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REPORTABLE

IN THE SUPREME COURT OF INDIA

CIVIL ORIGINAL JURISDICTION

WRIT PETITION (CIVIL) NO.79 OF 2005

Occupational Health and  Safety Association                                   … Petitioner

                      Versus

Union of India and others                        … Respondents

J U D G M E N T

K.S. Radhakrishnan, J.

1. The Petitioner, a non-profit occupational health and  

safety  organization,  registered  under  the  Societies  

Registration  Act,  1860,  has  invoked  the  extra-ordinary  

jurisdiction  of  this  Court  under  Article  32  of  the  

Constitution of India seeking the following reliefs :-

a. To  issue  a  writ  of  mandamus  or  any  other  appropriate  writ,  order,  or  direction  directing  the  Respondents  to  frame  guidelines  with  respect  to  occupational  safety  and  health

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regulations  to  be  maintained  by  various  industries;

b. To  issue  a  writ  of  mandamus  or  any  other  appropriate  writ,  order  or  direction  directing  respondents  to  appoint  and  constitute  a  committee for the monitoring of the working of  thermal power plants in India and to keep check  on the health and safety norms for the workers  working in their power stations;

c. To  issue  a  writ  of  mandamus  or  any  other  appropriate writ, order or direction directing the  respondents  to  pay  compensation  to  the  workers who are victims of occupational health  disorders  and  to  frame  a  scheme  of  compensation  for  workers  in  cases  of  occupational health disorders;

d. To  issue  a  writ  of  mandamus  or  any  other  appropriate writ, order or direction directing the  respondents to notify the recommendations as  contained  in  paragraph  35  of  the  Petition  as  guidelines  to  be  followed  by  thermal  power  plant.

2. The  Petitioner  represents  about  130  Coal  Fired  

Thermal  Power  Plants  (CFTPPs)  in  India  spread  over

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different States in the country, but no proper occupational  

health services with adequate facilities for health delivery  

system or guidelines with respect to occupational safety  

are in place.  Factories Act, Boilers Act, Employees’ State  

Insurance Act,  Compensation Act,  the Water (Prevention  

and  Control  of  Pollution)  Act,  the  Air  (Prevention  and  

Control  of  Pollution)  Act,  Environmental  Protection  Act,  

etc.  are in place,  but the lack of proper health delivery  

system,  evaluation  of  occupational  health  status  of  

workers,  their  safety  and  protection  cause  serious  

occupational health hazards.   

3. The Petitioner herein filed I.A. No.1 of 2005 and 2 of  

2007 and highlighted the  serious  diseases,  the  workers  

working in thermal plants are suffering from over a period  

of  years.   The Report produced by the Petitioner  would  

indicate  that  half  of  the  workers  have  lung  function  

abnormalities,  pulmonary  function  test  abnormalities,  

senor neuro loss, skin diseases, asthama, and so on.  This  

Court  noticing  the  same,  passed  an  interim  order  on  

30.1.2008,  after  taking  note  of  the  various  suggestions

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made at the Bar to reduce the occupational hazards of the  

employees working in various thermal power stations in  

the  country.   Following  are  the  main  suggestions  put  

forward before this Court :

1. Comprehensive medical checkup of all workers  in  all  coal  fired  thermal  power  stations  by  doctors appointed in consultation with the trade  unions.  First medical check up to be completed  within six months.  Then to be done on yearly  basis.

2. Free and comprehensive medical  treatment to  be provided to all workers found to be suffering  from  an  occupational  disease,  ailment  or  accident, until cured or until death.

3. Services of the workmen not to be terminated  during illness and to be treated as if on duty.

4. Compensation to be paid to workmen suffering  from  any  occupational  disease,  aliment  or  accident  in  accordance  with  the  provisions  of  the Workmen’s Compensation Act, 1923.

5. Modern protective equipment to be provided to  workmen as recommended by an expert body in  consultation with the trade unions.

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6. Strict  control  measures  to  be  immediately  adopted  for  the  control  of  dust,  heat,  noise,  vibration and radiation to be recommended by  the  National  Institute  of  Occupational  Health  (NIOH) Ahmadabad, Gujarat.

7. All employees to abide by the Code of Practice  on  Occupational  Safety  and  Health  Audit  as  developed by the Bureau of Indian Standards.

8. Safe  methods  be  followed  for  the  handling,  collection and disposal of hazardous waste to be  recommended by NIOH.

9. Appointment of a Committee of experts by NIOH  including  therein  Trade  Union  representatives  and Health and Safety NGO’s to  look into the  issue of Health and Safety of workers and make  recommendations.

4. Mr.  P.P.  Malhotra,  learned  Additional  Solicitor  

General,  submitted that the suggestions no.1 to 7 have  

been  accepted  by  the  Central  Government  stating  that  

they are broadly covered in various existing enactments  

and consequently pro-occupational action would be taken  

for  effective  implementation  of  the  relevant  laws,  in

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particular,  areas  covered  by  those  suggestions.   After  

recording  the  above  submissions,  this  Court  had  also  

directed the Ministry of Labour to take steps to see that  

those suggestions and relevant provisions of the various  

Labour  Acts  are  properly  implemented  to  protect  the  

welfare of the employees.  Learned ASG also submitted  

before  the  Court  that  the  Central  Government  would  

examine  whether  the  remaining  two  suggestions  i.e.  

suggestion nos.8 and 9 could be implemented and, if so,  

to what extent.

5. The Writ Petition again came up for hearing before  

this Court on 6.9.2010 and this Court passed the following  

order:

“Vide order dated January 30, 2008, Respondent  No.1 had agreed to Guideline Nos.1 to 7.

However,  time was taken to consider  Guidelines  Nos.8  and  9,  which  primarily  dealt  with  the  appointment  of  Committee  of  Experts  by  NIOH.  The constitution of  that  Committee  is  also  spelt  out in Guideline No.9.   Today, when the matter  came  up  for  hearing  before  this  Court,  learned  Solicitor  General  stated  that  the  Committee  of

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Experts has been duly constituted by NIOH and it  will submit its status report on the next occasion.

The writ petition shall stand over for eight weeks.”

6. The Government of India later placed a Report of the  

Committee  prepared  by  the  National  Institute  of  

Occupational Health (NIOH) titled Environment, Health and  

Safety Issues in Coal Fired Thermal Power Plants of the  

year 2011.   

7. Shri  Colin  Gonsalves,  learned  senior  counsel,  

referring to the above-mentioned Report, submitted that  

the  Union  of  India  as  also  the  Committee  have  

misunderstood the scope of the suggestion nos.8 and 9.  

Learned  senior  counsel  submitted  that  not  much  

importance  was  given  to  the  serious  health  problems  

being  faced  by  the  workers  who  are  working  in  the  

thermal power plants and the treatment they require as  

well as the payment of wages and compensation to those  

workers who are suffering from serious illness.  Learned  

senior counsel pointed out that some urgent steps should  

be taken to ensure the health and safety of the workers,

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through comprehensive and timely medical examinations,  

follow-up treatment as well as to provide compensation for  

the serious occupational diseases they are suffering from.  

Even these vital aspects, according to the learned senior  

counsel,  have  been  completely  overlooked  by  the  

Committee.   

8. Learned ASG submitted that the Report of the NIOH  

is  comprehensive  and  all  relevant  aspects  have  been  

taken care of and that there are several laws to protect  

the health and safety of the workers who are working in  

the  various  thermal  power  stations  in  the  country.  

Learned  ASG  also  submitted  that  the  Committee  has  

recommended  the  need  of  occupational  health  services  

with adequate facilities for health delivery system and that  

all  power generating authorities must have well  defined  

sector-specific  occupational  health  safety  and  

environmental  management  framework.   Learned  ASG  

also submitted that the Report would be implemented in  

its true letter and spirit.  

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9. This  Court  in  Consumer  Education  &  Research  

Centre  and  others  v.  Union  of  India  and  others   

(1995) 3 SCC 42,  has held that the right to health and  

medical care to protect one’s health and vigour, while in  

service  or  post-retirement,  is  a  fundamental  right  of  a  

worker under Article 21 read with Articles 39(e), 41, 43,  

48-A  and  all  related   

Articles and fundamental human rights to make the life of  

the workman meaningful  and purposeful  with dignity of  

person.  The Court held that the compelling necessity to  

work  in  an  industry  exposed  to  health  hazards  due  to  

indigence to bread-winning for himself and his dependents  

should  not  be  at  the  cost  of  health  and  vigour  of  the  

workman.   

10. Right to health i.e. right to live in a clean, hygienic  

and safe environment is a right flowing from Article 21.  

Clean  surroundings  lead  to  healthy  body  and  healthy  

mind.  But,  unfortunately,  for  eking a livelihood and for  

national  interest,  many  employees  work  in  dangerous,  

risky  and  unhygienic  environment.   Right  to  live  with

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human  dignity  enshrined  in  Article  21  derives  its  life  

breath  from  the  Directive  Principles  of  State  Policy,  

particularly clauses (e) and (f) of Articles 39, 41 and 42.  

Those Articles include protection of health and strength of  

workers and just and humane conditions of work. Those  

are minimum requirements which must exist to enable a  

person to live with human dignity.   Every State has an  

obligation  and  duty  to  provide  at  least  the  minimum  

condition ensuring human dignity. But when workers are  

engaged  in  such  hazardous  and  risky  jobs,  then  the  

responsibility  and  duty  on  the  State  is  double-fold.  

Occupational  health  and  safety  issues  of  CFTPPs  are  

associated with thermal discharge, air and coal emission,  

fire hazards, explosion hazards etc.  Dust emanates also  

contain free silica associated with silicosis, arsenic leading  

to skin and lung cancer, coal dust leading to black lung  

and  the  potential  harmful  substances.   Necessity  for  

constant  supervision  and  to  the  drive  to  mitigate  the  

harmful effects on the workers is of extreme importance.

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11. India is one of the largest coal producing countries in  

the world  and it  has  numerous CFTPPs  requiring nearly  

440 million tons of  coal  per  year.   We have about 130  

CFTPPs in India.  The thermal power plants generate about  

two-third of the electricity consumed in India, while 54.3%  

of  the  energy  demand  is  met  by  coal  fired  power  

generation.  The NIOH in its Report in 2011 has already  

made  its  recommendations  with  respect  to  the  

suggestions  made  by  this  Court  in  its  order  dated  

30.1.2008.   Since  the  Central  Government  has  already  

accepted suggestions no.1 to 7,  at  the moment we are  

concerned with suggestions no.8 and 9, which we reiterate  

as follows :-

“8. Safe  methods  be  followed  for  the  handling,  collection and disposal of hazardous waste to be  recommended by NIOH.

9. Appointment of a Committee of experts by NIOH  including  therein  Trade  Union  representatives  and Health and Safety NGO’s to  look into the  issue of Health and Safety of workers and make  recommendations.”

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12.  The  Report  in  para  4.1.2  has  referred  to  various  

health hazards and the same is reproduced hereinbelow :-

“4.1.2 General

. Use  of  Hazardous  Material  for  Insulation:  Certain  materials  such  as  asbestos,  glass  wool  etc.  are  used  for  insulation.  These  materials  are  highly  dangerous  to  human  health,  if  inhaled  or  if  contacted  with  the  eye/skin  surface.    While  handling  such  materials, the PPE should be provided to the  workers as well as proper disposal of waste  asbestos and glass wool should be ensured.  Nowadays,  safer  substitutes,  such  as  p- aramid,  polyvinyl  alcohol  (PVA),  cellulose,  polyacrylonitrile,  glass  fibres,  graphite  are  available, the use of which may be explored.

. Compliance  with  the  provisions  of  the  Environment  (Protection)  Act  and  its  amendments from time to time applicable for  the  power  plants  with  respect  to  emission  and discharge, ash utilization and hazardous  waste  management  should  be  ensured  to  protect the ambient environment as well as  maintain safe and healthy working conditions  for the workers.

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. The generated fly ash need to be utilized as  per the CPCB annual  implementation report  on  fly  ash  utilization  (2009-10)  that  100%  utilization  to  be  achieved  by  the  power  plants,  within  5  years  from  the  date  of  notification (refer to Table 17, page 48).   For  new CFTPPs, the fly ash utilization needs to  be  regulated  as  per  the  schedule  given  in  Table 17.

. It is desirable that the coal handling facilities  are mechanized and automated to the extent  possible.

. Occupational  health  services  should  be  provided  for  wide  range  benefit  to  the  workers.   Broadly,  it  should  contain  the  facilities  for  occupational  health  delivery  system  with  trained  manpower  and  infrastructure  including  investigational  facilities,  environmental  assessment,  evaluation of occupational health status and  first  aid  training  of  the  workers  on  regular  basis.  These services should be independent  and separate from hospital services (curative  service)  but  should  function  in  liaison  with  the curative service.

. Periodic  awareness  programmes  regarding  the health and safety with active involvement

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of the workers should be organized, covering  each  individual  with  the  minimum  annual  average  duration  of  8  hours  per  worker.  Regular  community  level  awareness  programmes may be organized in the vicinity  of  the plant  for  the family  members of  the  workers.

. Periodic  medical  examination  (PME),  as  required  under  the  Factories  Act  should  be  undertaken.   However,  the  investigations  performed under the PME should be relevant  to the job exposures.  Since coal/ash handling  workers are prone to dust exposure related  diseases,  due attention is  required to those  workers.  In case of need, the frequency of  PME may be scheduled, based on observation  of the health check-up information.  Providing  PPE and re-locating of job for those workers  may also be considered.

. As per recommendations of the Factories Act,  the  workers  need  to  be  examined  radiologically  (chest  X-ray)  on  yearly  basis.  However,  in  order  to  avoid  unnecessary  exposure of the human body to the radiation,  the  regular  yearly  chest  X-ray  is  not  recommended,  unless  urgent  and essential.  Considering  the  latency  period  of

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development  of  pneumoconiosis,  it  is  recommended to undergo chest X-ray every  two years for initial  10 years and based on  the  progression,  re-scheduling  may  be  adopted.  After 10 years it should be done on  yearly  basis  or  earlier  depending  on  the  development  and/or  progression  of  the  disease.

. Health records should be maintained in easily  retrievable  manner,  preferably  in  electronic  form.  The provision should be made to recall  the worker, as and when his or her check up  is due.  Pre-placement medical examination  and proper documentation of records should  be mandatory.

. A comprehensive document on environment,  health  and  safety  specific  to  coal  based  thermal power projects should be framed.  It  should  cover  the  legal  provisions,  management  system,  best  practices,  safe  operating procedures, etc.  for various areas  of thermal power plants.   This will serve as a  reference  document  for  effective  implementation of the provisions.

. All  CFTPPs  should  have  environmental  and  occupational health and safety management  systems in place, which are auditable by third

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party, approved by the Govt of India (Ministry  of  Power).   Participatory  management  regarding  health  and  safety  at  plant  level  may be ensured.

. The  occupier  of  the  CFTPP  shall  be  responsible for the compliance of provisions  of  the  Factories’  Act  for  casual/contractual  labour on health and safety issues.  In case of  women  workers,  the  provisions  of  the  Factories’  Act,  as applicable,  shall  be given  attention.

13. Para  3.1.2  of  the  Report  specifically  refers  to  the  

occupational  health  and  safety  issues  of  workers  in  

CFTPPs.  The Report also refers to the hazards associated  

with  (a)  dust,  (b)  heat,  (c)  noise,  (d)  vibration,  (e)  

radiation, and (f) disposal of waste.   After dealing with  

those health hazards, the Committee has stated that the  

hazards  associated  with  inhalation  of  coal  dust  might  

result  in  development  of  dust  related  morbidity  in  the  

form  of  pneumoconiosis  (coal  workers  pneumoconiosis,  

silicosis)  and  non-pneumoconiotic  persistent  respiratory  

morbidities,  such  as  chronic  bronchitis,  emphysema,  

asthma, etc.  Further, it also pointed out that whenever

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asbestos fibres are used for insulation and other purposes,  

the  possibility  of  asbestosis  among  workers  due  to  

inhalation of asbestos fibres cannot be ruled out.    The  

Report  also  says  that  other  morbidities  because  of  

exposure to fly ash, including metallic constituents such  

as lead, arsenic, and mercury might also be present.  Due  

to  exposure  to  other  chemicals  used  in  different  

operations  of  CFTPP,  the  Report  says,  may  also  be  

responsible to adversely affect human health.   

14. Report  further  says  that  occupational  exposure  to  

high  heat  in  different  thermal  power  plants  may  also  

cause heat related disorders, like heat exhaustion.  Noise  

and  vibration  exposures  in  higher  doses  than  the  

permissible  limits  may  result  in  noise-induced  hearing  

loss,  raised  blood pressure,  regional  vascular  disorders,  

musculo-skeletal disorders, human error, productivity loss,  

accidents  and  injuries.    Radiation  hazards  particularly  

from the generated fly  ash and its  used products have  

also  been  indicated  of  possible  health  risks.   Different  

chemicals that are often being used in CFTPPs, such as

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chlorine, ammonia, fuel oil,  and released in the working  

and community environment may be responsible for wide  

range  of  acute  as  well  as  chronic  health  impairments.  

Since large quantities of coal, other fuels and chemicals  

are  stored  and  used  in  CFTPPs,  the  risks  of  fire  and  

explosion are high, unless special care is taken in handling  

the materials.   It may cause fire and explosion.  Further,  

it may also be pointed out that in various work operations  

for manual materials handling, the workers are subjected  

to high degree of physical stress, with potential risks of  

musculo-skeletal disorders and injuries.   

15. In para 3.1.5 the Report suggests certain protective  

measures for health and safety and also steps to be taken  

for emergency preparedness on spot/off-spot emergency  

plans  and  also  the  measures  to  be  adopted  for  social  

welfare.   

16. We may notice, the recommendations made are to  

be welcomed, but how far they are put into practice and  

what preventive actions are taken to protect the workers  

from the serious health-hazards associated with the work

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in  CFTPPs  calls  for  serious  attention.   Many  workers  

employed in various CFTPPs are reported to be suffering  

from serious diseases referred to earlier.   What are the  

steps  taken by  CFTPPs  and the Union of  India  and the  

statutory authorities to protect them from serious health  

hazards  and  also  the  medical  treatment  extended  to  

them,  including  compensation  etc.  calls  for  detailed  

examination.   

17. We  notice  that  CFTPPs  are  spread  over  various  

States  in  the  country  like  Uttar  Pradesh,  Chhattisgarh,  

Maharashtra, Andhra Pradesh, and so on, and it would not  

be practicable for this Court to examine whether CFTPPs  

are complying  with  safety  standards  and the rules  and  

regulations  relating  to  the  health  of  the  employees  

working in various CFTPPs throughout the country.   We  

feel that these aspects could be better examined by the  

respective High Courts in whose jurisdiction these power  

plants  are  situated.   The  High  Court  should  examine  

whether there is adequate and effective health delivery  

system in place and whether there is any evaluation of

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occupational health status of the workers.  The High Court  

should  also  examine  whether  any  effective  medical  

treatment is meted out to them.

18. We, therefore, feel that it is appropriate to relegate it  

to the various High Courts to examine these issues with  

the assistance of the State Governments after calling for  

necessary  Reports  from  the  CFTPPs  situated  in  their  

respective States.  For the said purpose, we are sending a  

copy  of  this  Judgment  to  the  Chief  Secretaries  of  the  

respective States as well as Registrar Generals of the High  

Courts of the following States :  

(a) Uttar Pradesh (b) Chhattisgarh (c) Maharashtra (d) Andhra Pradesh (e) West Bengal (f) Madhya Pradesh (g) Bihar (h) Orissa (i) Haryana (j) Rajasthan  (k) Punjab

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(l) Delhi/NCT Delhi (m) Gujarat (n) Karnataka (o) Kerala (p) Tamil Nadu (q) Jharkhand (r) Assam

19. Report  of  National  Institute of  Occupational  Health  

(NIOH)  titled  Environment,  Health  and  Safety  Issues  in  

Coal  Fired Thermal  Power Plants of  the year  2011 may  

also be made available by the Secretary General of the  

Supreme  Court  to  the  Registrar  Generals  of  the  High  

Courts of the aforesaid States.   We make it clear that the  

Report is not at all comprehensive in certain aspects and  

the  respective  High  Courts  can  examine  the  issues  

projected in this Judgment independently after calling for  

the  reports  about  the  CFTPPs  functioning  in  their  

respective States.  The Registrar Generals of High Courts  

of the aforesaid States should place this Judgment before  

the Chief Justices of the respective States so as to initiate  

suo moto proceedings in the larger interest of the workers  

working in CFTPPs in the respective States.   

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20. The Writ Petition is accordingly disposed of.

…..………………………J. (K.S. Radhakrishnan)

………………………….J. (A.K. Sikri)

New Delhi, January 31, 2014.