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REPORTABLE

IN THE SUPREME COURT OF INDIA

CRIMINAL ORIGINAL JURISDICTION

SUO MOTU WRIT PETITION (CIVIL) NO. 284 OF 2012

COURT ON ITS OWN MOTION ….Petitioner

Versus

UNION OF INDIA & ORS. ....Respondents

J  U D G M E N T

Swatanter  Kumar, J.

1. Taking  notice  of  the  persistent  press  reports  dealing   

with  the  poor  arrangements  and  number  of  deaths  that   

occurred  during the yatra  in the year 2012 to the holy cave  

of Amarnathji,  the  Court   took  suo motu action  and  issued   

notice  to  the  Union  of  India,  State  of  Jammu and  Kashmir  

and the Chairman/President  of the Amarnathji Shrine Board   

vide its order  dated  13 th July, 2012.   It will be appropriate  to   

reproduce  the said order at this stage  itself:- 1

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“Today’s ‘The Times of India’ and ‘Hindustan   Times’   reports  67 deaths  of pilgrims mostly  because  of  the  cardiac  arrests  as  well  for  other  reasons.   As  per  these  reports,  this   has  happened  in  17  days.   Last  year  105   persons  died  during  the  45  days’  yatra .  Thus,  this  year it appears  to  be  on  the  rise.   In our  considered  view, the  pilgrims  have  a  constitutional  right  under  Articles  21  and   19(1)(d)  to  move  freely  throughout  the   territory  of  India,  free  of  fear,  with  dignity  and  safety  and  to  ensure  enforcement  of  such  right  is  the  primary obligation  of  the   State  and the Central Governments.

Where  it  is  a  matter  of  common  knowledge  that  the  yatra  to  the  ‘Holy Cave  of Amarnath’  is an  occasion  of privilege  and   pride for a devotee,  there  it is also  a matter   of  great  concern  for  the  Government  of  India, the Government of the State  of Jammu  &  Kashmir  and  the  Amarnath  Shrine  Board.   Some  of  the  events  that  have  been  widely  reported  in  the  newspapers  compel  us  to   take  a  judicial  notice  of  the  lack  of  necessary facilities,  essential  amenities  and   the  risk  to  the  lives  of  the  yatris,  en  route   and around the “Holy Cave of Amarnath”.   

On 3rdJuly, 2012,  it was  reported  in the   Hindustan  Times,  Delhi  Edition,  that  two  more  pilgrims  died  of  cardiac  arrest  on   Sunday,  taking  the  toll  to  22.   Both  the   pilgrims  were  stated  to  be  in  their  mid- thirties.   One  pilgrim was  on  her  way to  the   holy shrine  while the  other  was  returning  to   Pahalgam  Base  Camp  (Names  :  Ms.  Anita   Chourasia  and  Sadhu  Ram).  The same daily  on  2nd of  July, 2012  had  reported  that  there   were  deaths  of  five  more  devotees  as  a  result of cardiac  arrest  at the Pahalgam and   Baltal  Base  Camps.   These  were  the  deaths   

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reported  to have occurred between 25 thJune,  2012  to  2ndJuly, 2012  on  the  twin  tracks  of  Baltal  in  Ganderbal  and  Pahalgam  in  Amarnath.   This  daily  also  reported  that   nearly  1.20  lakh  pilgrims  had  so  far  paid  obeisance  to  the  shivalingam  at  the  holy  cave.  This newspaper  also  showed the path   and  the  weather  conditions  to  which  the   yatris  to  the   Holy Cave  were  exposed  and   the  amenities  that  were  available  at  the   glacier.   

The Times of India, New Delhi Edition on   29 thJune,  2012  had  reported  that  there  was  an  unidentified  body  of  55-year  old  pilgrim  which  was  recovered  along  the  Pehalgam  cave route in Anantnag  district.  

Similarly,  on  28 th  June,  2012,  the  Hindustan  Times,  while  referring  that  the   Management  had  directed  increase  of  security at the  yatri base  camps  to maintain  proper  schedule,  had  reported  that  the   death  toll  within  the  first  three  days  of  the   commencement  of  the  yatra  was  six.   The  same  newspaper  dated  27 thJune,  2012  had  shown  a  photograph  of  the  passage  that   more  than  18000  pilgrims  had  visited  the   holy cave,  which  is  at  the  height  of  3,880   metres,  in three  days.  It showed  one  of the   passages  leading  to  the  holy  cave.   From  this  picture  itself,  it  is  clear  and  even  otherwise  it  is  a  matter  of  common  knowledge  that  the  path  leading  to the  holy  cave  is  not  only  very  small  but  is  even  unprotected.   The  photographs  also  show  that  hardly any  amenities  are  available  for  the  yatris in  and  around  the  holy  cave,  though  thousands  of people  who throng  the   holy cave have to wait for hours  and days for  having  the  darshan .   It  has  also  been   published  in other  papers  that  in the  initial  

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days  of  the  yatra ,  one  person  had  died  because  of the  fall from the  height  as  there   was  no  support  or  protection  on  the  path   leading  to  the  holy  cave.   The  path   somewhere  is  stated  to  be  even  less  than   six  feet  and  does  not  have  any  grill  or   protection  (like  pagdandi) ,  which  could  prevent  the  people  walking  on  these   constricted  paths/passages  from falling.   All  the  palkis,  horses  and  even  the  yatris  walking on  foot,  travel on  the  same  path  at   the  same  time, thus  causing  complete  jams  on the  already tapered  paths  leading  to the   holy cave.

With  the  passage  of  time,  the  things   have hardly improved.  We may refer to what   was  the  situation  was  in the  year  2011,  as   per  the  newspaper  reports  of  the   relevant/concerned  year.  

The  Indian  Express  while  reporting  the   commencement  of  the  yatra  in  its  newspaper  dated  29 th June,  2011  reported   that  nearly 2.5  lakh  pilgrims had  registered   themselves  for  the  annual  pilgrimage  with  the  Amarnath  Shrine  Board  till the  aforesaid   date  and  2000  pilgrims had  already left the   State  of  Jammu  for  the  yatra.  It  also   reported  a  very unfortunate  incident  where   a  person  named  Rajinder  Singh,  aged  55  years,  resident  of  Jaipur  had  died  due  to   cardiac  arrest  at  Baltal  base  camp  in  Ganderbal district of Kashmir.

Again on  1st  July, 2011,  the  same  paper   reported  that  a  group  of  men  and  women,  young,  elderly  and  children  with  their   backpacks  walked  up  the  winding  steep   gradient  of the  road  to  the  cave shrine.   In  this  report  reference  was  made  to  the   statement  of  the  public  that  there  were  no   

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vehicles  and  it  was  very  difficult  for  the   pilgrims  to  travel  and  walk  such  long  distances.   From  Baltal  route,  13,000   pilgrims  left  while  9000  pilgrims  left  from  Chandanwari for darshan  to the holy cave.

With  the  increase  in  the  number  of  pilgrims coupled  with the poor  management,   it appears  that  there  was  a  sharp  increase   in the  casualty rate.   In the  Indian  Express   dated  6thJuly, 2011,  it was  reported  that  18  yatris had  died  within  a  week  of  the   commencement  of  the  journey.   This  included  elderly  people  as  well  as  young  victims.   One  Mr. Vikram Rathore,  who died,   was  only aged  25  years.   It appeared  from  this  report  that  constraints  on  the   availability  of  medical  aid  and  medical   examination is writ large.

The  same  newspaper  on  8 thJuly,  2011  reported  that  three  more  pilgrims  died  during the  yatra  raising the  toll to 27.  Even  a  constable  namely Inderjeet  Singh  posted   with  28  Battalion,  Central  Reserve  Police   Force  (for  short  ‘CRPF’),  Srinagar,  died  of  heart  attack  while  returning  from the  cave.   Another  person  aged  about  54 years  hailing  from Gujarat  also  died  of  cardiac  arrest  at   Sangam top much ahead  of the  shrine.   Still  another  detailed  article  appeared  in  the   Times of India dated  18 th July, 2011  detailing  the  lack of facilities,  referring  to  the  rush  of   the  pilgrims at the  base  points  as  well as  at   the  holy  cave.   A  pilgrim  from  Guwahati   stated:  “Half-an-hour  after  starting  out  for  the shrine from Panchtarni,  which  is a place   6 km from the holy cave, we were trapped  in  a jam for close  to two hours.   There  was not   an  inch  of  space  on  the  path.   There  was  pushing and shoving as yatris got restless.  A  sudden  movement  or  a  horse  or  commotion   

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in a section  of the crowd could have caused   a  big  stampede”.   Referring  to  the   statement  of  an  officer,  the  report  stated   that  the  pilgrims  had  to  be  regulated  from  the  base  camps  and  there  was  very little  that  the  members  of the  Forces  could  do  at   the  narrow  pathways  or  the  holy  cave  to   control the situation.   Nearly 22,000  pilgrims  visited the shrine  daily while the limit, as  per   the  administration  itself, was reported  to be   3,400  per  day only.   It is again  a  matter  of  great  regret  that  obviously because  of  lack  of  proper  aid  and  amenities,  the  death  toll  had  gone  upto  85 on 21 st July, 2011,  as  was  reported  in “The Hindu” of the even date.

All  these  reports  clearly  showed   disregard to the human life.  Lack of facilities   at  the  shrine  and  on  the  paths  leading  to   the shrine is evident from all the aforestated   articles  and  the  photographs  published   therein.   This Court has  repeatedly held that   in terms  of  Article  21  of  the  Constitution  of   India, a person  has  a right to live with dignity  and not be subjected  to inhuman treatment,   particularly  in  such  places  where  large   number  of  people  are  bound  to  visit  because  of their faith.   It can  also  be  hardly  disputed  that  huge  revenue  is generated  as   a result of visit of large number of pilgrims to   the  Holy Cave.   The  Amarnath  Shrine  Board   receives  huge  amount  of money not  only by  way  of  offerings  but  also  from  the   charges/fee  it  takes  from the  pony-owners,   palkiwallahs as  well  as  the  helicopter   services  available  between  Baltal  and   Panchtarni.   

It  is  also  evident  that  there  is  a  complete  lack  of  adequate  essential   amenities  and  facilities  for  the  yatris  who  come  to  pay their  tribute  at  the  ‘Holy Cave  

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at  Amarnath’.   Lack of medical  facilities  and   limitations  of  the  officers/officials  of  the   Forces  are some other  facets  which need  to   be considered  by the concerned  authorities.   

It  also  appears  to  be  a  very sensitive  place  from the  environmental  point  of  view  and  in  terms  of  the  provisions  of  the   Environment  Act,  1986  and  the   constitutional  obligation  placed  upon  the   concerned  authorities,  it  is  expected  that   proper  measures  be  taken  to  prevent  such   high  death  rate,  controlling  pollution  and   providing  the  requisite  facilities  and   improving  the  services  required  for  successful completion of such yatras.   

It is expected  of a  Government  and  the  concerned  authorities  to  devote  more  attention  and  provide appropriate  amenities   and  facilities  to  protect  the  life  of  the   individuals,  the  environment  as  well  as   ensure  to  make  the  yatra  effective  and  successful,  preferably  without  any  human   casualty.  The  authorities  cannot  shirk  from  their  responsibility  of  providing  minimum  essential  facilities  including  medical  assistance,  roads  and  other  necessary  infrastructure.   Visit of lacks of people to the   State  of  Jammu  &  Kashmir  generates   revenue  for  the  State,  in  fact,  for  the   residents  of that  State  and add to the need   for  better  tourism facilities.   The  authorities   are  also  expected  to  better  equip  the   Forces  posted  at  the  holy cave, base  points   and en route  to the holy cave.   

It  is  a  settled  canon  of  constitutional   law  that  the  doctrine  of  sustainable   development  also  forms part  of Article 21 of  the  Constitution.   The  ‘precautionary  principle’  and  the  ‘pollutor-pays  principle’   flow from the  core  value  in Article  21.   The  

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Supreme  Court  in  its  judicial  dictum  in  the   case  of Glanrock Estate Pvt. Ltd. vs. State   of   Tamil  Nadu  (2010)  10  SCC  96  has  held  “forests  in India are an important  part of the   environment.   They  constitute  a  national   asset  and  intergenerational  equity  is  also   part of the Article 21 of the Constitution  and   cautioned  that  if deforestation  takes  place   rampantly,  then  intergenerational  equity  would stand violated.

Right  to  life  is  enshrined  under  Article   21  of  the  Constitution  which  embodies  in  itself the  right to live with dignity.  The State   is  not  only  expected  but  is  under  a  constitutional  command  to  treat  every  citizen with human  dignity and  ensure  equal   treatment  to all.  In our considered  view and   as  demonstrated  by  these  newspaper   reports,  inhuman,  unsafe  and  undesirable   conditions  are  prevailing at  the  base  camps   and en route  to the holy cave.  The yatris do  have  a  right  and  the  State  is  under   constitutional  obligation  to  provide  safe   passages,  proper  medical  aid,  appropriate   arrangement  and  at  least  some  shelter  to   the thousands  of yatris visiting the holy cave  every day.  They are  also  expected  to  equip   the  forces  deployed  with  appropriate   equipments  facilities  and  the  authorities   should  ensure  that  no  untoward  incident   occurs  at  the  holy places.   In our  view, the   following questions  arise for consideration  of  the Court: -

1. Whether  there  exists  proper  medical  facilities  to  prevent  human  casualties.   Further  to  provide  emergency  medical   aid  in  the  event  of  these  yatris falling  sick  because  of  cardiac  and  other   related problems.?

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2. What  steps  are  being  taken  and  have  been  taken  to  protect  the  environment   in that area?

3. What  essential  amenities  have  been   provided  at  the  base  camps  and  en   route  to  the  holy cave  keeping  in view  that  lakhs  of  people  are  visiting  the   shrine every day.

4. What  measures  are  being  taken  and   methods  being  adopted  for  collection   and  disposal  of  the  waste  including   domestic  and  human  waste  generated   by the  yatrisen  route  and  around  the  holy cave?

5. What  are  the  facilities  and  equipments   available,  particularly  for  protecting  or   treating  conditions  such  as  dyspnoea,   cardiac  arrest  and  other  heart  related   problems.

6. What  is  the  cause  for  such  high  casualty rate  and  whether  there  exists   the  required  medical  equipments  to   ensure  that  in  future  such  casualties   can be avoided?

7. What  measures  and  means  are   available with the authorities  on ground   for  handling  such  huge  crowd  and  why  seven  times  the  requisite  number  of  people  coming to visit the  cave per  day  are  being  permitted  and  if so,  whether   there  is  requisite  infrastructure  at  the   site for handling such huge crowd?

The  time intervening  the  previous  and   the  current  year  clearly demonstrates  that   the  authorities  have not  taken  any effective  and  appropriate  measures  for  protecting   the  life  of  thousands  of  devotees  who  visit  the  holy  cave  during  this  limited  period,   

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despite  the  print  media  repeatedly bringing   this  to  the  notice  of  all  concerned.    Thus,   within  the  constitutional  mandate  of  Article   21,  this  Court  would  have  no  option  but  to   pass  appropriate  directions.

All  these  aspects  need  to  be  taken   care  of  by  the  concerned  authorities   certainly  with  greater  emphasis  and  they  cannot  escape  their  obligation  to  provide  minimum essential  facilities  including  roads   as  an  approach  to  the  holy cave.   They are   expected  to equip  their Forces  posted  in an   around  the  cave  so  as  to  have  complete   human dignity for the persons  working there   as  well as  for the pilgrims coming to the holy  cave.   They  are  also  expected  to  make  appropriate  arrangements  for  darshans  at  the  holy cave so  as  to  avoid health  hazards   and  injuries,  provide  proper  paths  and  one- way system passages  to  the  pilgrims to  the   Holy  Cave.   Therefore,  taking  suo  motu  notice of the articles  which are placed  below  and  to  appropriately  deal  with  this  serious   subject,  answer  the  above  questions  and   evolve solutions  within the  framework of law,  we  require  the  following  to  appear  and   answer before this Court:

1. Union of India, through its Secretary.

2. Ministry  of  Environment  and  Forests,   through its Secretary

3. State  of  Jammu and  Kashmir,  through  its  Chief Secretary.

4. Chairman/President  of  the  Amarnathji  Shrine Board.

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Issue  notice,  returnable  within  a  week.  Dasti.”

2. The  notice  was  served  upon  the  concerned   

respondents.  The respondents  filed their respective replies   

by way of  affidavits  on  record.   Vide  order  dated  20 th July,  

2012,  when  the  petition  was  called  on  for  hearing,  the   

Court,  after  hearing  the  counsel  appearing  for  the  parties   

at some length,  while noticing the  lack of public amenities,   

facilities,  health  care  and  particularly  the  high  rate  of  

mortality  and  the  need  to  take  immediate  and  effective  

steps  to  remedy  the  same,  constituted  a  Special  High  

Powered  Committee  (for  short  ‘SHPC’).    This  SHPC  

consisted  of representatives  from different  Ministries  of the   

Union  of  India,  Chief  Secretary  and  other  officers  of  the   

State  of  Jammu  and  Kashmir,  Director  Generals  of  the   

Border  Security Force  and  the  Border  Roads  Organizations   

etc.   The SHPC was expected  to visit the  site  and  make its   

recommendations  in the form of a Report to the Court inter   

alia, on the following points: -

“1.   Construction  of  proper  passages,  wide  enough  and with due support  on both sides,   for the  traffic of pedestrian  yatris,  or horses   

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and  by palkis  from  Panchtarni  to  the  Holy  Cave.

2.  Providing one-way passage  with separate   tracks,  one  for  pedestrians  and  other  for  horses,  carriages  and palkis near the Shrine.

3.   Providing  of health  check-up facilities  on   both  the  passages  from  baltal  and   Panchtarni to the Holy Cave.

4.   Providing  of proper  public  amenities  and   facilities  on  way and  at  the  lower end  of the   glaciers  near the Holy Cave.

5.  All such other steps  which are required to   be  taken  for  preventing  unfortunate  deaths   of  the  yatris,  going  on  yatra ,  to  the  Holy  Cave.

6.   Deployment  of  more  forces  and  to   provide  better  conditions  of  service  for  the   members  of  the  forces,  posted  on  way and   at the Holy Cave.

7.  Environmental Impact Assessment.

8.  The manner  and  methods  to be  adopted   to  attain  the  above,  with  least  damage  or  interference  with  the  environment  of  the   entire zone right from Baltal to the Holy Cave  from different routes.

9.   Deployment  of  more  medical  teams,  at   regular distance  on all the passages  leading   to the Holy Cave.

10.   Registration  of  yatris at  Jammu,  Srinagar,  Baltal and Panchtarni.

11.   It should  also  consider  the  possibility of  limited number  of  yatris being  released  from  Srinagar  to  Baltal  to  ensure  better   management,  hygiene,  healthcare  and   

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betterment  of  the  yatris,  who  stay  there   overnight.

12.   Medical  examination  at  the  time  of  registration and on way.”

3. Thereafter,  in  the  order  dated  23 rd July,  2012,  the  

Court also  noticed  that  within three  days the  mortality rate   

had  gone  up  from 84  to  97  which  was  a  matter  of  great   

worry for all concerned.    

4. The report  of the  SHPC was  submitted  along  with the   

affidavit  dated  6th  September,  2012,  sworn  by Sh.  Madhav  

Lal,  Chief  Secretary  to  the  Government  of  Jammu  and   

Kashmir.   This  report  made  its  recommendations  under   

eight different heads.

5. Besides  dealing  with  the  issues  of  health,   

environment,  registration,  access  control  &  security, track   

conditions  and other public amenities,  the Report stated  its   

recommendations  under  the  head  ‘Summary  of  

Recommendations’.

6. The  counsel  appearing  for  the  parties,  including  for  

the  State  of  Jammu  and  Kashmir  and  the  Shrine  Board,   

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submitted  before  the  Court  that  by  and  large,  the   

recommendations  of  the  SHPC  were  acceptable.   In  fact,   

they  even  assured  the  compliance  of  the   

recommendations,  subject  to  statutory clearance  from the   

different  authorities.  The  Court  noticed  that  the   

recommendations  of  the  SHPC  could  be  divided  into  two  

different  classes:   Short-term  perspective  and  Long-term  

perspective.   Short-time  perspective  involved  the  steps   

which  the  Government  and  the  Shrine  Board  were  to   

proceed  to  take  forthwith  and  which  required  immediate   

attention  of  all  the  stakeholders.   Long-term  perspective  

included  steps  where  the  larger  element  of  planning  was   

involved and their compliance  was likely to take  some time.  

In  that  very  order,  the  Court  had  directed  immediate   

compliance  of  certain  works  at  Baltal  and  surrounding   

areas.   They related  to sewage  system  (STP)  at Baltal and   

widening  of  passage  from Baltal  to  the  holy shrine.   The  

Chief Secretary of the  State  of Jammu and Kashmir and the   

Shrine  Board  were  directed  to  take  appropriate  steps  for  

planning  of  matters  relating  to  medical  facilities,   

registration  and  other  ancillary works including deployment   

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of force and one way passage  at the Shrine during the next  

yatra .   

7. Vide his  letter  dated  4 th December,  2012,  the  Ministry  

of Environment  and  Forests,  Government  of India,  informed   

the  Additional  Solicitor  General  that  the  affidavit  of  the   

State  of  Jammu  and  Kashmir  had  been  perused  in  

compliance  with  the  orders  of  this  Court  and  that  the   

environmental  issues  had  been  correctly reflected  therein,   

in accordance  with the  final  report  prepared  by the  SHPC  

and the Ministry was in agreement  with the contents  of the   

affidavit.   Similarly,  the  Ministry  of  Health  and  Family  

Welfare,  Government  of  India,  vide  its  letter  dated  3 rd  

December,  2012  had  also  informed  the  Additional  Solicitor   

General  that  a  meeting  was  held  by  the  Union  Health   

Secretary with the  Government  of Jammu and  Kashmir and   

the  Chief  Executive  Officer  of  the  Shrine  Board  to  decide   

the  further  course  of  action  on  health  issues  in  terms  of   

the  report  of  the  SHPC.   The  issues  also  related  to  the   

States  and the Union Territories,  identifying the institutions   

for  medical  certification  and  augmenting  manpower  to   

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support  the efforts  of the State  Government.  Inter alia, the  

points  for attention were stated  as follows:

“(i)  Identify  Chief  Medical  Officer/Medical   Superintendent/Block  Medical  Officer/other   Government  doctors  authorized by the State   Government  for  issuance  of  compulsory  health certificate.

(ii)  Provide list of private medical institutions   authorized  by  the  State  Governments  to   issue compulsory health certificate and

(iii)   Make  available  services  of  Specialists   and  General  Duty  Medical  Officers  to  supplement the efforts  of the Govt. of Jammu  & Kashmir.”

8. From the  above narration  it is clear  that  the  Union  of   

India, its various Ministries,  the State  of Jammu and Kashmir  

and the Amarnathji Shrine Board were ad idem in regard  to  

the  contents  and  implementation  of  the  report  submitted   

by the  SHPC.  During the  course  of hearing  of the  petition,   

applications  for  intervention  were  filed,  which  have  also   

been  considered.   The  interveners  and  all  other  stake   

holders  were  heard  at  great  length.   During  the  course  of   

hearing,  certain  further  suggestions  were  made,  which  

were found to be useful and in general public interest.

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9. The  scheme  under  the  Indian  Constitution   

unambiguously enshrines  in  itself  the  right  of  a  citizen  to   

life under Article 21 of the Constitution.  The right to life is a   

right to live with dignity, safety and in a clean  environment.   

The  ambit  of  Article  21  of  the  Constitution  has  been   

expanded  by  judicial  pronouncements  consistently.   The   

judgments  have  accepted  such  right  and  placed  a  clear   

obligation  on  the  part  of  the  State  to  ensure  meaningful   

fulfillment of such  right.   Article 21 of the  Constitution,  with  

the  development  of  law  has  attained  wide  dimensions,   

which are in the larger public interest.   Furthermore,  Article   

19(1)(d)  gives a citizen the  right to move freely throughout   

the  territory of  India.   This  right,  of  course,  like  any other   

right  is  not  absolute  in terms  or  free  of  restrictions.   This   

right,  of  course,  like  any  other  fundamental  freedom  is  

neither  absolute  in  terms  nor  is  free  from  restrictions.   

Article 19(5)  subjects  this  right to imposition  of reasonable   

restrictions  which  the  State  by  law  may  enact.  Such   

restriction  has  to be in the  interest  of general  public or for   

the  protection  of  interest  of  any Scheduled  Tribe  besides   

being  reasonable  and  within  its  legislative  competence.   

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Article  25  deals  with  the  Right  to  Freedom  of  Religion,   

subject  to  public  order,  morality,  health  and  other   

provisions  stated  in Part  III.  All persons  are equally entitled   

to  freedom  of  conscience  and  the  right  to  freely profess,   

practice and propagate  religion.  Of course,  again this right   

is  subject  to  reasonable  restrictions  within  the  ambit  of   

Article  25(2)  of  the  Constitution.   In  light  of  these  three   

Articles,  now  we  have  to  examine  which  rights  of  the   

citizens  are  being  violated  and  what  is  the  scope  of  the   

present  proceedings  before  the  court  and  what directions,   

if any, the court  can issue  within the four corners  of law.  It  

has  undoubtedly and  indisputably come on record  that  the   

rights of yatris to the holy shrine enshrined under Article 21   

of  the  Constitution  of  India,  are  being  violated.   There  is   

admittedly lack  of  basic  amenities  and  healthcare.    The   

walking tracks  are  not  only deficient  but  are  also  not  safe   

for  the  pedestrians.   The  management  and  arrangements   

for the yatris at the glacier and near the Holy Shrine are, to   

say  the  least,  pathetic.   Keeping  in  mind  the  number  of   

yatris who  come  to  pay their  homage  at  the  Holy Shrine   

every year,  the  management  suffers  from  basic  infirmity,  

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discrepancies,  inefficiency  and  ill-planning.    The   

Government  of India,  State  of Jammu and  Kashmir and  the   

Shrine  Board  are  under  a  constitutional  obligation  to   

provide free movement, protection and health care facilities   

along with basic amenities  and proper  tracks  to be used  by  

the yatris.   

10. Now,  we  may examine  the  dimensions  of  the  rights   

protected  under Article 21 of the Constitution of India.  The   

socio-economic  justice  for  people  is  the  very spirit  of  the   

preamble of our Constitution.   ‘Interest  of general public’ is  

a  comprehensive  expression  comprising  several  issues   

which  affect  public  welfare,  public  convenience,  public   

order,  health,  morality, safety etc.,  all intended  to  achieve  

the  socio-economic  justice  for  people.  In  the  case  of  

Consumer Education  and Research Centre v.  Union of India   

(1995)  3 SCC 42,  this  Court  while noticing  Article  1 of  the   

Universal  Declaration  of  Human  Rights,  1948  (for  short   

‘UDHR’)  asserted  that  human  sensitivity  and  moral  

responsibility of  every State  is  that  “all human  beings  are   

born  free  and  equal  in  dignity  and  rights.   They  are   

endowed  with  reason  and  conscience  and  should  act   19

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towards  one  another  in a spirit of brotherhood.”  The Court   

also  observed  “the  jurisprudence  of  personhood  or   

philosophy  of  the  right  to  life  envisaged  under  Article  21,   

enlarges  its  sweep  to  encompass  human  personality in its   

full blossom with invigorated  health which is a wealth to the   

workman  to  earn  his  livelihood,  to  sustain  the  dignity of  

person  and to live a life with dignity and equality.”

11. Not  only this,  there  is  still  a  greater  obligation  upon   

the  Centre,  State  and  the  Shrine  Board  in terms  of Article   

48A of the  Constitution  where  it is required  to  protect  and   

improve  the  environment.   Article  25(2)  of  the  UDHR  

ensures  right to standard  of adequate  living for health and   

well-being  of  an  individual  including  housing  and  medical   

care  and  the  right  to  security  in  the  event  of  sickness,   

disability etc.  The expression  ‘life’ enshrined in Article 21 of   

the  Constitution  does  not  connote  mere  animal  existence   

or  continued  drudgery  through  life.   It  has  a  much  wider   

meaning  which includes  right to  livelihood,  better  standard   

of  living,  hygienic  conditions  in the  workplace  and  leisure.   

The right  to  life with human dignity encompasses  within its   

fold,  some  of  the  finer  facets  of  human  civilization  which  20

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makes  life  worth  living.   The  expanded  connotation  of  life  

would  mean  the  tradition  and  cultural  heritage  of  the   

persons  concerned.   In the  case  of  Consumer Education  &  

Research  Centre  (supra),  the  Court  discussing  the  case  of  

C.E.S.C. Ltd.  v.  Subhash Chandra  Bose  [(1992)  1 SCC 441]  

stated  with  approval  that  in  that  case  the  Court  had   

considered  the  gamut  of  operational  efficacy  of  human   

rights and constitutional rights,  the right to medical aid and   

health and held the right to social justice as  a fundamental   

right.   The  Court  further  stated  that  the  facilities  for  

medical care and health to prevent sickness,  ensure  stable   

manpower  for  economic  development  and  generate   

devotion  to  duty and  dedication  to  give the  workers’  best   

performance,  physically  as  well  as  mentally.   The  Court   

particularly, while referring to the workmen made reference   

to Articles  21, 39(e),  41, 43 and 48-A of the Constitution  of   

India to  substantiate  that  social  security, just  and  humane   

conditions  of  work and  leisure  to  workmen  are  part  of  his   

meaningful right to life.

12. Security to citizens by the State  is also  a very sensitive   

issue.    The  State  has  to  draw a  careful  balance  between   21

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providing  security,  without  violating  fundamental  human   

dignity.   In  the  case  of  In  Re  :  Ramlila  Maidan  Incident   

(2012) 5 SCC 1, the Court observed “the primary task of the   

State  is  to  provide  security to  all citizens  without  violating   

human  dignity.   Powers  conferred  upon  the  statutory  

authorities  have  to  be,  perforce,  admitted.  Nonetheless,   

the  very essence  of constitutionalism is also  that  no organ   

of the  State  may arrogate  to  itself powers  beyond  what  is   

specified in the Constitution.”

13. In  Bhim Singh   v.  Union  of  India  (2010)  5  SCC 538,   

while  referring  to  the  obligations  of  the  State  and  its   

functions,  the Court held:

“53….it  is  also  settled  by this  Court  that  in  interpreting  the  Constitution,  due  regard   has  to  be  given  to  the  Directive  Principles   which has  been  recorded  as  the  soul  of the   Constitution in the context of India being the   welfare  State.  It is the  function  of the  State   to  secure  to  its  citizens  "social,  economic   and  political  justice",  to  preserve  "liberty of  thought,  expression,  belief,  faith  and   worship”  and  to  ensure  "equality of  status   and  of  opportunity" and  "the  dignity of  the   individuals"  and  the  "unity  of  the  nation".   This is what the Preamble of our Constitution   says and  that  is what which is elaborated  in  the  two vital chapters  of the  Constitution  on   

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Fundamental  Rights  and  Directive Principles   of the State  Policy.”

14. Where  it is  the  bounden  duty of  the  State  to  protect   

the  above  rights  of  the  citizen  in  discharge  of  its   

constitutional  obligation  in the  larger  public interest,  there   

the  law also  casts  a  duty upon  the  State  to  ensure  due   

protection  to  the  forests  and  environment  of  the  country.  

Forests  in India  are  an  important  part  of the  environment.   

They constitute  a  national  asset.   We may, at  this  stage,   

refer to the concept  of inter-generational  equity, which has   

been  treated  to  be  an  integral  part  of  Article  21  of  the   

Constitution of India.  The Courts  have applied this doctrine   

of sustainable  development  and  precautionary principle  to   

the  cases  where  development  is  necessary,  but  certainly  

not at the cost  of environment.  The Courts are expected to   

drive  a  balance  between  the  two.   In  other  words,  the   

onerous  duty lies  upon  the  State  to  ensure  protection  of  

environment  and  forests  on  the  one  hand  as  well  as  to   

undertake  necessary  development  with due  regard  to  the   

fundamental rights and values.   

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15. From  the  analysis  of  the  above,  it  is  clear  that  the   

appropriate  balance  between  different  activities  of  the   

State  is the  very foundation  of the  socio-economic security  

and proper enjoyment of the right to life.   

16. In the present  case,  as already noticed,  there is hardly  

any dispute.   In  fact,  all  the  parties  are  ad  idem on  the  

issue  that  much  is  required  to  be  done  before  the  State   

can  claim  that  it  has  discharged  its  constitutional   

obligation in the larger public interest.   In fact, the report of   

the  SHPC  has  accepted  the  existence  of  lack  of  facilities,   

non-availability  of  proper  health  care,  need  for  proper   

management,  providing  of  proper  passage/walking  tracks   

and finally the basic amenities.   The report proceeds  on the   

basis  that  much  is  required  to  be  done  by the  State  and   

the  Shrine  Board.   The  State  and  the  Shrine  Board  under   

the  umbrella  of  the  Union  of  India  has  to  act  in  tandem,  

with great  cooperation,  coordination  and  objectivity so  as   

to  ensure  protection  of  rights  on  the  one  hand  and   

discharge  of its obligations  on the other.

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17. With the  passage  of  time and  passing  of  each  yearly  

yatra ,  the  pilgrims’  mortality rate  has  increased.   Greater   

difficulties  are  faced  by the  pilgrims  in  relation  to  health   

care,  public  amenities  and  sanitation  arrangements.   

Besides  this,  dire  need  exists  for  improvement  of  the   

walking  tracks  to  the  Shrine  and  proper  management  of  

separate  one-way routes  for horses  and  palkis as  one  unit  

and  pedestrians  as  the  other  unit.   With  the  passage  of   

time,  the  number  of  yatris has  increased.   In  the  recent   

yatra  held  in  the  year  2012,  nearly 18,000  pilgrims  have  

paid their homage  at the Shrine.   It is a very complex issue   

comprising  various  facets.   Steps  are  required  to be  taken   

including  development  of  the  area  but  with due  regard  to   

the  environmental  and  forest  issues.   The  SHPC  had  held   

various  meetings,  deliberated  on  various  aspects  and   

problems  and  after  considerable  deliberation  and  efforts,   

have  submitted  the  report  dated  6 thSeptember,  2012.   

Under  Chapter  IX of  this  report,  the  SHPC  has  submitted   

the  summary  of  recommendations.   These   

recommendations  read as under : 25

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“      SUMMARY OF RECOMMENDATIONS   9.1 Through  its  various  Orders,  the  Hon'ble   Supreme  Court  has  referred  to  several  issues  connected  with the  Amarnathji  Yatra   and  directed  the  SHPC  to  make  recommendations  in  regard  thereto.  While  the  SHPC's  recommendations,  issue-wise,  are  summarized  in  the  paragraphs  below,  these  may be  read  in  conjunction  with  the   context,  observations  and  rationale   discussed  in detail in Chapters  1- 8.

9.2 HEATH ISSUES

9.2.1  The  following  issues  were  required  to  be examined by the SHPC:

a) Providing of health  check-up facilities   on both the passages from Baltal and   Panchtarni to the Holy Cave.

b) All  such  other  steps  which  are   required  to  be  taken  for  preventing   unfortunate  deaths  of  the  yatris,   going on yatra to the Holy Cave.

c) Deployment  of  more  medical  teams,   at  regular  distance  on  all  the   passages leading to the Holy Cave.

9.2.2  The  SHPC  has  made  the  following  recommendations  vis-avis  the  issues  listed  above:

9.2.3 The  SHPC  endorses  the  requirement  of  every  Yatri  furnishing  a  Health  Certificate  while seeking  Registration   for  the  pilgrimage.  It  also  considers  it  necessary that  the format of the Compulsory  Health  Fitness  Certificate  should  be  revised   to  specifically  reflect  the  existing  ailments   from which applicant-Yatri may be suffering.

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9.2.4 An Expert Medical Committee   (three  Medical  Specialists  to  be  nominated   by  Union  Health  Ministry  and  one  Medical  Specialist  to  be  nominated  by  the   Government  of  Jammu and  Kashmir)  should   review the  format of the  existing Compulsory  Health  Certificate  and  suggest  suitable   modifications  therein,  as  required.  State   Health Secretary shall serve as the Convener   of this  Committee  which will also  prescribe  a  check-list  for  issue  of the  Certificate  and  its  standard  format.

9.2.5 There  is  need  to  reconsider   the  authority  competent  to  issue  the   Compulsory  Heath  Certificate,  which  is  currently  being  done  by  any  Registered   Medical  Practitioner.  The  same  should  now  be  issued  by  the  Chief  Medical  Officer/  Medical  Superintendent  I  Block  Medical  Officer/  Government  Doctors  authorized  by  the  concerned  State  Government  Health   authorities.  State  Governments  and  Union   Health  Ministry  will  also  provide  lists  of  reputed  Private  Medical  Institutions,  located   in areas  within their  respective jurisdictions,   which  may  be  authorised  to  issue  Health   Fitness  Certificates.  CEO, SASB, shall compile  State-wise  lists  of  such  authorized  institutions  and  arrange  to  provide  the   widest  possible  publicity  to  such  lists   through all possible means.

9.2.6 The  medical  facilities  should   be rationally dispersed  and relocated  on the   basis  of  critical  assessments.  A  Committee   comprising  the  State  Secretary Health,  CEO  SASB, Director Health Services  (Kashmir) and   one senior officer each  from Army, BSF, CRPF  and ITBP should review the existing locations   of  all  Medical  Aid  Centres  (MACs)  and   rationalize  the  location  of  MACs  and,   

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wherever  necessary,  increasing  the  number   of MACs to ensure  that  these  are  located  at   regular  intervals/  distances  from each  other   and  not  in  a  cluster.  Well  equipped  and   staffed  MACs  should  be  set  up  at  Sangam  and  in  Holy  Camp  Lower  Camp  area.  ITBP  (which  has  considerable  experience  of  organizing  medical  aid  for  Mansrovar  Yatra)   should be asked  to set  up at least  two MACs  in the  lower Holy Cave and  Sheshnag  areas.   They  could  perhaps  set  up  more  MACs  in  subsequent  years.  

9.2.7 There  is  need  for  establishing  a  well  organised  MAC,  along   with  adequate  number  of  Rescue   Volunteers,  in  the  Lower  Cave  and  Sangam  Top  areas  and  also  at  other  locations  like  Kalimata  Top,  Railpathri,  Nagakoti,  Wavbal  etc.

9.2.8 Keeping  in  view  that  a  fair  percentage  of pilgrims prefer Indian Systems   of  Medicine  (ISM),  an  increased  number  of  ISM  medical  camps  could  be  provided  at  suitable locations  along both the routes.

9.2.9 The Union  Health  Ministry and   the  States  (particularly  those  from  where  a   relatively  larger  number  of  pilgrims  arrive)  should  be  moved  to  provide  the  services  of  Specialist  doctors,  as  well  as  GDMOs,  to   supplement  the  efforts  of  the  State   Government.

9.2.10 The  Union  Health  Ministry  should  facilitate  timely  arrangements  for  appropriate  training  in High Altitude  Sickness   Management  being  provided  to  doctors  and   paramedics  of the J&K Health Department who  are to be deployed on Yatra duty.

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9.2.11 The  Union  Health  Ministry  should  enable  experienced  Specialists  to   advise  the  State  Health  authorities  regarding   the medicines,  medical equipments  etc.  which  should  be  provided  in  MACs  located  in  the   high altitude  areas.  The Union  Health  Ministry  should  also  supplement  the  efforts  of  the   State  to  provide  the  required   equipments/medicines,  particularly  in  regard   to  the  provision  of  portable  Hyperbaric   Chambers  for  on-the-spot  decompression  of  sick Yatris at identified Medical camps.

9.2.12 The  possibility  of  providing  special  insulated  tents  or  Pre fabricated  Huts  or  completing  the  pucca  structures  to  house   medical  facilities  therein  should  be  timely  explored  and  the  needful  done  by the  State   Health Department  with the required  support,   as needed,  from the Union Health Ministry.

9.2.13 The  MACs  at  Holy  Cave,  Sangam,  Panjtarni,  Sheshnag  and  Poshpathri   should be housed  in larger tents/structures  in  which temperatures  at  25-26 degrees  can  be   maintained  for  effective  patient  care.  The  State  Health  Department  should  procure   suitable  tents/  prefabricated  huts  for  this   purpose.

9.2.14 A Committee comprising CEO,  SASB (Convenor),  one  High  Altitude  Medicine   Specialist  (to  be  nominated  by  the  Union   Health Ministry) and one Medical Specialist (to   be  nominated  by  the  State  Health   Department)  will prepare  an  appropriate  food   menu which shall be adhered  to by the Langar   Organizations.  All other  food  items/  junk food   should  be  banned  and  not  allowed  to  be  served on the Yatra route.

9.2.15 The  SASB  should  make  the  Yatris   better  aware  of  the  challenges  and  the   

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medical problems  they are  likely to  face  when  they embark on an arduous  trek and devise a   suitable  communication  strategy  in  this   regard.  The support  of the  Union  Information   and  Broadcasting  Ministry should  be  sought   for  creating  enhanced  awareness  among  the   pilgrims  through  airing  and  screening  of  Documentaries,  Public  Interest  Messages  (of  both  short  and  long  duration)  on  AIR  and   Doordarshan  National  and  Regional  Channels   and  besides,  through  private  radio/TV  channels.

9.2.16 The SASB should  publish  pamphlets   in  other  regional  languages,  in  addition  to   Hindi  and  English,  since  a  good  number  of  pilgrims hail from States  which have different   languages.  It would be  useful for the  SASB to   also  arrange  broadcast  of  public  interest   messages  in  regional  languages  through   television, radio and print media.

9.2.17 More  Mountain  Rescue  Teams  (MRTs) should be deployed at identified points   along  both  the  Yatra  routes,  in  future   pilgrimages.  J&K Police  should  deploy about  6  MRTs in the Yatra area  in the next three years   and  Union  Ministry  of  Home  Affairs  should   provide  the  necessary resources/  support  for  arranging  specialised  training  and  the  latest   equipments  for the MRTs.

9.2.18 Principal  Secretary,  Home,  J&K,  will  convene  a  meeting  of  all  Security Forces,  at   least  two months  before the Yatra, to prepare   a  detailed  SoP  for  the  immediate  evacuation   of  ill/injured  pilgrims,  with  the  help  of  the   resources  available  with  State  Disaster   Management  Authority,  Air  Force  and  SASB.  This  meeting  should  also  explore  the   possibility  of  providing  the  facility  of  air  

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ambulance  to  evacuate  critically  ill/injured   persons  who  need  to  be  shifted  most   immediately.

9.2.19 CEO  SASB  could  explore  involving  identified NGOs I private players to provide the   required  assistance  to  unattended  sick  I  injured pilgrims, at both the Base  Camps. This  would relieve the  personnel  at  the  MACs who  can then devote better  attention  to the other   sick patients.

9.2.20 The  SASB  should  examine  the   possibility  of  the  Indian  Red  Cross   Society'being  involved in enlarging  awareness   and  sensitization  of  pilgrims.  Some  of  their   volunteers  could  also  be  engaged  for  rendering useful health related services.

9.3 ENVIRONMENTAL ISSUES

9.3.1 The following issues  were required to be   examined by the SHPC

(a) Providing  of  proper  public   amenities and  facilities on way and  at   the lower end of the glaciers near  the   Holy Cave.

(b) Environmental Impact Assessment

(c) The  manner  and  methods  to  be   adopted  to  attain  the  above,  with   least damage  or interference  with the   environment  of entire  zone  right  from   Baltal  to  the  Holy Cave from different   routes.

9.3.2 The SHPC makes  the  following  recommendations  vis-a-vis  the  issues  listed   above:

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9.3.3 While  recognising  that  the  SASB has  been cognizant of-the vital need to   protect  the  integrity of the  environment  and   has  undertaken  several  measures  in  this   regard, the SHPC notes  that it is essential to   strengthen  these  measures  through   environmental  impact  assessments  and   studies  being  undertaken  at  regular   intervals,  on  different  aspects  of  the  Yatra,   to  examine,  inter-alia,  the  impact  of the  flow  of several  lakh  pilgrims,  sanitation  and  solid  waste  management,  quality  and  availability  of  water  etc.  The  SHPC  also  reiterates  that   statutory  Environmental  Impact  Assessment   shall be conducted  whenever so mandated.

9.3.4 Keeping  in  view  the  low  temperature  which prevails in the Yatra area   and  the  need  to  maintain  adequate   distances  from the  nearest  water  bodies,  to   avoid any contamination  of the  waters,  CEO,  SASB,  would  need  to  consult  experts  to  identify the  most  appropriate  technological   designs  and  solutions  for  the  functioning  of  an optimal number of toilets  in the Holy Cave  area.  CEO,  SASB  may  also  explore  the  possibility of using bio-digester  based  toilets   developed  by DRDO for  Army camps  in  the   high  altitude  areas.  As  tourist  arrivals  have  also  been  increasing  progressively, it would  be  profitable  if Secretary Tourism, Secretary  PHE  and  CEO,  SASB  coordinate  efforts  to  identify  the  best  available  technology  options.  Such  a  collective  approach  would  also  contribute  towards  the  required   investments  being cost  effective.

9.3.5 The  SHPC  is  of  the  opinion   that the STPs at the Baltal and Nunwan Base   Camps need to be technically evaluated  and,   upgraded  as  required.  In  this  context,  the   SHPC  was  informed  about  the   

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implementation  of the  "Recommendations  of  the  Study on the  Technical Evaluation  of the   STPs" which was conducted  (in August  2012)   by  scientists  from  Centre  for  Science  and   Environment  (CSE),  New  Delhi,  at  the   instance  of  SASB.  This  study  recommends,   interalia,  that  the  existing  capacity  of  the   STPs  should  be  enhanced  to  improve  the   retention  time of the  waste  disposal  system  and to ensure  effective treatment of waste.

9.3.6 The  SHPC  also  recommends   the  need  to  find  an  urgent  appropriate   solution  for  the  treatment  of  the  Langar   waste,  which  is  high  on  grease  and  biological material.

9.3.7 The  SHPC  recommends  that   the  State  Public  Health  Engineering   Department  should  provide  the  infrastructure  to ensure  regular water supply  at  suitable  identified  locations,  wherever  feasible,  on the  route  of the  Yatra  Camps to   enable  SASB to set  up toilet  facilities  for the   convenience  of Yatris.  CEO SASB would need   to ensure  that all toilets  have waste disposal   systems  and  are  duly covered  under  SASB's   Sanitation  Contract,  so  that  the facilities  are   maintained  in a hygienic and environmentally  safe  manner.  It would be  useful  to  increase   the  number  of  toilet  facilities  which  service  the Langars  located along the Yatra route.

9.3.8  To counter  the  ever  increasing  use  of  plastic  in  the  Yatra  area,  the  SHPC  recommends  the following:

a) The State  Government should  direct   the  concerned  law  enforcement   agency(ies)  to  take  all  required   steps,  on  a  time  bound  basis,  to  enforce  the  current  statutory  ban   on the use of plastic.

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b) SASB  should  progressively  arrange   facilities  for  drinking  water  filters   being  set  up  at  Camps  and  Langar   sites  to discourage  the use  of water  bottles  in  the  Yatra  area.  The  aim  should  be  to  provide  a  viable  alternative  to  plastic  water  bottles   in due  course.  The SASB could  also   consider  introducing  a  "deposit   amount"  scheme  under  which  the   deposit  is  returnable  when  the   beverage  bottle  is  brought  back  to   the disposal  site.

c) Pictorial  signage  (in  place  of  the   existing  signage  in  Hindi  and   English)  should  be  used  at  all  prominent  places.  This  would  be   helpful  in  also  educating  the  Yatris   about  the  need  to  keep  the  Yatra   area free from plastic materials.

d) The  SASB  should  suitably revise  the   existing  Terms and  Conditions  of the   permissions  given  to  LangarOrganisations  to  ensure  that   that  no  plastic  material  is  used  for  serving  food  and  beverages  to  the   Yatris.  There  should  be  adequate   monitoring  of  the  implementation  of  these  conditions  and  all  cases  of  non-adherence  must  be  penalised   severely.

9.3.9 All biological  waste  should  be  disposed  off  in  compost  pits,  which  should   be  built  in  the  Langar  areas.  The  LangarOrganisations  must  be  made  fully  responsible  for  ensuring  the  segregation   and  safe  disposal  of  wastes.  Further,  no   Langar  site  should  be  cleared  without  the   availability of  mandatory  facilities  for  waste   

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segregation  and  disposal.  SASB  should   establish  a  suitable  monitoring  mechanism  in this  regard.  The  Terms  and  Conditions  of  the  permission  given  to  theLangarOrganisations  must  be  revised  to   include  the  aforesaid  conditions  as  also  a  provision  for  the  imposition  of  stringent   penalties  in the case  of any default.

9.3.10 The  SHPC  suggests  that  an   increased  number  of  garbage  bins,  with  pictorial  signage  for  segregating  bio- degradable  waste  from non  bio-degradable   ones,  would  further  reduce  littering  in  the   Yatra area.

9.3.11 The  concerned  District  Administrations  must  identify the  sites  and   create  this  infrastructure  expeditiously  as   per  the  Municipal  Solid  Waste  Rules,  in  consultation  with  the  SPCB.  This  infrastructure  is vital, not  only for the  Yatra,   but  also  for  the  growing  number  of  tourists   and  other  business  visitors  in  the  larger   area.

9.3.12 It must  be  ensured  that  after  the   dismantling  of  Yatra  Camps  and  Langers,   consequent  to  the  conclusion  of  the  Yatra,   all  solid  waste  is  collected  and  properly  disposed  off  by  the  relevant  authorities.   CEO, SASB, should in consultation  with SPCB,  put  in  place  an  appropriate  monitoring   mechanism in this regard.

9.3.13 The  State  R&B Department  should   urgently upgrade  the  road  from RangaMorh   to  Domail so  that  it is able  to  withstand  the   very heavy traffic during the Yatra period and   the problem of dust and mud is controlled.

9.3.14 The  SPCB  should  conduct   analytical  studies  every year  to  monitor  the   

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quality  of  water  in  Lidder  and  Sindh  rivers   and  share  the  findings,  along  with  actionable  suggestions,  with  SASB  and  the   State  Government.  The  SPCB also  needs  to  early upgrade  its own testing facilities.

9.4  REGISTRATION,  ACCESS  CONTROL  &  SECURITY

9.4.1  The  following  issues  were  required  to  be examined by the SHPC

a) Registration  of  yatris  at  Jammu,   Srinagar,  Baltal and Panchtarni.

b) It  should  also  consider  the  possibility   of  limited  number  of  yatris  being   released  from  Srinagar  to  Baltal  to   ensure  better  management,  hygiene,   healthcare  and  betterment  of  the   yatris, who stay their overnight.

c) Medical  examination  at  the  time  of   registration and on way.

d)  It  should  be  examined  by SHPC in its   meeting  if a  transparent  device made   of  glass,  fiber  or  any  other  material,   which  is  scientifically  permissible,  be   placed  at  the  Cave  where  iron  grills   have  been  fixed  as  of  now.  The  iron   grills  serve  no  required  purpose.   Firstly,  -  it  obstructs  the  view  of  the   yatris  during  darshan  and  secondly,   they  are  not  safe  and  even  pass  the   human  heat  which  results  in  early   melting of the Shivalingam.

9.4.2 The SHPC makes  the  following  recommendations  vis-a-vis  the  issues  listed   above:

9.4.3. The  SASB  will  continue  to  determine,  from year  to  year,  the  maximum  

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number  of pilgrims to  be  allowed  to  embark   on the tracks,  after taking into consideration   the  weather  condition  and  forecasts,  track   conditions,  infrastructure  available  in  the   enroute  Camps  and  at  the  Holy Cave (which  would  include  the  handling  capacity  at  the   Shrine),  other  required  facilities  etc.  Once   the  required  decisions  have  been   communicated  by the  CEO, SASB,  the  Police   shall ensure  that  the number of pilgrims who  are allowed to cross  over the Access  Control   Gates  possess  valid  Yatra  Permits  for  that   date and route.

9.4.4 CEO,  SASB,  should  arrange   the  widest  possible  publicity  of  all  registration  related  matters,  particularly  in  the  States  from  where  larger  numbers  of  pilgrims  arrive.  Further,  Public  Interest   Messages  would  also  need  to  be  broadcast   through  radio,  television  and  print  media,   particularly in the regional languages.

9.4.5 On-Spot  registration  of  pilgrims  at  Srinagar  and  Base  Camps  of  Baltal and Nunwan should be discouraged.  A  pilgrim seeking  advance  registration,  in  his   home State,  provides  a useful opportunity to   educate  him about  the difficulties  involved in  the journey, health related  precautions,  Do's   and  Don'ts,  basic  minimum  clothing  I  accessories  required etc. Further, the period   after  registration  and  before   commencement  of  the  Yatra  would  enable   the  pilgrim  to  prepare  himself  suitably  to  proceed  on a difficult pilgrimage.

9.4.6 As  in  the  case  of  advance   registrations,  On-Spot  registrations  should   also  specify a specific date  and route  for the   applicant  to  commence  his  journey.  The  pilgrim  may  be  allowed  to  commence  his  

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Yatra  on  the  same day only if the  number  of  pilgrims registered  for that  particular  date  is  below the  registration  ceiling  prescribed  by  the SASB.

9.4.7 There  should  be  strict  compliance  of  allowing  only  those  pilgrims  who  possess  valid  Yatra  Permits  for  that   date  and  route  to  cross  the  Control  Gates.   To  facilitate  the  Police  personnel  deployed   at  the  Access  Control  Gates  in  determining  whether  the  Yatri  possesses  a  valid  Yatra   Permit for the given date and route the SASB  may adopt  colour coding of Yatra permits i.e.  the  Yatra  Permit would  be  of  a  given colour   for each day of the week.

9.4.8 Effective  enforcement  at  the   Access  Control  Gates  would  be  crucial  for  securing  satisfactory  Yatra  management.   The  District  Magistrate  and  the  District   Police  will  be  responsible  for  enforcing   effective Access  Control.

9.4.9 The  pilgrims  should  be  released  in batches,  reasonably spread  out   over  a  specified  period  in the  day, to  avoid  any congestion  on the tracks.  The SHPC also   suggests  that  SASB may consider  indicating   the  "reporting  time"  on  the  Yatra  Permits,   along  with  the  date  and  route  of  the   pilgrimage.

9.4.10 The  SHPC  recommends  that  the   J&K Police  and  Central  Armed  Police  Forces   should  enlarge  the  provision  of  basic   requirements  like tents,  bedding,  toilets  etc.   to their personnel  deployed on Yatra duty, in  order  to  provide  them  better  working  conditions.

9.4.11 Regarding  the  matter  related  to   provision  of  a  transparent  device  made  of  

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glass,  fiber  etc,  the  SHPC  is  of  the   considered  opinion that the SASB is the right   forum  to  decide  any  issue  related  to  the   preservation  of the  Ice Lingam in the  Shrine   and  taking  all  required  steps  for  providing  satisfactory Darshans.

9.5 TRACK CONDITIONS

9.5.1  The  following  issues  were  required  to  be examined by the SHPC  

a) Construction  of  proper  passages,   wide  enough  and  with  due  support   on  both  sides,  for  the  traffic  of   pedestrian  yatris,  on  horses  and  by   palkis  from  Panchtarni  to  the  Holy   Cave.

b) Providing  of  one-way  passage  with   separate  tracks,  one  for  pedestrians   and  other  for  horses,  carriages  and   palkis near the Shrine.

c) The  manner  and  methods  to  be   adopted  to  attain  the,  above,  with   least  damage  or  interference  with   the  environment  of  entire  zone  right   from  Baltal  to  the  Holy  Cave  from   different routes.

9.5.2 The SHPC makes  the  following  recommendations  vis-a-vis  the  issues  listed   above:

9.5.3 Keeping  in  view the  need  to  provide  safe  and  smooth  passage  to  the   Yatris,  particularly  during  the  peak  Yatra   period,  when  there  is  acute  congestion  on   the tracks  due to simultaneous  movement of  pedestrian  Yatris  and  those  on  ponies/   palkis  in the  limited  space  that  is  available,   and  also  keeping  in view the  environmental   concerns,  the  Committee  recommends  that   

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the  following works  should  be  approved  and   taken  up for implementation  on  a  fast  track   basis:

• Improvement  of  critical  stretches  of  the   existing  track  from Baltal  to  Holy Cave as   per  the  preliminary  details  presented  in  Annex.  -  4,  to  be  implemented  by  the   State  PWD, with the assistance,  as may be   required, from other organizations  such as   Border  Roads  Organisation  (which  can   mobilise in the area quickly).

• Provision  of  one-way  passage  with  separate  tracks,  one  for  the  pedestrians   and  other  for the  horses/  palkis,  near  the   shrine  to  be  implemented  by  the   Pahalgam Development Authority.

• Improvement  of  existing  track  from  Panjtarni  to  Holy  Cave  as  per  the  preliminary details  presented  in Annex. - 4  to  be  implemented  by  the  Pahalgam  Development Authority.

• Proposal  of  Pahalgam  Development   Authority  to  improve  the  track  from  Chandanwari Base Camp to Panjtarni.

9.5.4  While  it  would  have  been  an  ideal  situation  if it were  possible  to  complete  the   upgradation  works  before  the  commencement  of the Yatra 2013,  the SHPC  is  conscious  of  the  fact  that  a  two  month   working  period  would  be  available  in  the   current  year,  after  which  the  entire  area   would  be  snow  bound/inaccessible.   Furthermore,  in  2013  also,  very  little  time  would  be  available  for  carrying  out  works  after  the  snows  melt  around  mid  to  end   June,  and till the  time the  Yatra  commences.   It  is  also  to  be  kept  in  view that,  at  some   places,  areas  under  forests,  wildlife  

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sanctuaries  or  eco-sensitive  zones  may be   involved,  and  clearances  under  relevant   protection/conservation  laws  may  be  required,  which  may  also  take  time.  The  SHPC,  therefore,  recommends  early  implementation  of these  works with as  much  as  possible  progress  during  the  current   working  season  and  before  the   commencement  of  next  Yatra  (2013)  and   ensuring  that  these  are  completed  before   the  working  season  of  2013  is  over.  The  State  Government  should  provide  the   required  funds  for  the  above  listed  four  works.  Wherever  clearances  are  required   under  the  related  Environment  laws,  the   matter  should  be  processed  on  a  time  bound  basis  by all concerned  authorities,  to  ensure  the  completion  of  all  the  aforesaid   works before the end of October, 2013.

9.6 OTHER PUBLIC AMENITIES

9.6.1 For  Yatra  2012,  Temporary  Transit  Camps  had  been  set  up  for  the   overnight  stay of  Yatris  at  Qazigund  and  Mir  Bazar  (Anantnag  District)  and  at  Manigam  and  Yangoora  (Ganderbal  District).  If these   facilities  are  placed  on  a  firm footing  and   suitably  upgraded,  they  can  be  profitably  utilised  to  meet  the  growing  demands  of  tourism,  and  for  other  suitable  purposes,   before  and after the annual  Yatra.  The SHPC  recommends  that  all  required  facilities,  viz.  shelter,  toilets,  water,  power  supply,  etc   should  be  provided  at  the  aforesaid  and   other  Transit  Camps  before  commencement   of Yatra 2013.

9.6.2 The  Department  of  Telecommunications  should  be  moved  to  take  all  necessary  steps  for  providing  inter- connectivity in  the  Yatra  area  so  that  the   

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Yatris  having  non-BSNL  mobile  connections   do not face any difficulty during Yatra 2013.

9.6.3 For Yatra 2013,  the number of  Automatic  Weather  Stations  should  be  augmented  to cover Chandanwari, Pahalgam  and  Baltal  and  a  Doppler  Radar  should  be   set  up  at  IMD Campus,  Srinagar,  on  urgent   basis  as  this  facility will be  able  to  provide   accurate  weather  forecasts  round  the  year  in the entire Valley.

9.6.4  The  State  Government  has  provided   funds  to the State  Public Health Engineering   Department  for  laying  underground  water  supply lines  at  Baltal  Base  Camp.  This  work  should  be  completed  before  the   commencement of Yatra 2013.

9.6.5 The  State  Animal  Husbandry  Department  should  register  only  an,   assessed  number  of  ponies  to  ensure   against  overcrowding  on  the  tracks.   Likewise,  the  Labour  Department  should   assess  the  number  of  Palkis/Dandis  to  be   allowed to operate  on the tracks,  route-wise,   every year.

9.6.6 While  noting  the  useful  arrangements  which  are  being  assisted/   provided  by  the  various  concerned  State   Government  Departments  for  the  smooth   conduct  of the  annual  Yatra,  the  SHPC is of  the view that  the Yatra requirements  require   to  be  reviewed  from  time  to  time.  In  this   context,  the  SHPC notes  that  the  High Level  Committee  (HLC), which is convened  by CEO,  SASB,  and  chaired  by  State  Principal   Secretary  Home,  has  served  a  useful  purpose  in 2012  and  recommends  that  the   HLC should  continue  to function,  to  overview  the problems of future Yatras,  with similar or   modified  terms  of  reference,  as  may  be  

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necessary.  The  HLC  should  prepare  an   Annual  Action  Plan,  immediately  after  the   Yatra is over, which clearly indicates  the gap   to  be  filled,  the  implementing  agency,  requirement  of funds  and  the  time frame for  implementation.  The SHPC also  recommends   that  all  the  recommendations  made  by this   HLC in 2011  be fully implemented  before  the   commencement of Yatra 2013.

9.6.7  A  Committee  to  be  chaired  by  the   concerned  District  Magistrate  should  be  set   up to grant  permissions  for the setting up of  tents  and  shops  at  each  Camp  location,   taking  into  account  the  overall availability of  space,  the  number  of tents/shops  which are   required  to  be  set  up,  ensuring  that  the   tents,  beddings  etc  are  of  the  specified   quality/standard.”

18. The  learned  counsel  appearing  for  the  parties  have  

made submissions  and suggestions,  while taking the above   

report  to  be  the  very foundation  of  their  submissions.   In  

other  words,  attempts  were  made  before  the  Court  to   

improve upon  the recommendations  in order  to make them  

more  effective.   One  of  the  points,  on  which  submissions   

were  made  before  the  Court  related  to  improvement  of  

medical facilities.   Firstly, it was suggested  that  each  State   

in  the  country  should  identify  the  medical   

institutions/hospitals,  run  by or  under  the  control  of  the   

State  Governments,  to  issue  ‘health  certificates’  upon   

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examining the  persons  who are  desirous  of going for  yatra   

to the  Holy Cave in the  future.   Secondly, it was suggested   

that  specified medical officers  of these  hospitals  should  be   

required  to  give  the  said  health  certificates.   Lastly,  the   

States,  particularly the  neighbouring  States  like,  Haryana,   

Punjab,  Himachal  Pradesh,  Rajasthan  and  Uttar  Pradesh,   

should  be  requested  to  send  teams  of  doctors  on   

temporary  duty  to  the  State  of  Jammu  &  Kashmir  to  be   

posted  at Srinagar,  Baltal or en route  to the Holy Shrine.   It  

will be desirable  that  such  team of doctors  be acclimatized  

before  being  deputed  to  the  higher  altitudes.    It  is   

suggested  that  they ought  not  to  be  posted  at  very high   

altitudes.   Deployment  of  the  medical  teams  at   

Panchatarni,  Baltal and Srinagar  and  enroute  to the Shrine  

shall  serve the  interest  of health  care  and  public  interest.   

We  make  it  clear  that  deployment  of  medical  teams  en   

route  should  be  at  regular  distances,  with  a  gap  not   

exceeding  two kilometres.   There  shall  be  greater  number   

of  doctors  from  the  State  of  Jammu  and  Kashmir  that   

should be deployed at and around  the holy Shrine and they  

shall be  provided  with complete  equipment,  medicines  and   

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all  other  infrastructure  to  ensure  rendering  of  proper   

medical  assistance  to  the  people  who  suffer  from  any  

health  issue  at  that  point.   These  issues,  to  some  extent,   

have been  discussed  in the  report  of the  SHPC.   However,   

we are only clarifying their final aspects.    

19. The  passages  or  the  walking  tracks,  besides  being   

widened  require  rough  surface  so  as  to  prevent  slipping   

and  falling  of  the  pilgrims.   It is  conceded  before  us  that   

presently  the  width  of  the  track  is  very  less  to   

accommodate  palkis,  horses  and  pilgrims  moving  at  the   

same  time.   More  often  than  not,  jams  are  noticed  which   

spread  over furlongs.   The uncertainty of weather,  exposes   

the  pilgrims,  particularly,  the  pedestrians,  to  rain,  chilly  

winds  and  sudden  fluctuations  in  temperature  and  thus   

they fall ill.  Due to  high altitude,  many of them also  suffer   

from hypoxia .   Thus, there has  to be a regular width of the   

track which in any case  should not be less  than 12 feet and   

may  be  wider  than  that  if  so  recommended  by  the   

Committee  concerned.   These  tracks  should  duly provide  

protection  or any other  support  towards  the open  sides.   It  

may  by  iron  grills,  supporting  walls  etc.  as  may  be   45

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considered  appropriate  by  the  Committee.   This  may  

include  realignment  of  the  passage,  construction  of  

retaining  wall/railing.   We must  not  be  understood  to  have  

ordered  directly or indirectly, construction  of any motorable   

mettled  road  in  place  of  walking  tracks.   However,  we  

hasten  to clarify that  it is not only improvement of the road   

at  critical  portions  but  the  entire  track  needs  to  be   

improved, particularly from Panchtarni to the Holy Cave.   

20. STPs  are  intended  to  be  constructed  at  various   

places,  particularly at  Baltal.   We were  informed  that  the   

clearance  from various  departments  is  awaited.   However,   

the  learned  Advocate-General  appearing  for  the  State  of  

Jammu Kashmir had informed us that  the matter  is pending   

in  the  High  Court  of  Jammu and  Kashmir  and  they will be   

able  to  get  permission  for raising  construction  shortly.  We  

make  it  clear  that  all  Government  departments  shall  fully  

coordinate  and  grant  such  permissions  as  are  required  in  

accordance  with law and  expeditiously.  We further  make it  

clear  that  pendency  of  any  proceedings  before  the  High  

Court would not  come in the  way of construction  of STPs  in  

any manner  whatsoever.   It  is  for  the  reason  that  this  is  46

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absolutely essential  for maintaining  proper  sewage  system  

and  cleanliness  in  the  areas  where  large  number  of  

persons  come  and  stay  overnight  or  even  for  a  longer   

period.   It  was  commonly  conceded  before  us  that  the   

Shrine  Board  would  provide  fabricated  toilets  and  if  

necessary even  the  pre-fabricated  pathway at  and  around   

the Holy Shrine.  

21. In its  report,  the  SHPC at  para  7.18  has  noticed  that   

quality of tents  existing  at  various  camps  and  sites  needs   

improvement.   The existing tents  were found deficient  in all  

respects.   One  of  the  applicants  before  this  Court,  M/s.   

Piramal  Healthcare  Pvt.  Ltd.  (In  I.A.  No.  4  of  2012),  had   

volunteered  to  provide  any help  at  a  large  scale  that  may  

be  required  by the  State  of  Jammu and  Kashmir  and  the   

Board  to  facilitate  the  travel,  living  and  darshan  of  the  

pilgrims.   It was  offered  that  they could  provide  even  pre-

fabricated  tents  and  toilets  which  will  help  and  provide   

convenience  not  only to  the  pilgrims  but  even  to  all  the   

persons,  including  the  officials  on  duty.   We  find  this   

request  to  be  reasonable  and,  therefore,  give  liberty  to   

them  to  approach  the  Shrine  Board  with  a  request  to   47

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provide such pre-fabricated  material at large scale.   We are   

hopeful  that  the  Board  would  consider  the  request   

sympathetically and objectively.   

22. All these  matters  require  greater  attention  of  all  the   

stakeholders  and  they  need  to  make  their  plans  well  in  

advance  and  to  fully  equip  themselves  to  meet  any  

challenge.   Thus,  we are  of  the  opinion  that  the  process   

afore-indicated  and  as  stated  in the  report,  be  completed   

in a timely and expeditious  manner.  

23. We,  therefore,  have  no  hesitation  in  accepting  the   

report of the SHPC dated  6 th September, 2012 in its entirety  

but  with additions  as  afore-indicated.   The  report  shall  be   

complementary  to  the  directions  of  the  Court  and  not  in  

derogation thereof.

24. The next question  that  arises  is as  to  what directions   

generally and  particularly in the  cases  of the  present  kind,   

the Court is competent  to issue.   

25. In the  case  of  M.C. Mehta  v. Union  of  India  [(1987)  1  

SCC 395],  the  Court,  while discussing  the  ambit and  scope   

of Article 32 of the Constitution, held as under : 48

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“We have  already had  occasion  to  consider   the  ambit  and  coverage  of  Article  32  in the   Bandhua  Mukti Morcha  v. Union  of India  and  we wholly endorse  what has  been  stated  by  one  of  us  namely,  Bhagwati,  J.  as  he  then   was in his judgment in that case  in regard to   the  true  scope  and  ambit  of  that  article.  It  may now be taken as well settled that Article   32  does  not  merely  confer  power  on  this   Court  to  issue  a  direction,  order  or  writ for  enforcement  of the fundamental rights  but it  also  lays  a  constitutional  obligation  on  this   Court  to  protect  the  fundamental  rights  of  the  people  and  for  that  purpose  this  Court  has  all  incidental  and  ancillary  powers   including  the  power  to  forge  new remedies   and  fashion  new  strategies  designed  to   enforce  the  fundamental  rights.  It  is  in  realisation  of  this  constitutional  obligation   that  this  Court  has  in  the  past  innovated   new methods  and strategies  for the purpose   of securing  enforcement  of the  fundamental   rights,  particularly in  the  case  of  the  poor   and the disadvantaged  who are denied  their   basic  human  rights  and  to  whom  freedom  and liberty have no meaning.

We are also  of the view that this Court under   Article 32(1)  is free  to devise  any procedure   appropriate  for the particular purpose  of the   proceeding,  namely,  enforcement  of  a   fundamental  right  and  under  Article  32(2)   the  court  has  the  implicit  power  to  issue   whatever  direction,  order  or  writ  is  necessary  in  a  given  case,  including  all  incidental  or  ancillary  power  necessary  to   secure  enforcement  of  the  fundamental   right.  The  power  of  the  court  is  not  only  injunctive  in  ambit,  that  is,  preventing  the   infringement  of a fundamental  right, but it is  also  remedial  in  scope  and  provides  relief  against  a  breach  of  the  fundamental  right   

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already  committed  vide  Bandhua  Mukti   Morcha  case . If the  court  were powerless  to   issue  any  direction,  order  or  writ  in  cases   where a fundamental  right has  already been   violated,  Article 32 would be robbed  of all its   efficacy,  because  then  the  situation  would  be  that  if a  fundamental  right  is threatened   to  be  violated,  the  court  can  inject  such   violation  but  if the  violator  is  quick  enough   to  take  action  infringing  the  fundamental   right,  he  would  escape  from  the  net  of  Article  32.  That  would,  to  a  large  extent,   emasculate  the  fundamental  right  guaranteed  under  Article  32  and  render  it  impotent  and  futile.  We  must,  therefore,   hold  that  Article  32  is  not  powerless  to   assist  a  person  when  he  finds  that  his  fundamental  right has  been  violated.  He can   in  that  event  seek  remedial  assistance   under  Article  32.  The  power  of  the  court  to   grant  such  remedial  relief  may include  the   power  to  award  compensation  in  appropriate  cases.  We are deliberately using   the  words  “in  appropriate  cases”  because   we must  make  it clear  that  it is not  in every  case  where  there  is  a  breach  of  a  fundamental  right  committed  by the  violator   that  compensation  would be awarded  by the   court in a petition under Article 32.”

26. In the  case  of  Vishaka  v. State  of Rajasthan  [(1997)  6  

SCC 241, this Court held as under :

“Each  such  incident  results  in  violation  of  the  fundamental  rights  of “Gender  Equality”  and  the  “Right  to  Life  and  Liberty”.  It  is  a  clear  violation  of  the  rights  under  Articles   14,  15  and  21  of  the  Constitution.  One  of  the  logical  consequences  of  such  an   

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incident  is  also  the  violation  of  the  victim's  fundamental  right  under  Article 19(1)(g) “to   practise  any  profession  or  to  carry  out  any   occupation,  trade  or  business”.  Such  violations,  therefore,  attract  the  remedy  under  Article  32  for  the  enforcement  of  these  fundamental  rights  of  women.  This   class  action  under  Article  32  of  the   Constitution  is  for  this  reason.  A  writ  of   mandamus in such  a  situation,  if it is  to  be   effective,  needs  to  be  accompanied  by  directions  for  prevention,  as  the  violation  of  fundamental  rights  of this kind is a recurring   phenomenon.  The fundamental right to carry  on  any  occupation,  trade  or  profession   depends  on  the  availability  of  a  “safe”  working environment.  Right to  life means  life  with  dignity.  The  primary  responsibility  for  ensuring  such  safety  and  dignity  through   suitable  legislation,  and  the  creation  of  a   mechanism  for  its  enforcement,  is  of  the   legislature  and  the  executive.  When,   however,  instances  of  sexual  harassment   resulting in violation of fundamental rights  of  women workers  under Articles  14, 19 and 21  are  brought  before  us  for  redress  under   Article  32,  an  effective  redressal  requires   that some guidelines  should be laid down for  the  protection  of  these  rights  to  fill  the   legislative vacuum.

15. In  Nilabati  Behera  v.  State  of  Orissa a  provision  in  the  ICCPR  was  referred  to   support  the view taken  that  “an enforceable   right  to  compensation  is  not  alien  to  the   concept  of  enforcement  of  a  guaranteed   right”,  as  a  public  law remedy under  Article   32,  distinct  from the  private  law remedy in  torts.  There  is  no  reason  why  these   international  conventions  and  norms  cannot,  therefore,  be  used  for  construing   the  fundamental  rights  expressly  

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guaranteed  in  the  Constitution  of  India  which  embody the  basic  concept  of  gender   equality in all spheres  of human activity.

16. In view of the above, and the absence  of  enacted  law  to  provide  for  the  effective  enforcement  of  the  basic  human  right  of  gender  equality  and  guarantee  against   sexual  harassment  and  abuse,  more  particularly  against  sexual  harassment  at   workplaces,  we lay down the  guidelines  and   norms  specified  hereinafter  for  due   observance  at  all  workplaces  or  other   institutions,  until a  legislation  is enacted  for  the  purpose.  This  is done  in exercise  of the   power  available  under  Article  32  of  the   Constitution  for  enforcement  of  the   fundamental  rights  and  it  is  further   emphasised  that  this  would  be  treated  as   the  law declared  by this  Court  under  Article   141 of the Constitution.”

27. In the case  of Vineet Narain  v. Union of India [(1998)  1  

SCC 226], the Court held as under:-

“There  are  ample  powers  conferred  by  Article  32  read  with  Article  142  to  make  orders  which have the  effect  of law by virtue   of  Article  141  and  there  is  mandate  to  all  authorities  to act  in aid of the orders  of this   Court  as  provided  in  Article  144  of  the   Constitution.  In a catena  of decisions  of this   Court,  this  power  has  been  recognised  and   exercised,  if need  be,  by issuing  necessary  directions  to fill the vacuum till such time the   legislature  steps  in to  cover  the  gap  or  the   executive  discharges  its  role.  It  is  in  the   discharge  of  this  duty  that  the  IRC  was  constituted  by the  Government  of India  with  

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a  view to  obtain  its  recommendations  after   an in-depth  study of the  problem in order  to   implement  them  by  suitable  executive  directions  till  proper  legislation  is  enacted.   The report  of the  IRC has  been  given to  the   Government  of  India  but  because  of  certain   difficulties  in the  present  context, no  further   action  by the  executive  has  been  possible.   The study having been made by a Committee   considered  by the  Government  of India itself  as  an  expert  body,  it  is  safe  to  act  on  the   recommendations  of  the  IRC  to  formulate   the  directions  of  this  Court,  to  the  extent   they  are  of  assistance.  In  the  remaining   area,  on  the  basis  of  the  study  of  the  IRC  and  its  recommendations,  suitable   directions  can be formulated  to fill the entire   vacuum.  This  is  the  exercise  we propose  to   perform  in  the  present  case  since  this   exercise  can  no  longer  be  delayed.  It  is  essential  and  indeed  the  constitutional   obligation  of  this  Court  under  the  aforesaid   provisions  to  issue  the  necessary directions   in this  behalf.  We now consider  formulation   of the needed  directions  in the performance   of  this  obligation.  The  directions  issued   herein  for  strict  compliance  are  to  operate   till  such  time  as  they  are  replaced  by  suitable legislation in this behalf.”

28. In  the  case  of  University  of  Kerala  v.  Council  of   

Principals of Colleges, Kerala & Ors. [(2010)  1 SCC 353], this   

Court held as under :

“32. It may be  noted  that  this  Court  has  on  several  occasions  issued  directions,   directives  in  respect  of  those  situations   which  are  not  covered  by  any  law.  The  

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decision  in  Vishaka  v.  State  of  Rajasthan  is  one  such  instance  wherein  a  three-Judge   Bench  of  this  Court  gave  several  directions   to  prevent  sexual  harassment  of  women  at   the  workplace.  Taking  into  account  the   “absence  of  enacted  law”  to  provide  for  effective enforcement  of the  right  of gender   equality  and  guarantee  against  sexual  harassment,  Verma, C.J. held that  guidelines   and  norms  given  by the  Court  will hold  the   field  until  legislation  was  enacted  for  the   purpose.  It was  clarified  that  this  Court  was  acting  under  Article  32  of  the  Constitution   and  the  directions  “would be  treated  as  the   law declared  by the  Court  under  Article  141   of the Constitution”. (para 16)

33. Similarly,  the  Supreme  Court  issued   directions  regarding  the  procedure  and  the   necessary precautions  to  be  followed in the   adoption  of  Indian  children  by  foreign   adoptive parents.  While there  was no  law to  regulate  inter-country  adoptions,  Bhagwati,   J., (as  His  Lordship  then  was)  in  Laxmi Kant   Pandey  v.  Union  of  India ,  formulated  an  entire  scheme  for  regulating  inter-country  and  intra-country  adoptions.  This  is  an   example of the  judiciary filling up the  void by  giving  directions  which  are  still  holding  the   field.”

29. The  above  stated  principles  exhibit  the  scope  and   

width  of  the  power  of  this  Court  under  Article  32  of  the   

Constitution.   There is a clear mandate  of law for this Court   

to  protect  the  fundamental  rights  of  the  citizens.   

Infringements  of  rights  would  certainly  invite  the  Court’s   

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assistance.   The limitation of acceptability to justice will not   

come  in  the  way  of  the  Court  to  extend  its  powers  to   

ensure  due  regard  and  enforcement  of  the  fundamental   

rights.  The  absence  of  statutory  law  occupying  the  field  

formulating effective measures  to check  breach  of rights  is   

the true scope  of proper  administration  of justice.   It is the   

duty  of  the  Executive  to  secure  the  vacuum,  if  any,  by  

executive orders  because  its  field is coterminous  with that   

of the  Legislature  and  where  there  is inaction  even by the   

Executive,  for  whatever  reason,  the  Judiciary must  step  in,  

in  pursuance  of  its  constitutional  obligation  to  provide   

solution  in any case  till the  time the  Legislature  addresses   

the  issue.   The  courts  have taken  precaution  not  to  pass   

orders  even  within  the  ambit  of  Article  142  of  the   

Constitution  that  would amount  to  supplanting  substantive   

law  but  at  the  same  time  these  constitutional  powers   

cannot  in any way be controlled  by any statutory provision.   

The  absence  of  law and  a  vacuum or  lacunae  in  law can   

always  be  supplied  by  judicial  dictum.   In  some  cases,   

where the jurisdiction is invoked to protect  the fundamental   

rights  and  their  enjoyment  within the  limitation  of  law, the   

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Court  has  even stepped  in to  pass  orders  which may have  

the colour of legislation, till an appropriate  legislation is put   

in place.  The directions  of the Court could be relatable to a   

particular  lis between  the  parties  and  even  could  be  of  a   

generic  nature  where  the  facts  of  the  case  called  for.   

There  can  be cases  like the  one  in hand  where there  is no   

infringement  of  a  specific  legislation  or  even  where  no   

legislation  is in place  but  are  purely cases  of infringement   

of  fundamental  rights  and  their  violation .   The  directives  

are  needed  to  protect  them and  to  ensure  that  the  State   

discharges  its  obligation  of  protecting  the  rights  of  the   

people  as  well as  the  environment.   The deficiencies  in the   

aforementioned  fields  are  not  deficiencies  simplicitor but  

have  far  reaching  consequences  of  violating  the   

fundamental  protections  and  rights  of the  people  at  large.   

It  is  the  obligation  of  the  State  to  provide  safety,  health   

care,  means  to  freely move and  to  profess  the  religion  in  

the  manner  as  they  desire  insofar  as  it  is  within  the   

limitations  of law.  

30. Certainly some development  projects  would have to be   

undertaken  but  without  infringing  on  the  protection  to  the   56

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forests  or  the  environment.   These  are  ecologically  and   

climatically  sensitive  areas.   It  must  be  ensured  that   

development  does  not  impinge  upon  the  purity  of  the   

environment  beyond  restricted  and  permissible  limits.   The  

doctrine  of  sustainable  development  and  precautionary  

principle  would  be  the  guiding  factors  for  the  courts  to   

pass  such  directions.   We had  the  advantage  of having an   

Expert Committee Report before us, which recommends  the   

various  steps,  development  programmes  and  precautions   

that  can  be undertaken  by the Government  and the Shrine   

Board to the advantage  of all stakeholders,  particularly the   

pilgrims.   Thus,  the  directions  we  contemplate  to  issue   

under  this  order  are  in conformity with these  legal  maxims  

and are likely to cause  no practical issues.

31. Applying  these  principles  to  the  facts  of  the  present   

case,  it  is  apparently the  constitutional  obligation  of  this   

Court to issue  specific directions  in addition or which are to   

be read mutatis mutandis to the Report of the SHPC.  In the   

above  background,  it  is  axiomatic  for  us  to  issue  the   

following directions  :

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1) The report  of the  SHPC is hereby accepted  in terms   

of this judgment.

2) The recommendations  contained  in the  report  shall   

be  read,  construed  and  applied  in  aid  to  the   

directions  of  this  Court  and  not  in  derogation   

thereto.

3) All  the  recommendations  contained  in  the  report   

shall  be  implemented  under  two  different  heads,   

i.e.,  ‘short-term  measures’  and  ‘long-term  

measures’.   This categorization shall be made by the   

Sub-Committee consisting of the following :

a. Chief  Secretary  of  the  State  of  Jammu  and   

Kashmir;

b. Secretary,  Home,  State  of  Jammu  and  Kashmir;  

and

c. CEO of the Amarnathji Shrine Board.

4) Steps  in  relation  to  health  care,  improvement  of  

walking  tracks,  providing  of  pre-fabricated  toilets,   

tents,  pre-fabricated  walking  path/mats,   

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construction  of  STPs  and  providing  of  one  way  

tracks  shall be treated  as short-term measures.

5) We hereby direct  the  Chief Secretary of every State   

to  notify the  hospitals  and  medical officers  in those   

hospitals  who  shall  issue  health  certificates  to  all  

the  persons  who  are  desirous  of  going  for  yatra  

henceforth.   The  authorities  shall  place  such   

notification  in  the  public  domain  and  give  it  due   

publicity.  These  certificates  shall  be  issued  free  of  

cost.

6) We direct  the  Chief Secretary and  Secretary, Health   

of  each  respective  State,  particularly,  the  State  of  

Uttar  Pradesh,  Haryana,  Punjab,  Rajasthan,   

Himachal Pradesh  and Union Territory of Chandigarh   

to  depute  such  number  of  doctors  during  the   

relevant  period  to  the  State  of  Jammu and  Kashmir  

for ensuring  due health  care  of the pilgrims, as  may  

be necessary.   

7) The  State  of  Jammu and  Kashmir shall  write  to  the   

Chief  Secretaries/Secretaries,  Health  of  each  State   

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by 30 th of  April of  every year,  making  requisition  for  

the number of doctors  and the area of specialization   

from  which  such  doctors  are  required.   The  

concerned  State  shall  inform  the  Chief  

Secretary/Secretary,  Health  and  the  Director   

General  of  Health  Services  of  the  State  of  Jammu  

and Kashmir by 30 th May of the year, the names  with  

specialization  of  the  doctors  who  have  been   

deputed  for the  yatra  period  at  the  State  of Jammu  

and  Kashmir  and  actually  direct  and  inform  the   

concerned  doctors  of  their  ‘temporary  duty’,  in  

public  interest,  with  the  State  of  Jammu  and   

Kashmir.

8) The  medical  teams  shall  be  deployed  en  route  to  

the  Holy Cave at  a  regular  distance  not  exceeding   

two kilometers.    

9) The State  of Jammu of Kashmir and the Shrine Board   

shall  provide  infrastructure,  equipment,  medicines   

and  all other  ancillary items thereto  to  the  medical   

teams  to  ensure  that  the  pilgrims can  be  provided   

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adequate  treatment  without  any  loss  of  time.  

Largest  number  of medical  teams  shall be  deputed   

at  the  glacier  and  the  passage  near  the  Holy  

Shrine.   

10) The  State  of  Jammu  and  Kashmir  shall  make  due   

provision  for  providing  lodging  and  boarding  to   

doctors  on  ‘temporary  duty’  and  ensure  that  they  

are  not  put  to  any inconvenience,  in  any respect,   

whatsoever.   

11) The  State  of  Jammu  and  Kashmir  and  the  Shrine   

Board  shall  make  due  provision  for  registration  of  

the  yatris as  proposed  in the  report  and  preferably  

at Srinagar,  Baltal, Chandanvadi, Panchtarni, etc.

12) The  STPs  shall  be  constructed  at  all  places,   

particularly  at  Baltal.   Clearance  for  that  purpose   

shall  be  granted  by all the  concerned  departments   

expeditiously  and  in  accordance  with  law.   This  

direction  of  the  Court  shall  be  complied  with  

notwithstanding  the  pendency  of  any  litigation   

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before  any Court,  including the  High Court of Jammu  

and Kashmir.

13) The request  of the applicant M/s. Piramal Healthcare   

Pvt.  Ltd.  (In  I.A.  No.  4  of  2012)  for  providing  pre-

fabricated  tents  or  toilets  or  such  other  material   

which  they  may chose  to  offer  or  desired  by  the   

authorities,  shall be considered  by the Shrine Board   

in  its  discretion.   However,  we  observe  that  the   

request  of  the  applicant  should  be  considered   

sympathetically and objectively.

14) The walking track/passages  should  be  widened  and   

railing  and  retaining  walls  be  provided.   The  extent   

of width of the passage  and manner of providing the   

railing  (thick  iron  cables  supported  by  wooden   

blocks  or  cement  and  stone)  shall  be  in  the   

discretion  of  the  Sub-Committee  afore-constituted.   

But, we make it clear  that  width of no passage  shall   

be  less  than  12  feet,  particularly, that  of  the  track   

leading from Panchtarni to the Holy Shrine.   

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15) Neither  have  we  directed  nor  should  we  be  

understood  to  have  implicitly  directed  that  there   

should  be  mettled  motorable  road  in  place  of  the   

walking tracks/passages.

16) There  shall  be  provided  separate  one  way passage   

for  palkis and  horses  as  one  unit  and  the   

pedestrians  as  the  other,  near  to  and  at  the   

passages  leading  to  the  Holy Shrine.   Preferably on   

this  passage  pre-fabricated  walking  path/matting   

should be provided.

17) All other  walking  tracks  from various  other  points,   

like  Baltal,  Panchtarni  and  Chandanvadi  may  be   

covered  either  by pre-fabricated  rough  cement  tiles   

or  such  other  material,  which  in the  opinion  of  the   

SHPC,  would be  most  appropriate  for the  benefit  of  

the pilgrims.

18) Attempt  should  be  made  to  construct  shelters  on   

the  passage/walking  paths  at  regular  intervals.   

Temporary/pre-fabricated  shelters  should  certainly  

be  provided  near  the  Holy  Shrine  where  large   

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number of persons  collect  and  have to wait for long   

hours  for darshan .   

19) At  the  Holy  Cave,  the  existing  grill  should  be   

replaced  by 100  per  cent  transparent  fiber  or  any  

other  material  to  ensure  that  the  darshan  to  the  

shivlingam is  not  visually  obstructed.   In  the   

alternative,  the  iron  grills,  as  installed  can  be   

permitted,  but  the  gaps  between  the  parallel  bars,   

which are perpendicular  to the earth,  should  not  be   

less  than  12  inches,  as  they would help  in giving a   

clear  visual  darshan  of  the  shivlingam  and  the  shiv  

parivar.   

The implementation  of the above suggestion  should   

be left to the wisdom of the Sub-Committee.

20) The  Sub-Committee  constituted  under  this  order   

shall be at liberty to consult or obtain opinion of any  

expert  body,  as  it may deem fit and  proper,  in the   

facts  and circumstances.

21) All the  above  directions  and  the  recommendations   

made  in the  report  of  the  SHPC  should  be  carried   64

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out  by all concerned  without  demur  or  protest  and   

expeditiously.   We make  it clear  that  any officer  of  

any  State  irrespective  of  his  position  in  the  State   

hierarchy  shall  personally  be  held  liable  and   

proceeded  against  in  the  event  of  default  and/or   

violation  of  the  above  directions/  recommendations   

of the SHPC.   

22) The  Chief  Secretary,  Secretary,  Health  of  the  State   

of  Jammu and  Kashmir  and  the  CEO of  the  Shrine   

Board  shall  personally  be  responsible  and   

answerable  for  strict  compliance  of  the   

recommendations  of  the  report  of  SHPC  and/or   

directions  as  contained  in this  judgment.   Since  we  

are  holding  the  Sub-Committee  personally liable  for   

compliance  of  the  order  of  the  Court,  we  grant   

liberty to  this  Sub-Committee  to  seek  clarification,  if  

any, at any time.

23) The  Sub-Committee  is  also  given  liberty to  bring  to   

the  notice  of  this  Court  if  any  authority/officer/the   

Government fails to render the required help or take   

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desired  action and/or  is instrumental in violating the   

orders  and directions  of the Court.

32. We  will be  failing  in  our  duty  if  we  do  not  place  on   

record  our  appreciation  for  the  valuable  assistance   

rendered  by various  counsel  appearing  in the  case  as  well  

as  for  the  positive  and  progressive  approach  adopted  by  

the  State  of  Jammu  and  Kashmir  as  well  as  the  Shrine   

Board.   We  must  also  place  on  record,  our  special   

commendations,  for the echt efforts  made by the SHPC with  

utmost  tenacity  and  verve  and  also  for  its  expeditious   

recommendations  under  the  Chairmanship  of the  Governor   

of Jammu and Kashmir.

33. Before  we part  with the  file, we express  a  pious  hope   

that  this  judgment  shall  serve  a  larger  public  purpose.   It  

will provide  a  fair  opportunity to  the  pilgrims  to  complete   

their  yatra  to  the  Holy Cave with human  dignity, safety to   

their lives and with basic amenities  being provided to them.  

We have no doubt  in our mind that  the State  of Jammu and   

Kashmir and the Shrine Board shall endeavour their best  to   

implement  this  judgment  in its true  spirit and  substance  in  

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the larger interest  of public as  well as  to uphold the rule of   

law.

34. The petition is accordingly disposed  of.

             ………………………………...J. (Dr. B.S. Chauhan)

..……...….………….................J.              (Swatanter  Kumar)

New Delhi, December 13, 2012

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