommitteerecommendsoverhaulingthe
environmentaljusticeprocessesandremedies,

whichwilladverselyaffectaccesstojusticeof
communitiesacrossourcountry.TheexistinglawallowsanAppealtobefiledbeforethe
NationalGreenTribunalbyanyaggrievedpersonwithin90days.TheNationalGreen
Tribunal,establishedundertheNationalGreenTribunalAct,2010,haspowersofboththe
judicialreview(thatis,reviewofthedecisionmakingprocess)aswellasmeritreviewthat
is,reviewofthemeritsofthedecision).Further,theTribunalhasbothoriginaljurisdictionand
appellatejurisdiction.
TheCommitteerecommendsthatappealsagainstdecisionsofMoEForSEMAcanbefiledby
anaggrievedpersonbeforeanAppellateBoard(comprisingonlyofjudicialandadministrative
members)within45days.AnApplicationforReviewagainstthedecisionoftheBoardcanbe
filedbeforetheNationalGreenTribunal.Ineffect,thistakesawaytheprocessofmeritreview
ofenvironmentaldecisionsbyspecializedcourtsaltogether.
TheHLChasrecommendedthesettingupofspecialenvironmentalcourtsatthedistrictlevel.
However,therecommendationcontainsaconditionthatamemberofthepublicmayfilea
complaintonlyafterprovidingcredibleevidenceofhisbonafides.Thisputsanunnecessarily
highburdenofproof,notatthestageofadjudication,butatthestageofapproachingthe
courtsitself.TheCommitteealsorecommendspenaltiesagainstpersonsfoundtobeabusing
theprocesswhichcouldworkasadoubleedgedsword,andcouldbeusedinsteadasan
intimidation/deterrentforcivilsocietyparticipation.
HLCandClimateChange
EventhoughthecommissioningMinistrywasrenamedtoincludethetermclimatechange,
thereportcontainsnoappreciationoftheissueofclimatechangeorglobalwarminginanyof
itsanalysisorrecommendations.
TheHLCwasexpectedtoconsiderpopulationsthatarevulnerableduetoclimatechangeand
alsoaffectedbydestructionofenvironment.InfacttheentireHLCreporthasnothingtodo
withpeopleoraffectedpopulations,letaloneidentifyingthevulnerablepopulationsand
givingaffectedpeopleanyeffectivesayinenvironmentaldecisionmakingprocess.Absence
ofsuchroleforpeopleisoneofthekeyreasonsforcurrentenvironmentalproblemsinIndia,
asisapparentinmanyoftheenvironmentalandnaturalresourcesconflicts.TheHLCnotonly
ignoresthis,infactitsrecommendationsareaimedatfurtherreducingsayforthepeopleby
suggestingthatpublicconsultationscanbedoneawaywithinmostprojects.
TheHLCrecommendationsofincludefasterand

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TheHLCrecommendationsofincludefasterand
singlewindowclearanceswithadvocacyfor
utmostgoodfaithintheprojectdevelopers;
relaxingtheenvironmentalgovernanceonseveral
counts,forfasttrackclearancesformining,power,
lineprojectsandlargenumberofotherprojects;
recommendingrelaxationofpublicconsultation
processinmostoftheprojects,forinsulatingthe
officialsandtheministers(theexecutive)from
environmentalresponsibility;delayingthelegal
challengeprocesstoclearancesandalsofor
debarringthelegalchallengeonmerit.These
HLCrecommendationswillrelaxtheenvironmentalgovernanceandhenceinvitegreater
environmentaldisasterandbyimplication,climatedisasterforIndia.
Insum,theReportoftheHLCisregressive,isaimedatdismantlingthelegalframework
whichexistsforprotectionofenvironment.Itrecommendsfornewlaw,Rulesand
procedureswhichissolelyaimedatensuringthatenvironmentalqualityaswellaspeoples
voiceissilenced.
(TheaboveanalysisisbasedonanarticlebySouthAsiaNetworkonDams,RiversandPeople).
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