Mrinalini Sharma v. State of U.T. Chandigarh and Anr

o o 2023:PHHC:140228o o o ooooooINoTHEoHIGHoCOURToOFoPUNJABoANDoHARYANAo AToCHANDIGARHoo o o o o o o o o oooooo o o o o o o o o o oooCWP-21023-2022o ooooooooooooooooooooooooooooJUDGEMENToRESERVEDoONooo:29.05.2023o oooooooooooooooooooooooooooooooooooooooooooJUDGEMENToPRONOUNCEDoON:oo22.08.2023oooooo o MRINALINIoSHARMAo o o o o o o .......Petitioneroo o o o o o o o VERSUSo o STATEoOFoU.T.oCHANDIGARHoANDoANOTHERoooooooooooooooo.......Respondentso o o CORAMo:oHON'BLEoMR.oJUSTICEoVINODoS.oBHARDWAJo o o o o o o *****o o Present:-oo Mr.oJasdevoSinghoMehndiratta,oAdvocateoo o o forotheopetitioner.o o o o Mr.oAravoGupta,oAdvocateoo o o forotheorespondentoNo.1-U.T.oChandigarh.oo o o o Mr.oShubhamoChaudhary,oAdvocateowithoo o o Mr.oParminderoS.oKaul,oAdvocateoforoo o o Mr.oSanjivoGhai,oAdvocateoo o o fororespondentoNo.2-U.T.oChandigarh.oo oo o o o o *****oo o VINODoS.oBHARDWAJ,oJ.oo o

1.o o Theo prayero ino theo presento petitiono iso foro seekingo issuanceo ofo directionsotootheorespondentotootakeoimmediateostepsotoocurbotheomenaceoofo strayodogsowithinotheoterritorialojurisdictionoofoUnionoTerritory,oChandigarho andotooensureothatotheolawsoareoimplementedowithopromptitude.oAofurthero prayeroofocompensationoforotheoinjuryocausedoasowelloasomentaloandophysicalo traumaosufferedobyotheopetitionerodueocanineoattackowhileojoggingoinoaoParko inoSector-16,oChandigarhoisoalsooclaimed.oo

2.o o Theopetitioner,owhooisoaoNationaloLeveloTennisoPlayeroandohaso o oooCWP-21023-2022o o o o o o o o oo-2-o o o beenoplayingoforomoreothano15oyearsowithoanoAlloIndiaoRankingoofo216ohaso approachedothisoCourtoforosufferingoaocanineoattackowhileojoggingoinoShantio Kunj,o (parko maintainedo byo theo Municipalo Corporation),o Sector-16,o Chandigarh.oTheopetitionerohasobeenoconcentratingoonotrainingoforomakingoao markoinosports.oHeroparentsoputoawayotheiroflourishingocareeroinotheocorporateo sectorotooconcentrateoonotheoTennisotrainingoofotheopetitioneroandoheroyoungero sisterobyoappointingointernationaloCoachesoforotheobestopossibleotrainingoofo theopetitioner.oAsoperotheohierarchyoofotournamentsoofoTennisoinoIndia,othereo areo certaino categorieso whicho areo "TS"i.e.o Talento Serieso followedo byo "CS"i.e.o Championshipo Serieso ando thereaftero theo levelo "SS"i.e.o Supero Seniors,o highero too ito iso Nationalo Serieso i.e.o "NS"ando ato theo topo ofo theo pyramidoisotheo"Nationals"o(OpenoNationals).oTheopetitionerohasoparticipatedo inotheohighestoleveloofotournamentsoinotheocountry.oVariousocertificatesowono byoheroinotheoaboveosaidotournamentsohaveobeenoattached.oo

3.o o Theoincidentoinoquestionotookoplaceoono28.08.2022,owhenotheo petitionerohadogoneoforojoggingotooShantioKunj.oTheodogsoattackedoherofromo behindoandocausedobiteoinjuriesoonobothoherocalvesoresultingoinoGrade-IVodogo bites.o Sheo waso immediatelyo takeno too theo Governmento Multi-specialityo Hospital,oSector-16,oChandigarhoforotreatment.oSheowasotestedoandowasofoundo allergicotooanti-rabiesoserumoderivedofromoanimals.ooTheoanti-rabiesoserumo (Human)o hado too beo thereaftero arrangedo personallyo aso theo sameo waso noto readilyoavailableoinotheoHospital.oTheofatheroofotheopetitioneromadeostrenuouso effortsoandoitowasothenothatotheosaidoserumocouldobeoprocuredoafteroabouto04o hours.oTheoscaleoofoinjuriesoisofromo1otoo6owhere,osixoisofatal,otheoinjurieso sufferedobyotheopetitionerowasocategorizedoasoGrade-IV.oTheophotographsoofo o oooCWP-21023-2022o o o o o o o o oo-3-o o o theoinjuryosufferedobyotheopetitionerohaveobeenoattachedoasounder:-o

o o

o

o o oooCWP-21023-2022o o o o o o o o oo-7-o o o

4.o o Theoinjury,ohowever,odidonotohealoasotheorabidodogsohadopullo awayofleshofromotheocalvesoleavingoaogapingoholeowhichofurtheroledotoopuso formationo ino theo wound.o Aso theo paino dido noto reduceo ando conditiono deteriorated,otheopetitionerowasotakenotooPGIMER,oChandigarhowhereotheo doctorsoinformedothatotheostitchingoofotheoinjuryobyotheoGovernmentoMedicalo Hospitalo waso impropero ando theo woundo oughto too haveo beeno kepto open.o Sampleso wereo drawno fromo theo puso ando wereo sento foro checko upo ando theo petitioneroisocontinuouslyoconsumingoanti-bioticsosinceo28.08.2022oevenotillo theo dateo ofo filingo ofo theo petitiono beforeo thiso Courto ono 12.09.2022.o Theo petitionerothusoapproachedothisoCourtoforoseekingocompensationonotoonlyoforo theotraumaocausedotooherobutoalsooonoaccountoofofailureobyotheorespondentsoino dischargingotheiroobligationsoasoperotheostatue.oo

5.o o ReplyobyowayoofoaffidavitoofoIshaoKamboj,oJointoCommissioner,o MunicipaloCorporation,oChandigarhohadobeenofiledowhereoinotheomeasureso takenobyotheoMunicipaloCorporation,oChandigarhohaveobeenodetailed.oItowaso alsoomentionedothatoaoDivisionoBenchoofothisoCourtoinoCWP-18253oofo2009o hado issuedo variouso directionso video ordero datedo 02.03.2020o foro managingo strayodogs,osomeowhichoareoextractedoasounder:-o o "N.oAllotheodogoownersoareorequiredotooregisterotheirodogso withotheoMunicipaloAuthorities.oTheoMunicipaloAuthoritiesoareo requiredotooissueotokens.oTheoownersoofotheodogsomustoensureo thatotheodogs'opoopomustobeopickedoup/removedoandoputoinoao bag/containerotoobeodisposedoofoatohomeoinoaohygienicomanner.o O.o Theo Municipalo Authoritieso ino theo Stateo ofo Punjab,o Haryanao ando UTo Chandigarho Authoritieso areo directedo too constructo4/5odogopoundsoinotheirojurisdictionotoohouseotheostrayo dogs.oTheoStatesoofoPunjab,oHaryanaoandoUToChandigarhoareo directedotoostrictlyoenforceotheoprovisionsoofotheoPreventionoofo o oooCWP-21023-2022o o o o o o o o oo-8-o o o CrueltyotooAnimalso(DogoBreedingoandoMarketing)oRules,o2017.o AllotheodogobreedersoinotheoStatesoofoPunjab,oHaryanaoandoUTo Chandigarhoshouldobeoregistered.oTheobreedingoofodogsowithouto registrationoisobanned.o P.o Allotheodogsobeingotakenotoostreets/roadsomustobeocollaredo besidesobeingoleashed.oTheoMunicipaloAuthoritiesoshallomaintaino theo recordo ofo allo theo licensedo dogso withino ao periodo ofo threeo monthsofromotoday.o Q.oo Theocaretakersoofodogopoundsowouldoensureotooprotectotheo dogsofromoextremeoweatheroconditionsoandotoomaintainopropero ventilationoandoalsootooprovideoappropriateospace.oAllotheodogso shouldobeovaccinatedoandoshouldobeokeptoinocleanoenvironment.o Theo surfaceo ofo theo dogo poundo shouldo beo cleanedo regularly.o Thereoshouldobeoproperodrainageoandowasteodisposal.oItoshouldo beotheodutyo ofotheo Administrationotoo provideo uncontaminatedo ando palatableo foodo ino sufficiento quantity.o Theo dieto shouldo beo sufficientoaccordingotootheoageoandohealthoofodogs.oAllotheodogso kepto ino theo poundso shouldo beo vaccinatedo againsto rabieso preferablyo alsoo againsto canineo distemper,o parvovirus,o leptospirosisoandoviralohepatitis."o o

6.o o Itowasoalsoomentionedothatotheostrayodogsocannotobeoimpoundedo foromoreothanoaoreasonableotimeoperiodoandothatoafterotheirotreatmentoando recoveryotheyohaveotoobeoreleasedobackotootheirolocalityofromowhereotheyo wereocapturedoasoperotheoAnimaloBirthoControlo(Dogs)oRules,o2001oandotheo provisionsoofotheoPreventionoofoCrueltyotooAnimalsoAct,o1960.oItowasofurthero claimedothatoinofurtheranceotooorderodatedo31.10.2012opassedobyothisoCourtoino CWP-9902oofo2012,oaoschemeoforomanagementoofostrayodogsoinotheoUniono Territory,oChandigarhowasoframedoino2012oandoeffectiveostepsoforocontrollingo theomenaceoareobeingoundertakenobyotheoUnionoTerritory,oChandigarhoandoforo managingo populationo ofo strayo dogs.o Theo NGOo Compassiono foro Animalo o oooCWP-21023-2022o o o o o o o o oo-9-o o o WelfareoAssociationo(CAWA)ohasobeenoengagedoinotheoworkoofocatching,o sterilization,oOperations,oAnti-RabiesoVaccinations,oPost-OperativeoCareoando ReleaseoofoDogs.oItohasoalsoobeenoaverredothatoasoperotheoCensuso2018,otheo tentativeostrayodogopopulationowaso12,922.oAoreferenceowasoalsoomadeotootheo SLPoNo.o691oofo2009owhereinotheoHon'bleoSupremeoCourtoofoIndiaohasovideo itsoorderodatedo18.11.2015,orequestedoallotheoHighoCourtsonototoopassoanyo ordersorelatingotootheoPreventionoofoCrueltyotooAnimaloAct,o1960ooandotheo BirthoControlo(Dogs)oRuleso2001.oo

7.o o Ao shorto replyo ofo Dr.o Suman,o Director,o Healtho ando Familyo WelfareoDepartment,oChandigarhoAdministrationohasoalsoobeenofiledowhereino itoisoaverredothatoafterotheounfortunateoincidentoofodogobiteosufferedobyotheo petitioner,o sheo waso attendedo expeditiouslyo byo theo medicalo staffo withouto undueodelayoandotheotreatmentowasoextended.oTheomedicaloprotocolowhicho waso requiredo too beo followedo waso alsoo adheredo to.o Aso pero theo medicalo protocolo onlyo theo equineo serumo waso availableo ando aso theo petitionero waso allergicotootheosaidoequineoserum,oattendantsoofotheopetitionerowereoaskedotoo bringoanti-rabiesoplasmaoserumoandouponotheosameobeingoarranged,oitowaso administeredotootheopetitioner.oTheoAdministrationohad,ohowever,osubmittedo theocaseowhichowasoidentifiedoasoaocategoryoIIIodogobite.oAorejoinderowaso filedobyotheopetitioneroinowhichoreferenceowasomadeotootheomedicaloreportotoo substantiateothatoitowasodiagnosedoasoaocaseoofoGrade-IVodogobite.oReferenceo too theo medicalo reporto ando theo treatmento extendedo byo theo PGIMER,o Chandigarhowasoalsooattachedowhichotooohadoproceededotootreatotheopetitionero asoaoGrade-IVoinjuryocase.oo

8.o o Ao rejoindero too theo writteno statemento filedo ono behalfo ofo theo o oooCWP-21023-2022o o o o o o o o oo-10-o o o MunicipaloCorporation,oChandigarhowasoalsoofiledowhereinoitowasopointedo outothatosufficient,oeffectiveoandonecessaryostepsohaveonotobeenotakenobyotheo MunicipaloCorporation,oChandigarhoforocontrollingotheomenaceoofodogsoando havingo beeno attackedo byo ao packo ofo dogso ino ao parko maintainedo byo theo MunicipaloCorporation,oChandigarhoitselfoshowsolaxityoinotheiroapproachoando volumesoaboutotheonegligance.oo 9o o Counseloforotheopetitionerohasoarguedothatounderotheoprovisionso ofoPreventionoofoCrueltyotooAnimaloAct,o1960,otheorulesoframedothereundero ando alsoo theo Municipalo laws,o theo obligationo iso casto upono theo Municipalo CorporationoasowelloasotheoGovernmentotooensureothatoeffectiveomechanismoiso putoinoplaceosoothatotheomenaceocanobeocheckedoandotheocitizensoareonoto subjectedotooattacks/injuriesobyostray/rabidodogs.oTheonatureoofoinjuriesoaso welloasotheonumberoofoinjuriesospeakoforothemselvesothatotheorespondents-authoritiesomiserablyofailedotoodischargeotheiroobligationsoandothatotheyoareo thusoliableotooprovideocompensationotootheopetitioner.oo

10.o o Onotheootherohand,ocounseloforotheorespondentsohaveoreiteratedo theo provisionso ofo theo Acto ando Ruleso ando haveo submittedo thato sufficient,o adequateoandoappropriateomechanismoandomedicaloproceduresohaveobeenoputo inoplaceobyotheorespondentsotoocheckotheomenaceoofostrayoanimaloandothato thereowasonoolaxity.ooo

11.o o Io haveo heardo learnedo counselo appearingo ono behalfo ofo theo respectiveopartiesoandohaveogoneothroughotheopleadingso&odocumentsoplacedo onorecord.oo

12.o o Beforeoproceedingofurther,osomeoofotheorelevantoprovisionsoofo theoPreventionoofoCrueltyotooAnimaloAct,o1960ooandotheorulesoasowelloasotheo o oooCWP-21023-2022o o o o o o o o oo-11-o o o bye-lawsoframedobyotheoMunicipaloCorporation,oChandigarhoareoextractedoaso under:-o o o PreventionoofoCrueltyotooAnimaloAct,o1960o "9.oFunctionsoofotheoBoard.-Theofunctionsoofotheo Boardoshallobe-o

(a)oo tookeepotheolawoinoforceoinoIndiaoforotheopreventiono o ofo crueltyo too animalso undero constanto studyo ando o adviseotheoGovernmentoonotheoamendmentsotoobeo o undertakenoinoanyosucholawofromotimeotootime;o

(b)oo tooadviseotheoCentraloGovernmentoonotheomakingoofo o ruleso undero thiso Acto witho ao viewo too preventingo o unnecessaryopainoorosufferingotooanimalsogenerally,o o ando moreo particularlyo wheno theyo areo beingo o transportedoofromo oneo placeo too anothero oro wheno o theyoareousedoasoo performingo animalso oro wheno o theyoareokeptoinocaptivityooroconfinement;o e)oo tooadviseotheoGovernmentooroanyolocaloauthorityooro o othero persono ono improvementso ino theo designo ofo o vehicleso soo aso too lesseno theo burdeno ono draughto o animals;o

(d)o otootakeoallosuchostepsoasotheoBoardomayothinkofitoforo o ameliorationo ofo animalso byo encouraging,o oro o providingo for,o theo constructiono ofo sheds,o water-o o troughso ando theo likeo ando byo providingo foro o veterinaryoassistanceotooanimals;o

(e)oo tooadviseotheoGovernmentooroanyolocaloauthorityooro o otheropersonoinotheodesignoofoslaughter-housesooroino o theo maintenanceo ofo slaughter-houseso oro ino o connectiono witho slaughtero ofo animalso soo thato o unnecessaryopainoorosuffering,owhetherophysicalooro o mental,oisoeliminatedoinotheopre-slaughterostagesoaso o faroasopossible,oandoanimalsoareokilled,owherevero o oooCWP-21023-2022o o o o o o o o oo-12-o o o o necessary,oinoasohumaneoaomanneroasopossible;o

(f)o tootakeoallosuchostepsoasotheoBoardomayothinkofitotoo o ensureo thato unwantedo animalso areo destroyedo byo o localoauthorities,owheneveroitoisonecessaryotoodooso,o o eithero instantaneouslyo oro aftero beingo renderedo o insensibleotoopainoorosuffering:o

(g)o tooencourage,obyotheograntoofofinancialoassistanceo o oro otherwiseo theo formationo oro establishmento ofo o pinjrapoles,o rescueo homes,o animalo shelters,o o sanctuariesoandotheolikeowhereoanimalsoandobirdso o mayofindoaoshelterowhenotheyohaveobecomeooldoando o uselessoorowhenotheyoneedoprotection:o

(h)oo too co-operateo with,o ando co-ordinateo theo worko of,o o associationsoorobodiesoestablishedoforotheopurposeo o ofo preventingo unnecessaryo paino oro sufferingo too o animalsooroforotheoprotectionoofoanimalsoandobirds;o

(i)oo too giveo financialo ando othero assistanceo too animalo o welfareoorganisationsofunctioningoinoanyolocaloareao o orotooencourageotheoformationoofoanimalowelfareo o organisationsoinoanyolocaloareaowhichoshalloworko o underotheogeneralosupervisionoandoguidanceoofotheo o Board;o

(j)oo tooadviseotheoGovernmentoonomattersorelatingotootheo o medicalocareoandoattentionowhichomayobeoprovidedo o inoanimalohospitals,oandotoogiveofinancialoandoothero o assistanceotooanimalohospitalsowheneverotheoBoardo o thinksoitonecessaryotoodooso;o

(k)oo too imparto educationo ino relationo too theo humaneo otreatmento ofo animalso ando too encourageo theo oformationoofopublicoopinionoagainstotheoinflictionoofo ounnecessaryopainoorosufferingotooanimalsoandoforo theo promotiono ofo animalo welfareo byo meanso ofo lectures,o books,o posters,o cinematographico exhibitionsoandotheolike;o o oooCWP-21023-2022o o o o o o o o oo-13-o o o l)oo tooadviseotheoGovernmentoonoanyomatteroconnectedo o withoanimalowelfareoorotheopreventionoofoinflictiono o ofounnecessaryopainoorosufferingoonoanimals.o "11.oo Treatingoanimalsocruelly.-o o

(1)ko oXxxo o xxo xxxo xxxo

(2)ko o Xxxo o xxxxo

(3)oo Nothingoinothisosectionoshalloapplyoto-o

(a)oo theo dehorningo ofo cattle,o oro theo castrationo oro o brandingo oro nose-ropingo ofo anyo animal,o ino theo o prescribedomanner;ooro

(b)o theodestructionoofostrayodogsoinolethalochambersooro o [byo sucho othero methodso aso mayo beo prescribed];o o oro

(c)oo theo exterminationo oro destructiono ofo anyo animalo o underotheoauthorityoofoanyolawoforotheotimeobeingoino o force;ooro

(d)oo anyomatterodealtowithoinoChapteroIV;ooro

(e)oo theo commissiono oro omissiono ofo anyo acto ino theo ocourseo ofo ao destructiono oro theo preparationo foro destructiono ofo anyo animalo aso foodo foro mankindo unlesso sucho destructiono oro preparationo waso accompaniedobyotheoinflictionoofounnecessaryopaino orosuffering.o Sectiono 38o ofo theo 1960o Acto conferso powerso upono theo UnionoGovernmentotooframeorulesoforoallooroanyoofotheo matterso enumeratedo ino theo Act.o Subo Clauseo (ea)o waso addedoinoSectiono38o(2)ovideoAmendmentoActoNo.26oofo 1982,owhichoreadsoasounder:o "38.oPowerotoomakeorules-o

(1)oxo o xo o xo

(2)o(a)otoo(e)oxo o xo

(ea)otheootheromethodsoofodestructionoofostrayodogso o referredo too ino clauseo (b)o ofo sub-sectiono (3)o ofo o oooCWP-21023-2022o o o o o o o o oo-14-o o o o sectiono11."o o

13.o o oIno exerciseo ofo powerso undero Sectiono 38o ofo theo 1960o Act,o Animalo Birtho Controlo (Dogs)o Rules,o 2001o wereo framedo byo theo Uniono Government.oAsoperotheoaboveoRulesoofo2001,odogsohaveobeenoclassifiedointootwoo categorieso i.e.,o peto dogso ando streeto dogs.o Ruleo 4o provideso foro theo formationo ofo Monitoringo Committeeo consistingo ofo Commissioner/o Chiefo ofo theo Localo AuthoritiesowhooshalloactoasotheoChairpersonoofotheoCommittee.oSevenomoreo representativeso haveo too beo thereo ino theo Committee.o Ruleo 5o stipulateso theo functionsoofotheoCommittee.oFurther,oRuleo6ocastsoobligationouponotheolocalo authoritiesoforotheoestablishmentoofodogopoundsoandomakeoarrangementsoforo sterilisationoandoimmunisationoofostreetodogs.oRuleo7oprovidesoforocapturing,o sterilisation,o immunisationo ando releaseo ofo theo dogs.o Ruleo 9o provideso foro euthanasiaoofostreetodogsoinocertainoconditions.oRuleo10odealsowithofuriousooro dumborabidodogs.o AnimaloBirthoControlo(Dogs)oRules,o2001o

2.oo Definitiono o Xxo xxxo xxxo xxxo xxxo xxxo xxxo xxxo o (e)o "localo authority"o meanso ao municipalo committee,odistrictoboardoorootheroauthorityoforotheotimeo beingoinvestedobyolawowithotheocontroloandoadministrationo ofoanyomattersowithinoaospecifiedolocaloarea;o o Xxo xxxo xxxo xxxo xxxo xxxo xxxo xxxo xo

5.o Functionso ofo theo Committee:o Theo committeeo constitutedounderoruleo4oshallobeoresponsibleoforoplanningo ando managemento ofo dogo controlo programmeo ino accordanceowithotheseorules.oTheocommitteeomayo

(a)oo issueo instructionso foro catching,o transportation,o o sheltering,osterilisation,ovaccination,otreatmentoando o releaseoofosterilizedovaccinatedoorotreatedodogs.oVISHAL SHARMA o oooCWP-21023-2022o o o o o o o o oo-15-o o o

(b)o oauthorizeoveterinaryodoctorotoodecideoonocaseotoo o caseobasisotheoneedotooputotoosleepocriticallyoillooro o fatallyoinjuredoororabidodogsoinoaopainlessomethodo o byo usingo sodiumo pentathol.o Anyo othero methodo iso o strictlyoprohibited.o

(c)oo createopublicoawareness,osolicitoco-operationoando o funding.oo

(d)o oprovideo guidelineso too peto dogo ownerso ando o commercialobreedersofromotimeotootime.o

(e)o ogetoaosurveyodoneoofotheonumberoofostreetodogsobyo o anoindependentoagency.o

(f)o otakeosuchostepsoforomonitoringotheodogobiteocaseso tooascertainotheoreasonsoofodogobite,otheoareaowhereo itotookoplaceoandowhetheroitowasofromoaostrayooroao petodogo o(g)oo Keepo ao watcho ono theo nationalo ando internationalo o developmentoinotheofieldooforesearchopertainingotoo o streetodogs'ocontroloandomanagement,odevelopmento o ofo vaccineso ando costo effectiveo methodso ofo o sterilization,ovaccination,oetc.o

6.o Obligationsoofotheolocaloauthority:o o(1)oo Theolocaloauthorityoshalloprovideoforo

(a)o establishmento ofo ao sufficiento numbero ofo dogso o poundso includingo animalo kennels/shelterso whicho o mayobeomanagedobyoanimalowelfareoorganizations;o

(b)oo requisiteonumberoofodogovansowithorampsoforotheo o captureoandotransportationoofostreetodogs.o

(c)oo oneo drivero ando twoo trainedo dogo catcherso too beo o providedoforoeachodogovano(d)oanoambulanceocumo o clinicalo vano too beo providedo aso mobileo centero foro o sterilisationoandoimmunization;o

(e)o oincineratorsotoobeoinstalledobyotheolocaloauthorityo forodisposaloofocarcasses;o

(f)o operiodicorepairoofoshelterooropound.o o oooCWP-21023-2022o o o o o o o o oo-16-o o o

(2)o oIfotheoMunicipaloCorporationoorotheolocaloauthorityo o thinksoitoexpedientotoocontrolostreetodogopopulation,o o ito shallo beo incumbento upono themo too sterilizeo ando o immunizeo streeto dogso witho theo participationo ofo o animalo welfareo organizations,o privateo individualso o andotheolocaloauthority.o o(3)o Theo animalo welfareo organizationso shallo beo o reimbursedo theo expenseso ofo sterilization/o o immunizationo ato ao rateo too beo fixedo byo theo o Committeeo ono fortnightlyo basiso basedo ono theo o numberoofosterilization/immunizationodone.o

7.oCapturing/sterilization/immunization/release:o o(1)oo Capturingoofodogsoshallobeobasedoon:o

(a)oo Specificocomplaintso(forowhichotheolocaloauthorityo o ino consultationo witho theo Monitoringo Committeeo o shallosetoupoaodogocontrolocellotooreceiveocomplaintso o abouto dogo nuisance,o dogo biteso ando informationo o aboutorabidodogs)oandoo

(b)o oGeneralo:-o

(i)oo Onoreceiptoofospecificocomplaintoaboutonuisanceooro o dogo biteo theo sameo shallo beo attendedo ono priorityo o basis,o irrespectiveo ofo theo areao fromo whicho theo o complaintocomes.oOnoreceiptoofosuchocomplaintotheo o detailso sucho aso nameo ofo theo complainant,o hiso o completeo address,o dateo ando timeo ofo complaint,o o natureo ofo complainto etc.o shallo beo recordedo ino ao o registerotoobeomaintainedoforopermanentorecord.o

(ii)o oCapturingo foro generalo purposeo willo beo ono sucho o datesoandotimeotoobeospecifiedobyotheoCommittee.o o

2.oo Theodogocapturingosquadoshalloconsistoof-o

(i)o oTheodriveroofotheodogovano

(ii)o oTwoo oro moreo trainedo employeeso ofo theo localo o authorityowhooareotrainedoinocapturingoofodogs.o o oooCWP-21023-2022o o o o o o o o oo-17-o o o o(iii)o oOneorepresentativeoofoanyoofotheoanimalowelfareo o organizationoo o Eachomemberoofotheodogosquadoshalloocarry,o ao valido identityo cardo issuedo byo theo localo authority.o Theo dogo capturingosquadowillobeooaccompaniedo byo ao representativeoofoanoAnimaloo Welfareo Organisationo nominatedoforotheopurpose.o o

(3)ko Onoreceiptoofospecificocomplaintooroforocapturingo o dogsoinonormalocourseotheodogosquadowillovisitotheo o concernedoarea,ocaptureotheodogsoidentifiedobyotheo o complaintoinocaseoofocomplaintoorientedocapturingo o andootherodogsoinocaseoofogeneralocapturing.oAllotheo o dogso caughto willo beo taggedo foro identificationo o purposesoandotooensureothatotheodogsoareoreleasedo o inotheosameoareaoafterosterilizationoandovaccination.o o Onlyostipulatedonumberoofodogs,oaccordingotootheo o Animalo Birtho Controlo Programo target,o shallo beo o caughtobyotheovan.oAorecordoofodogsocapturedoshallo o beomaintainedoinoaoregister,omentioningothereinotheo o nameoofotheoarea/locality,odateoandotimeoofocapture,o o nameso ofo personso ino theo dogso squado ono thato o particularo dayo ando detailso abouto dogso capturedo o suchoasonumberoofomaleodogs,onumberoofofemaleo o dogs,onumberoofopuppiesoetc.o

(4)ko Theo dogso shallo beo capturedo byo usingo humaneo o methodso sucho aso lassoingo oro soft-loopo animalo o catcherso sucho aso thoseo prescribedo undero theo o provisionso ofo Preventiono ofo Crueltyo (Captureo ofo o Animals)oRules,o1979.o

(5)o Whileotheodogsoareobeingocapturedoinoanyolocalityo o theorepresentativeoofotheolocaloauthorityooroofotheo o animalowelfareoorganizationoaccompanyingotheodogo o squado willo makeo announcementso ono ao publico o oooCWP-21023-2022o o o o o o o o oo-18-o o o o addressosystemothatodogsoareobeingocapturedofromo o theo areao foro theo purposeo ofo sterilizationo ando o immunizationoandowillobeoreleasedoinotheosameoareao o aftero sterilizationo ando immunization.o Theo o announcemento mayo alsoo brieflyo educateo theo o residentso ofo theo areao abouto theo dogo controlo o programmeo ando solicito theo supporto ofo allo theo o residentsoreassuringothemothatotheolocaloauthorityoiso o takingoadequateostepsoforotheirosafety.o

(6)o Theo capturedo dogso shallo beo broughto too theo dogo o kennels/dogo poundso managedo byo theo Animalo o Welfareo Organisationso (AWOs).o Ono reachingo theo o dogopoundsoallotheodogsoshallobeoexaminedobyotheo o veterinariansoandohealthyoandosickodogsoshouldobeo o segregated.o Sicko dogso shouldo beo giveno propero o treatmento ino theo hospitalso runo byo Societyo foro o Preventiono ofo Crueltyo too Animalso (SPCA//othero o recognizedo institutionso ando onlyo aftero theyo areo o treatedotheyooshouldo beo sterilizedo ando vaccinated.o o Theodogsowilloo beo sterilized/vaccinatedo undero o theosupervisionoofootheoveterinariansoofotheohospitalo o runobyotheoSocietyooforo Preventiono ofo Crueltyo too o Animalso(SPCA).oo AnimaloWelfareoOrganizationooro o otherodogoshelters.oAfteronecessaryoperiodoofofollowo o up,otheodogsoshallobeoreleasedoatotheosameoplaceooro o localityo fromo whereo theyo wereo capturedo ando theo o date.o timeo ando placeo ofo theiro releaseo shallo beo o recorded.o Theo representativeo ofo Animalo Welfareo o Organisationso (AWOs)o shallo accompanyo theo dogo o squadoatotheotimeoo oforeleaseoalso.o

(7)o oAtoaotimeoonlyooneolotoofodogsoshallobeobroughtoforo o sterilization,o immunizationo ato oneo dogo kennelo oro o dogo poundo ando theseo dogso shallo beo fromo oneo o locality.oTwoolotsofromodifferentoareasoorolocalitieso o oooCWP-21023-2022o o o o o o o o oo-19-o o o o shallonotobeomixedoatotheosameodogopoundoorodogo o kennel.o

(8)oo Theo dogo kennelo musto haveo sufficiento spaceo foro o propero housingo ando freeo movemento ofo dogs.o Theo o placeoshouldohaveoproperoventilationoandonaturalo o lightingoandomustobeokeptoclean.oAdultsoandopuppieso o mustobeohousedoseparatelyoandoamongstotheoadultso o theo maleso ando femaleso alsoo shouldo beo housedo o separately.o Adequateo arrangemento foro drinkingo o wateroando foodo shallo beo madeo forodogso whileoino o captivity.o

(9)oo Femaleo dogso foundo too beo pregnanto shallo noto o undergoo abortiono (irrespectiveo ofo stageo ofo o pregnancy)o ando sterilizationo ando shouldo beo o releasedotillotheyohaveolitter."o o

14.o o AsoperotheoinformationoavailableoonotheowebsiteoofoChandigarho Administration,olastodogocensusowasoconductedoinotheoyearo2019.oStrayodogs'o populationowitnessedoanoincreaseoofo65%ooveroaoperiodoofo7oyears.oTheodatao furtheroshowsothatoonlyo1omaleodogoando3ofemaleodogsowereosterilisedoinotheo areasoofoSectoro16o&o17,oChandigarhoino2017.oTheseofiguresoleaveowithoano onlyo inferenceo thato authoritieso haveo noto beeno performingo theiro dutieso diligently.o Datao ofo sterilizationo waso lasto updatedo ono 30.06.2017o byo theo MunicipaloCorporation,oChandigarhoandohasonotobeenouploadedooroplacedoono record.o

15.o o oThatoapartofromospecificoActs,oSectiono133o(1)(f)oofotheoCodeoofo Criminalo Procedure,o 1973o giveso powero too theo Districto Magistrateo foro destruction,oconfinementoorootherwiseodisposaloofoanyodangerousoanimal.o o "133.oConditionaloorderofororemovaloofonuisance.o o oooCWP-21023-2022o o o o o o o o oo-20-o o o o

(1)oWheneveroaoDistrictoMagistrateooroaoSub-divisionalo MagistrateooroanyootheroExecutiveoMagistrateospeciallyo empoweredoinothisoofobehalfobyotheoStateoGovernment,oono receivingo theo reporto ofo ao policeo officero oro othero informationoandoonotakingosuchoevidenceo(ifoany)oasoheo thinksofit,oconsiders-o o

(a)kxo o xo

(b)koxo xo xo

(c)kxo xo xo xo

(d)kxo xo xo xo xo

(e)kxo xo xo xo xo

(f)kthato anyo dangerouso animalo shouldo beo destroyed,o confinedoorootherwiseodisposedoof,osuchoMagistrateo mayomakeoaoconditionaloorderorequiringotheopersono causingosuchoobstructionooronuisance,oorocarryingo onosuchotradeoorooccupation,oorokeepingoanyosucho goodsooro merchandise,o oroowning,o possessingo oro controllingo sucho building,o tent,o structure,o substance,otank,owellooroexcavation,ooroowningooro possessingosuchoanimaloorotree,owithinoaotimeotoobeo fixedoinotheoorder-o

(i)otooremoveosuchoobstructionooronuisance;ooro

(ii)o too desisto fromo carryingo on,o oro too removeo oro regulateoinosuchomanneroasomayobeodirected,osucho tradeoorooccupation,oorotooremoveosuchogoodsooro merchandise,oorotooregulateotheokeepingothereofoino suchomanneroasomayobeodirected;ooro

(iii)o too prevento oro stopo theo constructiono ofo sucho building,oorotooalterotheodisposaloofosuchosubstance;o oro

(iv)o too remove,o repairo oro supporto sucho building,o tento oro structure,o oro too removeo oro supporto sucho o oooCWP-21023-2022o o o o o o o o oo-21-o o o trees;ooro

(v)otoofenceosuchotank,owellooroexcavation;ooro

(vi)o too destroy,o confineo oro disposeo ofo sucho dangerousoanimaloinotheomanneroprovidedoinotheo saidoorder;oor,o ifoheo objectsosootoo do,otooappearo beforeohimselfoorosomeootheroExecutiveoMagistrateo subordinateotoohimoatoaotimeoandoplaceotoobeofixedo byo theo Order,o ando showo cause,o ino theo mannero hereinafteroprovided,owhyotheoorderoshouldonotobeo madeoabsolute."o

16.o o ComprehensiveoSchemeoforomanagementoofostrayoDogsoinotheo Uniono Territoryo ofo Chandigarh,o 2012o haso beeno passedo byo theo Municipalo Corporation,o Chandigarho too controlo strayo dogo menaceo ando safeguardo theo citizens.o Theo followingo obligationso haveo beeno imposedo ono theo localo authority:-o VI)o INFRASTRUCTUREo ANDo OBLIGATIONSo OFo THEoLOCALoAUTHORITY:o o o Too beo providedo byo theo Municipalo Corporationo Chandigarh.o

1.k oDogo Controlo Cello witho oneo Computer,o Interneto &o commonofacilitiesotoobeomannedobyooneoperson.o

2.ooCreationoofoaodogopoundoinotheocityoasorequiredoforotheo housingodogsosuspectedooforabiesotemporarilyoorosucho arrangemento beo madeo ino theo existingo shelterso ofo NGO's.o

3.o Threeo dogo vanso witho announcemento systemo foro capturing,otransportationoandoreleaseoafterooperationo fromo variouso zones.o 3.o Oneo MultiPurposeo Worker,o Oneo drivero ando fouro trainedo dog-catcherso too beo providedotooeachodogovan.o

4.o Incineratoro shallo beo installedo byo theo Municipalooo o oooCWP-21023-2022o o o o o o o o oo-22-o o o Corporationo ato eacho dogo sheltero oro ao commono incinerationoplantoforodisposaloofodeadodogs.o

5.o Theo NGOso willo beo reimbursedo theo expenseso ofo sterilization/immunizationobyoMunicipaloCorporation,o Chandigarho ato ao rateo fixedo byo theo Monitoringo Committee/MunicipaloCorporation,oChandigarh.o

6.oTooholdofreeoanti-rabiesocampsothroughoutotheoyearoforo strayo dogso ino ao scheduledo programmeo ando thiso programmeo shallo beo repeatedo everyo yearo ino similaro fashion.o

7.o Municipalo Corporationo shallo provideo theo financialo supporto foro addresso system/educationo tentage/transport/publico literature/honorarium/othero misc.o operationalo expenseso too theo publico awarenesso team."o o

17.oo o Aoperusaloofotheoaforesaidoshowsothatotheodutyohasobeenocasto uponotheoAdministrationotookeepotheomenaceoofostrayodogsounderocontroloando thatotheocitizensoareonotoendangeredobyotheopresenceoofolargeonumberoofodogs.o Despiteo theo comprehensiveo schemeo foro managemento ofo dogso byo theo respondent-Municipalo Corporationo ando claimso madeo abouto theo implementationoofotheomanagementoschemes,oanoincreaseobyomoreothano67%o inotheostrayodogopopulationofailsotoolendosupportotootheoclaimomadeoonobehalfo ofotheorespondents.oItoratheroshowsothatotheomeasuresoadoptedoareoinadequateoo ando failo too respondo ino furtheranceo ofo theo scheme.o Ao mereo bringingo ofo ao schemeo withouto anyo effectiveo implementationo ando objectiveo reviewo cano hardlyobeosaidotoobeoaoproperoimplementation.oTheorespondent(s)-agencieso haveobeenopattingotheirobackoonotheonumberoofosterilizationsodoneoandohaveo notooptedo too conducto ao reviewo ofotheoschemeo ando asotoo whyo despiteotheo claimedo successfulo executiono ofotheo saido scheme,o theo populationoofostrayo o oooCWP-21023-2022o o o o o o o o oo-23-o o o dogsoisoonoaosteeporise.oTheorespondentsohaveofailedotooofferoanyosatisfactoryo explanationoforotheosame.o

18.o o oBesides,o thereo iso noo disputeo quao theo incidento thato haso takeno placeoonotheodateoandotheomanneroasoclaimed.oThereoisoalsoonoodenialoofotheo obligationo byo theo respondentso too keepo strayo dogso menaceo undero control.o Further,othereoisonooallegationoorosuggestionsotootheoeffectothatotheoattackowaso asoaoresultoofoanyoactooroomissionoattributableotootheopetitioneroherself.ooInotheo absenceo thereof,o theo principleso ofo stricto liabilityo wouldo comeo intoo playo againstotheorespondentsoandonoolapseoorofaultocanobeofoundoattributableotootheo petitioner.o Ito iso alsoo noto ino disputeo thato Shantio Kunj,o theo parko whereo theo petitionero waso joggingo iso managedo ando maintainedo byo theo Municipalo Corporationoitself.oItoisoalsoowelloknownotootheorespondent-Corporationothatoao largeonumberoofocitizensofromodiverseoageogroupoincludingotoddlers,oyoungo ones,ogrownoupoandooldovisitotheseoparksoeveryodayoforoexercise,ogeneralowalko andoevenoforofamilyoouting.ooDespiteobeingoconsciousoofotheosame,othereo seemsotoobeohardlyoanyoeffectiveomeasureoundertakenotooensureothatosucho placesowhichoareovisitedobyolargeonumberoofocitizensoareokeptofreeoofodogo menace.oo ooooooPUBLICoSAFETYoANDoARTICLEo21:oANALYSISo

19.o o TheoquestionowhichoarisesonextoisoasotoowhetheroArticleo21oofotheo ConstitutionoofoIndiaohasotoobeoreadointooallopublicosafetyostatutes/provisionso sinceo theo primeo objecto ofo Publico Safetyo Legislationo iso too protecto theo individualoandoprovideocompensationoforotheolossosuffered.oTheodutyoofocareo expectedo fromo Stateo oro itso officialso functioningo undero theo Publico Safetyo Legislationois,otherefore,overyohighoasocomparedotootheostatutoryopowersoando o oooCWP-21023-2022o o o o o o o o oo-24-o o o supervisionodesiredounderoanyootheroStatute.oTheoHon'bleoSupremeoCourtoofo Indiaowasofacedowithotheoissueoasotoowhetherooronototooawardocompensationo foroviolationooforightotoolifeoandopersonalolibertyoguaranteedounderoArticleo21o ofotheoConstitutionoofoIndiaoinotheomatteroofoRuduloSahoVersusoStateoofo Biharoreportedoaso1983o(4)oSCCo141.oTheostandoofotheoStateowasothatotheo claimant/victimoshouldobeoleftotooavailoremediesounderotheoordinaryoCivilo Law,ohoweverosuchocontentionowasorejectedobyotheothenoChiefoJusticeoofo IndiaoMr.oY.V.oChandrachudoasoitowouldohaveoamountedotooroboArticleo21oofo itso significanto content.o Theo Hon'bleo Chiefo Justiceo ofo Indiao observedo thato relegatingotheopetitionerotooordinaryoremedyoofoCiviloSuitowouldohaveoonlyo prolongedo theo miseryo ofo theo persono whoo hado beeno kepto ino prolongedo detentionodespiteohisoacquittal.oTheoHon'bleoSupremeoCourtoofoIndiaohado awardedocompensationoforoviolationoofofundamentalorightsoinovariousoothero casesoalsooincludingotheomatteroofoSebastianoM.oHongrayoVersusoUnionoofo Indiaoreportedoaso(1984)oo3oSCCo82;ooBhimoSinghoVs.oStateoofoJammuo&o KashmirooreportedoasoAIRo1986oSCo494;oSahelioVs.oCommissioneroofoPoliceoo reportedoasoAIRo1990oSCo513oandoStateoofoMaharashtraoVs.oRavioKanto S.Patilooreportedoaso(1991)o2oSCCo373.oTheolegalopropositionopropoundedobyo theoabovesaidocasesoareothatotheoUnionoorotheoStateoGovernmentowouldobeo liableoforotortiousoactsocommittedobyotheiroofficialsoinoviolationoofoArticleo21o ofotheoConstitutionoofoIndia.o

20.o o Theonatureoofoliabilityowasohowever,onotoclearlyospeltooutobyotheo Hon'bleo Supremeo Courto ino theo aboveo saido decisions,o whicho waso latero expoundedoinotheocaseoofo"NilabatioBeheraoVs.oStateoofoOrissa",oAIRo1993o SCo1960,owhereinoitowasoheldoappropriateotoospellooutoclearlyotheoprincipleso o oooCWP-21023-2022o o o o o o o o oo-25-o o o ono whicho theo liabilityo ofo theo Stateo ariseso ino sucho caseso foro paymento ofo compensationo ando theo distinctiono betweeno theo liabilityo ino persono ando theo liabilityoinolawoforopaymentoofocompensationoofoanyoactionoofotorts.oTheo judgmentoinotheomatteroofoNilabati'socaseo(Supra)owasoinspiredobyotheoPrivyo Councilo Decisiono ino theo mattero ofo Ramesho Lawrenceo Maharajo Vs.o Theo AttorneyoGeneraloofoTrinidadoandoTobagoo(1978)o2oAlloEnglandoReportso

670.o Amongsto theo earliesto caseso reportedo ino India,o theo Governmento waso recognizedoasoliableoforotheotortocommittedobyoitsoofficialsowhileoactingoino dischargeo ofo theiro statutoryo dutieso ino theo mattero ofo Peninsularo Orientalo Steamo Navigationo Companyo Versuso Secretaryo ofo Stateo ofo Indiao 1861o 5o Bombayo Higho Court-1.o Ao distinctiono was,o however,o drawno betweeno sovereignoandonon-sovereignofunctionsoofotheoEastoIndiaoCompanyoandoitowaso heldothatomaintenanceoofodockyardoisoaonon-sovereignofunction,ohence,otheo Governmentowasonotoliableoforonegligenceoofoitsoservants.oTheoabovesaido pointo ofo viewo was,o however,o noto followedo byo theo Courtso ofo Madraso ando BombayoinosubsequentojudgmentsoofoSecretaryoofoStateoforoIndiaoVersuso HarioBhanji,oILRo(1882)o5oMadraso273oandoP.V.oRaooVersusoKhushaldaso S.oAdvani,oAIRo1949oBombayo277.oo

21.o o AoFulloBenchoofoPunjaboandoHaryanaoHighoCourtoinotheomattero ofoRupoRamoKaluoRamoAggarwaloVersusoStateoofoPunjaboreportedoasoAIRo 1961oP&Ho336oheldotheoStateoliableoforotortsoofoitsoservants.oTheopointoofolawo wasoreverberatedoinotheoJudgmentoofoHon'bleoSupremeoCourtoinotheomatteroofo KasturioLaloRaliaoRamoJainoVersusoTheoStateoofoUttaroPradeshoreportedoaso AIRo1965oSCo1039.ooTheopreviouslyofollowedodistinctionoofosovereignoando non-sovereignofunctionsowasoevenothoughoinitiallyogivenomuchoweightageo o oooCWP-21023-2022o o o o o o o o oo-26-o o o andoprecedenceoandotheotraditionalosovereignofunctionosuchoasomakingoofo laws,oadministrationoofojustice,omaintainanceoofolawoandoorder,orepressionoofo crime,o carryingo ofo war,o theo makingo ofo treatieso ando peaceo ando othero consequentialo functionso etc.o whicho wereo exclusivelyo sovereigno functionso wereoheldotoobeocoveredounderotheodefenceoofosovereignofunctionsounderotheo lawo ofo Torts.o However,o theo pleao ofo sovereigno immunityo waso noto madeo availableoinotheocaseoofopublicolawoforoclaimingomonetaryocompensationoforo violationo ofo fundamentalo rights,o especiallyo theo righto too lifeo ando personalo libertyoguaranteedounderotheoConstitutionoofoIndiaobyotheoHon'bleoSupremeo CourtoinotheomatteroofoNilabatioBeharao(Supra).o

22.o o Theoprinciplesowhichothusoemergeoaboutotheonatureoandoscopeoofo newopublicolaworemedyoevolvedobyotheoHon'bleoSupremeoCourtoareoasounder:o

(i)k Mandatoryocompensationoforoviolationoofofundamentalorightsoiso anoacknowledgedoremedyoinopublicolawoforotheoenforcementoando protectionoofofundamentalorights;o

(ii)k Suchoclaimoisobasedoonostrictoliability;o

(iii)k Suchoclaimoisodistinctofromoandoinoadditionotootheoremedyoino privateolawoforodamagesoforotort;o

(iv)k Thisoremedyowouldobeoavailableowhenoitoisotheoonlyopracticableo modeooforedressaloavailable;oando

(v)k Againsto theo claimo foro compensationo foro violationo ofo fundamentalorightsoinoaowritopetitionounderoArticleo226oofotheo ConstitutionoofoIndia,otheodefenceoofosovereignoimmunityomayo beoinapplicable.o o

23.o o Theoremedyothusoprovidedogoesoaolongowayoinoprovidingoreliefo tootheovictims/claimantsoforoviolationooforightotoolifeoandopersonalolibertyo guaranteedounderoArticleo21oofotheoConstitutionoofoIndia.oTheoremedyois,o however,o too beo temperedo byo judicialo restraint,o too avoido circumventiono ofo o oooCWP-21023-2022o o o o o o o o oo-27-o o o privateolaworemedy.oTheoabovesaidojudicialopronouncementsoestablishedothato publico lawo remedyo mayo beo availedo byo ao persono undero ao giveno seto ofo circumstanceso whereo theo liabilityo ofo theo respondentso iso pero seo wello establishedoandomadeooutoonotheoprinciplesoofostrictoliability.oTheoremedyoforo seekingocompensationoonoaccountoofofailureoofopublicodutyoisoinoadditionotoo theoprivateolaworemedyoavailableobeforeotheoCiviloCourtowhichoisocompetento toolookointootheoissueoandoawardoadequateocompensationoafteroexaminingotheo evidence.o ooooooooNEGLIGENCEoANDoCOMPENSATIONoUNDERoPUBLICoLAWo

24.o o Theo issueo whicho ariseso nexto relateso too whato 'negligence'o iso 'actionable'oandowhatoisotheomeaningoofo'negligence'oforoentertainingoaoclaimo underotheoPublicoLawoforocompensation.oTheosaidoquestionowasoexaminedobyo theoHouseoofoLordsoinotheomatteroofoDonoghueoVersusoStevenson,oreportedo aso1932oACo562.oLordoAtkinospokeoonobehalfoofotheoBencholayingodownoano importanto ruleo thato theo manufacturero oweso ao dutyo ofo careo ino theiro manufacturing,otooallopersonsowhooareoforciblyolikelyotoobeoaffectedobyotheo lackoofocareoinotheopreparationoofothoseoproducts.oItowasofurtherostatedothatotheo negligenceodependsouponoproofothatooneopersonohasocommittedoaobreachoofo dutyoofocareobindingouponohimselfoandoowedotooanotheroandohasotherebyo causedoinjuryotoothatoother.oTheojudgmentolaidotheofoundationoforocreationoofo aoseparateotortoofonegligenceoandotheosameohasoevolvedoasoamongstotheomosto importantotort.oActionsounderonegligenceofaroexceedothoseobroughtoforoanyo otherotort.o Aotwootiero testo waso evolvedoino theo judgmentoofoAnnso Versuso LondonoBoroughoofoMertono(1978)oACo728,owhichowasoincreasedotooaotripleo testoinotheojudgmentoofoHouseoofoLordsoinoCaparooIndustriesoPLCoversuso o oooCWP-21023-2022o o o o o o o o oo-28-o o o Dickmanoreportedoaso(1990)o2oACo605.oTheothreeorequirementsowhichowereo laidodownowere:-o

(i)o Thereomustobeoreasonableoforeseeabilityoofotheorelevantolaws;o

(ii)o Itomustobeoaojustoandoreasonableodutyothatoshouldoexist;oando

(iii)o Thereomustoexistoaorelationshipoofoproximityobetweenotheoparties.o

25.o o Theoconceptoofoforesee-abilityoandoproximityohasobeenoacceptedo asoaoflexibleoconceptoasotheoboundsoofoforesee-abilityocanobeostretchedooro narrowedo too almosto certaintyo oro virtuallyo impossibility.o Ito iso theo reasonablenessoi.e.otheoprudenceoofoaoreasonableopersonothatohasobeenoappliedo too theo foresee-abilityo ando proximityo relationship.o Hence,o ao claimanto iso requiredotooestablishothatotheorespondent/defendantoowedoaodutyotoohimoando toonextoestablishothatothereowasobreachoofothisodutyoonotheoparametersoofoao reasonableoandoprudentomanotoobeoguidedobyothoseoconsiderations.oTheoissueo asoregardsotheocompensationotoobeograntedoforotheonegligenceoshownobyotheo statutoryoauthoritiesohasobeenounderoconsiderationoforotheoCourtoinovariouso matters.oInoaocaseorelatingotoodebrisoslidingodownotheoroadoandoclaimingoliveso ofotwoopersons,oaoclaimowasoawardedoagainstoNationaloHighwayoAuthorityoofo India.oTheodefenceotakenobyotheoNationaloHighwayoAuthorityoofoIndiaowasotoo theoeffectothatoitohadoenteredointooanoagreementowithoaoconcessionaireoforotheo maintenanceoandooperationoofosaidoSectionoofotheoNationaloHighwayoandothato ito hado noo furthero obligationo ando thato theo liabilityo waso casto ono theo concessionaire.o

26.o o ooWhileodealingowithotheoaspectoofolegalityoofotheocompensationo awardedounderoQuestiono–IIoinotheomatteroofo"TheoDirectoroGeneralo(Roado Development)oNationaloHighwaysoAuthorityoofoIndiaoVersusoAamoAadmio o oooCWP-21023-2022o o o o o o o o oo-29-o o o Lokmanchoandoothers"obearingoCiviloAppealoNo.6932oofo2015odecidedoono

14.07.2020o theo Hon'bleo Supremeo Courto haso noticedo ando recordedo theo following:o "56.oTheolegalopositionoregardingohighwaysoisooutlinedoinotwoo enactments,o i.e.o theoNationalo Highwayso Act,o 1956o ("theoHighwayso Act")o ando theo NHAIo Act.o Theo provisionso ofo theoHighwaysoAct,otootheoextentotheyoareorelevantoareoasofollows:o "4.o Nationalo highwayso too vesto ino theo Union.o —o Allo nationalo highwaysoshallovestoinotheoUnion,oandoforotheopurposesoofothiso Acto"highways"oinclude—o

(i)oallolandsoappurtenantothereto,owhetherodemarcatedooronot;o

(ii)oallobridges,oculverts,otunnels,ocauseways,ocarriagewaysoando otherostructuresoconstructedoonooroacrossosuchohighways;oando

(iii)o allo fences,o trees,o postso ando boundary,o furlongo ando milestonesoofosuchohighwaysooroanyolandoappurtenantotoosucho highways.o

5.oResponsibilityoforodevelopmentoandomaintenanceoofonationalo highways.—Ito shallo beo theo responsibilityo ofo theo Centralo Governmento too developo ando maintaino ino propero repairo allo nationalo highways;o buto theoCentralo Governmento may,o byo notificationoinotheoOfficialoGazette,odirectothatoanyofunctionoino relationo too theo developmento oro maintenanceo ofo anyo nationalo highwayo shall,osubjectotoo sucho conditions,o ifoany,o aso mayobeo specifiedo ino theo notification,o alsoo beo exercisableo byo theo GovernmentoofotheoStateowithinowhichotheonationalohighwayoiso situatedo oro byo anyo officero oro authorityo subordinateo too theo CentraloGovernmentoorotootheoStateoGovernment.o XXXXXXoXXXXXXoXXXXXXo o8A.oPoweroofoCentraloGovernmentotooenterointooagreementsoforo developmento ando maintenanceo ofo nationalo highwayso —o (1)o Notwithstandingo anythingo containedo ino thiso Act,o theo Centralo Governmentomayoenterointooanoagreementowithoanyopersonoino o oooCWP-21023-2022o o o o o o o o oo-30-o o o relationotootheodevelopmentoandomaintenanceoofotheowholeooro anyopartoofoaonationalohighway.o

(2)oNotwithstandingoanythingocontainedoinosectiono7,otheopersono referredotooinosub-sectiono(1)oisoentitledotoocollectoandoretaino feesoatosuchorate,oforoservicesoorobenefitsorenderedobyohimoasotheo Centralo Governmento may,o byo notificationo ino theo Officialo Gazette,ospecifyohavingoregardotootheoexpenditureoinvolvedoino building,omaintenance,omanagementoandooperationoofotheowholeo oro parto ofo sucho nationalo highway,o interesto ono theo capitalo invested,oreasonableoreturn,otheovolumeoofotrafficoandotheoperiodo ofosuchoagreement.oo

(3)oAopersonoreferredotooinosub-sectiono(1)oshallohaveopowersotoo regulateo ando controlo theo traffico ino accordanceo witho theo provisionsocontainedoinoChapteroVIIIoofotheoMotoroVehiclesoAct,o 1988o(59oofo1988)oonotheonationalohighwayoformingosubject-matteroofosuchoagreement,oforoproperomanagementothereof."o

57.oSectiono16oofotheoNHAIoActospellsooutotheofunctionsoofotheo NHAI;oitoreadsoasofollows:o "16.oFunctionsoofotheoAuthority.—o(1)oSubjectotootheorulesomadeo byo theo Centralo Governmento ino thiso behalf,o ito shallo beo theo functionoofotheoAuthorityotoodevelop,omaintainoandomanageotheo nationalo highwayso ando anyo othero highwayso vestedo in,o oro entrustedoto,oitobyotheoGovernment.orulesomadeobyotheoCentralo Governmento ino thiso behalf,o ito shallo beo theo functiono ofo theo Authorityo too develop,o maintaino ando manageo theo nationalo highwaysoandoanyootherohighwaysovestedoin,ooroentrustedoto,oito byotheoGovernment."o

58.oActingoinofurtheranceoofoitsopowers,otheoNHAIoenteredointoo ano agreemento witho theo concessionaireo foro theo construction,o operationoandomaintenanceoofotheohighwayoinoquestiono(i.e.otheo stretcho ofo 140o kmso ono whicho theo accidento occurred).o Theo questiono iso whethero theo NHAI,o whicho indisputablyo ownso ando controlsotheohighway,oandoonowhoseobehalfoitowasoconstructed,o o oooCWP-21023-2022o o o o o o o o oo-31-o o o andoforowhichotheomaintenanceoandooperationoagreementowaso enteredointo,oledotooaodutyoofocare,otootheouserso(ofotheohighway).o

59.o Thiso issueo hado ariseno inoRajkoto Municipalo Corpn.o v.o ManjulbenoJayantilaloNakumoinotheocontextoofocertainofacts.oTheo deceasedousedotootraveloonoaorailwayoseasonoticketotooRajkototoo attendotoohisoofficeowork.oOneodayowhilstoheowasoonotheofootpatho onotheowayotoohisooffice,oaoroadsideotreeosuddenlyofelloonohim,o resultingoinoseriousoinjuriesoonotheoheadoandootheropartsoofotheo body,oandolaterodiedoinotheohospital.oTheoHighoCourtoallowedo theo writo petition.o Thiso courto notedo theo distinctiono betweeno ao commonolawodutyoofocareoowedotoomembersoofotheopublic,oando whetheroliabilityocouldobeoimposedouponoaolocaloauthorityoforo breachoofoitsostatutoryoduty.oTheocourtonoticedopreviousoEnglisho decisionsoandostatedothato(RajkotoMunicipaloCorporationocase):o o "18oTheoquestionoemergesoasotoowhenowouldotheobreacho ofo statutoryo dutyo undero ao particularo enactmento giveo riseo too tortiousoliability?oTheostatutoryodutyogivesoriseotoociviloaction.o Theostatutoryonegligenceoisosuiogenerisoandoindependentoofoanyo othero formo ofo tortiouso liability.o Ito would,o therefore,o beo ofo necessityo too findo outo fromo theo constructiono ofo eacho statutoryo dutyowhetherotheoparticularodutyoisogeneralodutyoinopublicolawo oro privateo lawo dutyo towardso theo plaintiff.o Theo plaintiffo musto showothato(a)otheoinjuryosufferedoisowithinotheoambitoofostatute;o

(b)ostatutoryodutyoimposesoaoliabilityoforociviloaction;o(c)otheo statutoryodutyowasonotofulfilled;oando(d)otheobreachoofodutyohaso causedo himo injury.o Theseo essentialso areo requiredo too beo consideredoinoeachocase.oTheoactionoforobreachoofostatutoryodutyo mayobelongotootheocategoryoofoeitherostrictooroabsoluteoliabilityo whichoisorequired,otherefore,otoobeoconsideredoinotheonatureoofo statutoryodutyotheodefendantoowesotootheoplaintiff;owhetherooro nototheodutyoisoabsolute;oandotheopublicopolicyounderlyingotheo duty.oInomostocases,otheostatuteomayonotogiveoriseotoocauseoofo actionounlessoitoisobreachedoandoitohasocausedodamageotootheo o oooCWP-21023-2022o o o o o o o o oo-32-o o o plaintiff,othoughooccasionallyotheostatuteomayomakeobreachoofo dutyoactionableoperose.oTheoburden,otherefore,oisoonotheoplaintiffo tooproveoonobalanceoofoprobabilitiesothatotheodefendantooweso thatodutyoofocareotootheoplaintiffooroclassoofopersonsotoowhomoheo belongs,othatodefendantowasonegligentoinotheoperformanceooro omissionoofothatodutyoandobreachoofodutyocausedooromateriallyo contributedotoohisoinjuryoandothatodutyoofocareoisoowedoonotheo defendant.o Ifo theo statuteo requireso certaino protectiono ono theo principleoofovolentiononofitoinjuria,otheoliabilityostandsoexcluded.o Theobreachoofodutyocreatedobyoaostatute,oifoitoresultsoinodamageo tooanoindividualoprimaofacie,oisotortoforowhichotheoactionoforo damagesowillolieoinotheosuit.oOneowouldooftenotakeotheoAct,oasoao whole,otoofindooutotheoobjectoofotheolawoandotoofindooutowhethero oneo haso ao righto ando remedyo providedo foro breacho ofo duty.o Ito would,o therefore,o beo ofo necessityo ino everyo caseo too findo theo intentiono ofo legislatureo ino creatingo dutyo ando theo resultanto consequenceso sufferedo fromo theo actiono oro omissiono thereof,o whichoareorequiredotoobeoconsidered.oNooactionoforodamageso liesoifoonoproperoconstructionoofostatute,otheointentionoisothato someootheroremedyoisoavailable.oOneoofotheotestsoinodeterminingo theointentionoofotheostatuteoisotooascertainowhetherotheodutyoiso owedoprimarilyotootheogeneralopublicoorocommunityoandoonlyo incidentallyotooanoindividualooroprimarilyotootheoindividualooro classoofoindividualsoandoonlyoincidentallyotootheogeneralopublico oro theo community.o Ifo theo statuteo aimso ato dutyo too protecto ao particularocitizenooroparticularoclassoofocitizensotoowhichotheo plaintiffo belongs,o ito primao facieo createso ato theo sameo timeo corelativeorightovestedoinothoseocitizensoofowhichoplaintiffoisoone;o heohasoremedyoforoenforcement,onamely,otheoactionoforodamageso foroanyolossooccasionedodueotoonegligenceooroforofailureoofoit.o Butothisotestoisonotoalwaysoconclusive.o

19.oDutyomayobeoofosuchoparamountoimportanceothatoitoisoowedo tooallotheopublic.oItowouldobeowrongotoothinkothatoonoanoaction,o o oooCWP-21023-2022o o o o o o o o oo-33-o o o theodutyocouldobeoenforcedobyowayoofodamagesowhenodutyoiso owedo too ao sectiono ofo publico ando cannoto beo enforcedo ifo ano individualosustainsodamagesotoowhomotheoCorporationoowesonoo dutyoandonooprivateointerestoisoinfringed.oBreachoofostatutoryo duty,otherefore,orequiresotoobeoexaminedoinotheocontextoinowhicho theodutyoisocreatedonototowardsotheoindividual,obutohasoitsoeffecto onotheorightoofoindividualovis-?-visotheosociety.oStatutoryodutyo generallyo iso towardso publico ato largeo ando noto towardso ano individualooroindividualsoandotheocorelativeorightoisovestedoino theo publico ando noto ino privateo person,o eveno thougho theyo mayo sufferodamages.oTheodutyoinosuchoaocaseoisotoobeoenforcedobyo wayoofocriminaloprosecutionoorobyowayoofoinjunctionoatotheosuito underoSectiono192oofoCPCoorowitholeaveoofocourtounderoOrderoI,o Ruleo8oCPCobyopublic-ospiritedopersonooroinoanyoappropriateo mannerotooenforceotheorightoandonotobyowayoofoprivateoactionoforo damages.oInothatosituation,otheolegislature,owhileorecognisingo theoprivateorightovestedoinoanoinjuredoindividual,omayointendothato itoshallobeomaintainedosolelyobyosomeospecialoremedyoprovidedo foroaoparticularocaseoandonotobyoordinaryomethodoofoanoactiono forodamagesoasopenaltyoorocompensation.o XXXXXXoXXXXXXoXXXXXXo

24.oGenerally,oaopublicoauthorityoentrustedowithonoostatutoryo obligationotooexerciseoaopower,odoesonotocomeounderocommono lawodutyoofocareotoodoosoobutobyoconductotheopublicoauthorityo mayoplaceoitselfoinosuchoaosituationothatoitoattractsotheodutyoofo careowhichocallsoforoexerciseoofotheopower.oCommonoillustrationo isoprovidedobyoanoactionoinowhichoanoauthorityoinotheoexerciseoofo itsofunctions,oifoitohadocreatedoaodanger,otherebyosubjectingoitselfo too ao dutyo ofo careo foro theo safetyo ofo otherso whicho musto beo dischargedobyoanoexerciseoofoitsostatutoryopoweroorobyogivingo necessaryo warnings.o Ito iso theo conducto ofo theo authorityo ino creatingotheodangerothatoattractsotheodutyoofocareoasoenvisagedo inoSheppardov.oBoroughoofoGlossopo[(1921)o3oKBo132o:o1921oAllo o oooCWP-21023-2022o o o o o o o o oo-34-o o o ERoRepo61,oCA]o.oTheostatuteodoesonotobyoitselfogiveoriseotooao civiloactionobutoitoformsotheoformulationoonowhichotheocommono lawocanobuildoaocauseoofoaction….o XXXXXXoXXXXXXoXXXXXXo

39.oItocanobeoseenothatoordinarilyotheoprincipleoofotheolawoofo negligenceoappliesotoopublicoauthoritiesoalso.oTheyoareoliableotoo damagesobecauseobyoaonegligentoactoorofailureotooactowhenotheyo areounderoaodutyotooactooroforoaofailureotooconsiderowhetherotoo exerciseoaopoweroconferredoonothemowithotheointentionothatoito wouldo beo exercisedo ifo ando wheno publico interesto requireso it.o Whereotheopublicoauthorityohasodecidedotooexerciseoaopoweroando hasodoneoitonegligentlyoaopersonowhoohasoactedoinorelianceoono whatotheopublicoauthorityohasodone,omayohaveonoodifficultyoino provingo thato theo damageso whicho heo haso sufferedo haveo beeno causedobyotheonegligence.oWhereotheodamageohasoresultedofromo ao negligentofailureo too acto thereo mayo beo greatero difficultyo ino provingo causationo ando requireso examinationo ino greaterooooooooooo detail."o

60.oInotheoUK,otheodutyoofoaohighwayoauthorityowasodescribedobyo DiplockoL.J.oinoGriffithsov.oLiverpooloCorporationoasofollows:o "Theodutyoatocommonolawotoomaintain,owhichoincludesoaodutyotoo repairoaohighway,owasonotobasedoinonegligenceobutoinonuisance.o Itowasoanoabsoluteodutyotoomaintain,onotomerelyoaodutyotootakeo reasonableo careo too maintain,o ando theo statutoryo dutyo whicho replacedoitowasoalsooabsolute."oo o Again,o Diplock,o LJo statedo ino Burnsideo v.o Emerson19o describedotheodutyoasofollows:o "inosuchogoodorepairoasorendersoitoreasonablyopassableo foro theo ordinaryo traffico ofo theo neighbourhoodo ato allo seasonsoofotheoyearowithoutodangerocausedobyoitsophysicalo condition."o

61.oLater,oinoHaydonov.oKentoCountyoCounciloLordoDenningo o oooCWP-21023-2022o o o o o o o o oo-35-o o o M.R.o explainedo thato whileo theo dutyo too maintaino theo highwayo meantoanoabsoluteodutyotooensureothatoitowasoinoaoconditionotoobeo usedoasoaohighwayoandotooensureosafety,oitodidonotoincludeotheo dutyotooensureoatoallotimesothatotheoroadosurfaceowasokeptoclean.o Itowasoclarifiedohowever,othatotheoissueohadotoobeoconsideredoino eachocase,oandoitowasotoobeoconsideredowhetherotheoauthorityo hadotakenoreasonableostepsotookeepoitoinogoodorepairoafterobeingo notifiedoaboutoobstruction:o "IfoSectiono41oisotoobeoconstruedoasocapableoofoimposingoaodutyo too takeo remedialo measureso too dealo witho iceo ando snowo ono ao highway,oorofootway,owhichoisoinogoodophysicalorepair,osoothato whetheroinoparticularocircumstancesothatodutyohasoarisenoisotoo beodecidedo'asoaoquestionoofofactoandodegree,'oitowouldoseemo thato theo factso relevanto too determiningo whethero theo dutyo haso arisenowouldobeoessentiallyosimilarotoothoseorelevantotoodecidingo whetheroaobreachoofotheodutyohasobeenoprovedoandowhetherotheo statutoryo defenceo underoSectiono 58ohaso beeno madeo out.o ParliamentodidonotodefineothoseofactsoforotheopurposeoofoSectiono o 41.oTheoconceptoofotheopassingoofosufficientotimeotoomakeo itoprimaofacieounreasonableoforotheohighwayoauthorityotoohaveo failedotootakeoremedialomeasuresomustopresupposeosomeoideaoofo theo amounto ando[1967]o 1o Q.B.o 374o[1968]o 1o W.L.R.o 1490o[1978]oQ.B.o343onatureoofotheoresourcesoforodealingowitho snowo ando iceo whicho areo oro oughto too beo availableo too theo authority,o ando ofo theo ordero ofo priorityo amongo differento carriagewayso ando footwayso whicho guideso oro whicho oughto too guideotheoauthority;oandoofotheonecessaryodegreeoofourgencyoino usingothoseoresources.oNoosuchoguidanceoisogivenoinotheostatuteo withoreferenceotooproofoofotheoarisingoofotheoduty."o

62.oInoStovinovoWise,otheodefendantoemergedofromoaosideoroado ando rano downo theo plaintiff,o becauseo sheo waso noto keepingo ao properolook-out.oWhenosheowasosuedoforodamages,otheodefendanto joinedotheoCountyoCounciloasoaothirdopartyobecauseotheovisibilityo atotheointersectiono wasopooroando theyosaidothatotheo Council,o o oooCWP-21023-2022o o o o o o o o oo-36-o o o whicho hado theo dutyo too maintaino theo roado shouldo haveo doneo somethingo too improveo it.o Theo councilo hado statutoryo powerso whichowouldohaveoenabledotheonecessaryoworkotoobeodoneoando thereo waso evidenceo thato theo relevanto officerso hado decidedo ino principleothatoitoshouldobeodone,obutotheyohadonototakenostepsotoo dooit.oTheoHouseoofoLordsoheldothatothereowasonoodutyoofocareoino privateolawobasedoonotheostatutoryoduty,oandothato"Driversoofo vehiclesomustotakeotheohighwayonetworkoasotheyofindoit".oItowaso heldothatostatutoryopowerocouldonotobeoconvertedointooaocommono lawo duty.o Theo councilo hado doneo nothingo which,o aparto fromo statute,owouldohaveoattractedoaocommonolawodutyoofocare.oItohado doneonothingoatoall.oTheoonlyobasisoonowhichoitowasoaocandidateo foroliabilityowasothatoParliamentohadoentrustedoitowithogeneralo responsibilityo foro theo highwayso ando giveno ito theo powero too improveothemoandotakeootheromeasuresoforotheosafetyoofotheiro users.oLordoHoffmannoobserved,o o o"Ino summary,o therefore,o Io thinko thato theo minimumo preconditionsoforobasingoaodutyoofocareouponotheoexistenceoofoao statutoryopower,oifoitocanobeodoneoatoall,oare,ofirst,othatoitowouldo inotheocircumstancesohaveobeenoirrationalonototoohaveoexercisedo theopower,osoothatothereowasoinoeffectoaopublicolawodutyotooact,o andosecondly,othatothereoareoexceptionalogroundsoforoholdingo thatotheopolicyoofotheostatuteorequiresocompensationotoobeopaido too personso whoo suffero losso becauseo theo powero waso noto exercised."oo

63.oStovino(supra)oandoitsoenunciationothatotheoexistenceoofoao publicodutyodidonotoperoseoextendotooaoprivateodutyoofocareotoo takeospecialomeasures,ounlessoexceptionalofeaturesowereoproved,o wasofollowedoinoGorringeov.oCalderdaleoMetropolitanoBorougho Council.o Theo entireo lawo waso re-examinedo ando theo correcto position,o restatedo ino ao recento judgmento byo theo UKo Supremeo Courto ino Robinsono v.o Chiefo Constableo ofo Westo Yorkshireo Police23,owhichoobservedoasofollows:o o oooCWP-21023-2022o o o o o o o o oo-37-o o o "32.oAtocommonolaw,opublicoauthoritiesoareogenerallyosubjectotoo theosameoliabilitiesoinotortoasoprivateoindividualsoandobodies:o see,oforoexample,oEntickovoCarringtono(1765)o2oWilsoKBo275o andoMerseyoDocksoandoHarbouroBoardovoGibbso(1866)oLRo1oHLo

93.oDiceyofamouslyostatedothato"everyoofficial,ofromotheoPrimeo Ministerodownotooaoconstableooroaocollectoroofotaxes,oisoundero theo sameo responsibilityo foro everyo acto doneo withouto legalo justificationoasoanyootherocitizen":oTheoLawoofotheoConstitution,o 3rdoedo(1889),opo181.oAnoimportantoexceptionoatocommonolawo wasotheoCrown,obutothatoexceptionowasoaddressedobyotheoCrowno ProceedingsoActo1947,osectiono2.o

33.oAccordingly,oifoconductowouldobeotortiousoifocommittedobyoao privateo persono oro body,o ito iso generallyo equallyo tortiouso ifo committedobyoaopublicoauthority:osee,oforoexample,oDorsetoYachto Coo Ltdo vo Homeo Officeo [1970]o ACo 1004,o aso explainedo ino Gorringe'socaseo2004o(1)oWLRo1057,oparao39.oThatogeneralo principleoisosubjectotootheopossibilityothatotheocommonolawooro statuteomayoprovideootherwise,oforoexampleobyoauthorisingotheo conductoinoquestion:oGeddisovoProprietorsoofoBannoReservoiro

(1878)o3oAppoCaso430.oItofollowsothatopublicoauthoritiesoareo generallyo undero ao dutyo ofo careo too avoido causingo actionableo harmo ino situationso whereo ao dutyo ofo careo wouldo ariseo undero ordinaryo principleso ofo theo lawo ofo negligence,o unlesso theo lawo providesootherwise.o

34.o Ono theo othero hand,o publico authorities,o likeo privateo individualsoandobodies,oareogenerallyounderonoodutyoofocareotoo preventotheooccurrenceoofoharm:oasoLordoToulsonoJSCostatedoino Michael'socaseo[2015]oACo1732,oparao97,o"theocommonolawo doesonotogenerallyoimposeoliabilityoforopureoomissions".oThiso "omissionsoprinciple"ohaso2004o(1)oWLRo1057o2019o(2)oAlloERo 1041obeeno helpfullyo summarisedo byo Tofariso ando Steel,o "Negligenceo Liabilityo foro Omissionso ando theo Police"o [2016]o CLJo128:o o oooCWP-21023-2022o o o o o o o o oo-38-o o o "Inotheotortoofonegligence,oaopersonoAoisonotounderoaodutyotootakeo careotoopreventoharmooccurringotoopersonoBothroughoaosourceoofo dangero noto createdo byo Ao unlesso (i)o Ao haso assumedo ao responsibilityotooprotectoBofromothatodanger,o(ii)oAohasodoneo somethingowhichopreventsoanotherofromoprotectingoBofromothato danger,o(iii)oAohasoaospecialoleveloofocontrolooverothatosourceoofo danger,ooro(iv)oA'sostatusocreatesoanoobligationotooprotectoBo fromothatodanger."oo

35.o Aso thato summaryo makeso clear,o thereo areo certaino circumstanceso ino whicho publico authorities,o likeo privateo individualso ando bodies,o cano comeo undero ao dutyo ofo careo too prevento theo occurrenceo ofo harm:o see,o foro example,o Barretto vo EnfieldoLondonoBoroughoCouncilo[2001]o2oACo550oandoPhelpso voHillingdonoLondonoBoroughoCouncilo[2001]o2oACo619,oaso explainedoinoGorringe'socaseo2004o(1)oWLRo1057,oparaso39–40.o Ino theo absenceo ofo sucho circumstances,o however,o publico authoritiesogenerallyooweonoodutyoofocareotowardsoindividualsotoo conferoaobenefitouponothemobyoprotectingothemofromoharm,oanyo moreothanowouldoaoprivateoindividualoorobody:osee,oforoexample,o Smitho vo Littlewoodso Organisationo Ltdo [1987]o ACo 241,o concerningoaoprivateobody,oappliedoinoMitchellovoGlasgowoCityo Councilo[2009]oACo874,oconcerningoaopublicoauthority.o

36.oThatoisoso,onotwithstandingothatoaopublicoauthorityomayohaveo statutoryopowersoorodutiesoenablingoororequiringoitotooprevento theoharmoinoquestion.oAowelloknownoillustrationoofothatoprincipleo isotheodecisionoofotheoHouseoofoLordsoinoEastoSuffolkoRiverso Catchmento Boardo vo Kento [1941]o ACo 74.o Theo positiono iso differentoif,oonoitsotrueoconstruction,otheostatutoryopoweroorodutyo isointendedotoogiveoriseotooaodutyotooindividualomembersoofotheo publico whicho iso enforceableo byo meanso ofo ao privateo righto ofo action.oIf,ohowever,otheostatuteodoesonotocreateoaoprivateorightoofo action,otheno"itowouldobe,otoosayotheoleast,ounusualoifotheomereo existenceoofotheostatutoryodutyo[or,oaofortiori,oaostatutoryopower]o o oooCWP-21023-2022o o o o o o o o oo-39-o o o couldogenerateoaocommonolawodutyoofocare":oGorringe'socaseo 2004o(1)oWLRo1057,oparao23.o XXXXXXoXXXXXXoXXXXXXo

40.o However,o untilo theo reasoningo ino theo Annso caseo waso repudiated,oitowasonotopossibleotoojustifyoaorejectionoofoliability,o whereoaoprimaofacieodutyoofocareoaroseoatotheofirstostageoofotheo analysiso fromo theo foreseeabilityo ofo harm,o ono theo basiso thato publicobodiesoareo notogenerallyoliableoforofailingotoo exerciseo theirostatutoryopowersoorodutiesosooasotooconferotheobenefitoofo protectiono fromo harm.o Instead,o ito waso necessaryo too haveo recourseo too publico policyo ino ordero too justifyo theo rejectiono ofo liabilityo ato theo secondo stage.o Thato waso accordinglyo theo approacho adoptedo byo theo Houseo ofo Lordso ando theo Courto ofo Appealoinoaoseriesoofojudgments,oincludingoHill'socaseo[1989]o ACo 53.o Theo needo too haveo recourseo too publico policyo foro thato purposeo haso beeno supersededo byo theo returno too orthodoxyo ino Gorringe'so case.o Sinceo thato case,o ao publico authority'so non-liabilityoforotheoconsequencesoofoanoomissionocanogenerallyobeo justifiedoonotheobasisothatotheoomissionsoprincipleoisoaogeneralo principleoofotheolawoofonegligence,oandotheolawoofonegligenceo generallyoappliesotoopublicoauthoritiesoinotheosameowayothatoito appliesotooprivateoindividualsoandobodies.o

41.oEqually,oconcernsoaboutopublicopolicyocannotoinothemselveso overrideo ao liabilityo whicho wouldo ariseo ato commono lawo foro ao positiveoactocarriedooutoinotheocourseoofoperformingoaostatutoryo function:otheotrueoquestionoisowhether,oproperlyoconstrued,otheo statuteoexcludesotheoliabilityowhichowouldootherwiseoarise:oseeo Gorringe'so caseo 2004o (1)o WLRo 1057,o parao 38,o pero Lordo Hoffmann.o

42.oThatoisonototoodenyothatowhatomightobeodescribedoasopolicyo considerationso sometimeso haveo ao roleo too playo ino theo lawo ofo negligence.oAsoexplainedoearlier,owhereoestablishedoprincipleso o oooCWP-21023-2022o o o o o o o o oo-40-o o o doonotoprovideoaoclearoanswerotootheoquestionowhetheroaodutyoofo careoshouldobeorecognisedoinoaonovelosituation,otheocourtowillo haveo too considero whethero itso recognitiono wouldo beo justo ando reasonable."o

64.o Ino Yetkino v.o Mahmood,o whereo injuryo waso causedo too ao highwayo usero byo shrubso whicho hado overgrowno ando impededo visibility,otheocourtoupheldotheoclaimoforodamages.oTheocourto observedoasofollows:o "33.o Theoplantingoofovegetationoinotheoraisedobedsoofotheo centralo reservationo isoobviouslyoaoreasonableo exerciseoofotheo authority'sopowersobutotooplantoshrubsowhichowillogrowosoolargeo asotooobscureotheoviewoandothenonototooensureothatotheyoareo trimmedobackoisoaonegligentoexerciseoofothoseopowers.oTheojudgeo heldo thato thato failureo waso ao causeoofo thiso accident.o Ito iso noto suggestedothatoheowasonotorightosootoohold.oIohaveonoodoubtothat,o ino theo circumstanceso ofo thiso case,o theo localo authorityo hado ao commono lawo dutyo ofo careo towardso theo claimant,o notwithstandingo hero owno negligence,o thato thato dutyo waso breachedo ando thato theo breacho waso ao causeo ofo theo accident.o Thereowasonooneedoforotheojudgeotooconsiderowhetherotheodangero createdo byo theo busheso amountedo too ao trapo oro enticement.o Ito followsoinomyojudgmentothatotheojudgeoerredoinodismissingotheo claim.o Heo shouldo haveo heldo thato primaryo liabilityo waso established."o

65.oAosimilaroapproachowasoindicatedobyothisocourtoinoMunicipalo Corpn.oofoDelhiov.oSushilaoDevio(whereoaotreeofelloonoaopasser-byo causingo injury)o theo courto upheldo theo findingso thato theo municipalocorporationowasoliable,ostatingothat:o "13.oByoaocatenaoofodecisions,otheolawoisowellosettledothatoifo thereoisoaotreeostandingoonotheodefendant'solandowhichoisodriedo orodeadoandoforothatoreasonomayofalloandotheodefectoisooneowhicho isoeitheroknownooroshouldohaveobeenoknownotootheodefendant,o VISHAL SHARMA thenotheodefendantoisoliableoforoanyoinjuryocausedobyotheofalloofo o oooCWP-21023-2022o o o o o o o o oo-41-o o o theotreeo(seeoBrownov.oHarrisono[1947oWNo191o:o63oTLRo484],o Quinnov.oScotto[(1965)o1oWLRo1004o:o(1965)o2oAlloERo588]oando Mackieov.oDumbartonshireoCountyoCouncilo[1927oWNo247]o).o Theodutyoofotheoowner/occupieroofotheopremisesobyotheosideoofo theoroadowhereonopersonsolawfullyopassoby,oextendsotooguardingo againstowhatomayohappenojustobyotheosideoofotheopremisesoono accountoofoanythingodangerousoonotheopremises.oTheopremiseso musto beo maintainedo ino ao safeo stateo ofo repair.o Theo owner/occupierocannotoescapeotheoliabilityoforoinjuryocausedobyo anyodangerousothingoexistingoonotheopremisesobyopleadingothato heohadoemployedoaocompetentopersonotookeepotheopremisesoino safeorepairs.oInoMunicipaloCorpn.oofoDelhiov.oSubhagwantio[AIRo 1966oSCo1750]oaoclockotowerowhichowaso80oyears'ooldocollapsedo ino Chandnio Chowk,oDelhio causingotheodeatho ofo ao numberoofo persons.o Theiro Lordshipso heldo thato theo ownero couldo noto beo permittedotootakeoaodefenceothatoheoneitheroknewonorooughtotoo haveoknownotheodanger.o"[T]heoowneroisolegallyoresponsibleo irrespectiveoofowhetherotheodamageoisocausedobyoaopatentooroao latentodefect,"o—osaidotheiroLordships.oInoouroopinionotheosameo principleoisoapplicableotootheoowneroofoaotreeostandingobyotheo sideoofoaoroad.oIfotheotreeoisodangerousoinotheosenseothatoono accountoofoanyodiseaseoorobeingodeadotheotreeooroitsobranchoiso likelyo too fallo ando therebyo injureo anyo passer-byo theno sucho ao(1999)o 4o SCCo 317o ato pageo 323otreeo oro brancho musto beo removedosooasotooavertotheodangerotoolife.oItoisopertinentotoonoteo thatoitoisonototheodefenceoofotheoMunicipaloCorporationothatoviso majorooroanoactoofoGodosuchoasoaostorm,otempest,olightningooro extraordinaryoheavyorainohadooccurredocausingotheofalloofotheo branchoofotheotreeoandohenceotheoCorporationowasonotoliable."oo o Thisoapproachothatoaostatutoryocorporationoorolocaloauthorityo canobeoheldoliableoinotortoforoinjuryooccasionedoonoaccountoofo omissiono too oversee,o oro defectiveo supervisiono ofo itso activitieso contractedo outo too anothero agency,o waso alsoo followedo ino o oooCWP-21023-2022o o o o o o o o oo-42-o o o VadodaraoMunicipaloCorporationovoPurshottamoV.oMuranji.o

66.oTheotermsoofotheoagreementowhichotheoNHAIoenteredointoo witho theo concessionaireo clearlyo contemplatedo theo safetyo ofo highwayo userso (Clauseo 18.1.1)o ando ano elaborateo highwayo monitoringo mechanismo (Clauseo 19.1).o Theo agreemento alsoo requiredo anyo unusualo occurrenceso too beo reported;o ano independento engineero waso requiredo to,o ando dido inspecto theo highway.oTheoreportsoofotheoinspectingoengineerorevealothatotheo deficienciesobyowayoofonarrowingoofowaterochannels,oandotheo unusualo collectiono ofo debris,o wereo noted.o Eveno beforeo theo incident,otheoNHAIowasoaliveotoothis;oitohadoseparatelyowrittenotoo Rathod,oandolaterotootheolocaloadministrationoaboutoitothrougho itsoletterodatedo15.04.2011.oThatoletteroisorevealing;oitointeroalia,o statesothat:o "Duringopre-monsoonorainsoallotheoexcavatedomuckohasobeeno carriedotooNH4oalongwithorainowateroandoblockoSataraoboundo trafficolaneoforoquiteo someo time.o Theoproblemowillo beo severeo duringoheavyorainsoofoJulyoandoAugust.o Asosuchosafetyoofohighwayoandotunneloisocompletelyoatostakeodueo tooindiscriminateocuttingoofohillsoonoupperosideoofotunneloando bothotheoend."o

67.oHavingoregardotootheodutyoimposedoonotheoNHAIobyovirtueo ofoSectionso4oando5oofotheoHighwaysoAct,oreadowithoSectiono16o ofotheo NHAIo Act,o thereo canobeonoo mannero ofo doubto thatotheo NHAIo waso responsibleo foro theo maintenanceo ofo theo2014o (16)o SCCo14ohighway,oincludingotheostretchouponowhichotheoaccidento occurred.oTheoreportoofotheosub-divisionaloofficeroclearlyoshowso thato inspectiono reportso wereo furnishedo too theo NHAIo shortlyo beforeo theo incident,o highlightingo theo deficiencies;o also,o theo NHAI'so correspondenceo witho Rathod,o ando theo localo administration,o revealo thato ito waso awareo ofo theo dangero ando likelihoodooforiskotoohumanolife,oandotheoforeseeabilityoofotheo eventothatoactuallyooccurredolater.oFurther,olettersoaddressedobyo o oooCWP-21023-2022o o o o o o o o oo-43-o o o theolocaloadministrationoandotheoNHAIotooRathodosimilarlyoshowo thatoitowasoincumbentouponohimotootakeoremedialoaction.oTheo failureoofotheoNHAIotooensureoremedialoaction,oandolikewiseotheo failureo byo Rathodo too takeo measureso too prevento theo accident,o primaofacie,odiscloseotheiroliability."o o

27.o o Theoissueoofopublicosafetyoandodisbursementoofocompensationo undero theo Constitutionalo remedieso wereo alsoo consideredo byo theo Hon'bleo SupremeoCourtoinotheomatteroofoSanjayoGuptaoandoothersoVersusoStateoofo U.P.oreportedoaso(2022)o7oSCCo203.oTheorelevantoextractoofotheosameoiso reproducedohereinafterobelow:o "13.oItowasothereafter,otheoDivisionoBenchoofotheoDelhioHigho Courtoinoaojudgmentoreportedoaso"UphaaroTragedyoVictimso Association.o v.o Uniono ofo India"o reportedo aso 2000o SCCo OnLineoDelo216onoticedotheodeviationsoinotheobuildingoplansoofo theotheater.oTheoHighoCourtoconsideredoaosimilaroargumentoaso waso raisedo ono behalfo ofo theo Organizerso hereino ando heldo aso under:o

47.oo XXXo o XXXo o XXXo

48.oInoD.K.oBasuoVs.StateoofoWestoBengalo(Supra)oitowaso heldothatotheoclaimoinopublicolawoforocompensationoforo unconstitutionalodeprivationoofofundamentalorightotoolifeo andoliberty,otheoprotectionoofowhichoisoguaranteedoundero theoConstitution,oisoaoclaimobasedoonostrictoliabilityoandoiso ino additiono too theo claimo availableo ino privateo lawo foro damagesoforotortiousoactsoofotheopublicoservants.oPublico lawo proceedingso serveo ao differento purposeo thano theo privateo lawo proceedings.o Awardo ofo compensationo foro establishedo infringemento ofo theo indefeasibleo rightso guaranteedo underoArticleo 21oofo theo Constitutiono iso ao remedyo availableo ino publico lawo sinceo theo purposeo ofo publicolawoisonotoonlyotoociviliseopublicopowerobutoalsootoo o oooCWP-21023-2022o o o o o o o o oo-44-o o o assureo theo citizenso thato theyo liveo undero ao legalo systemo whereinotheirorightsoandointerestsoshallobeoprotectedoando preserved.o Granto ofo compensationo ino proceedingso underoArticleo 32ooroArticleo 226oofo theo Constitutiono ofo Indiao foro theo establishedo violationo ofo theo fundamentalo rightsoguaranteedounderoArticleo21,oisoanoexerciseoofotheo courtsoundero theo publico lawo jurisdictiono foro penalisingo theo wrongdoero ando fixingo theo liabilityo foro theo publico wrongoonotheoStateowhichofailedoinotheodischargeoofoitso publico dutyo too protecto theo fundamentalo rightso ofo theo citizen.oInotheoassessmentoofocompensation,otheoemphasiso haso too beo ono theo compensatoryo ando noto ono punitiveo element.oTheoobjectiveoisotooapplyobalmotootheowoundso andonoto toopunishotheotransgressoro orotheooffender,o aso awardingo appropriateo punishmento foro theo offenceo (irrespectiveo ofo compensation)o musto beo lefto too theo criminalo courtso ino whicho theo offendero iso prosecuted,o whichotheoState,oinolaw,oisodutyoboundotoodo.oTheoawardoofo compensationo ino theo publico lawo jurisdictiono iso alsoo withoutoprejudiceotooanyootheroactionolikeocivilosuitoforo damagesowhichoisolawfullyoavailableotootheovictimoorotheo heirso ofo theo deceasedo victimo witho respecto too theo sameo matteroforotheotortiousoactocommittedobyotheofunctionarieso ofo theo State.o Theo quantumo ofo compensationo will,o ofo course,odependouponotheopeculiarofactsoofoeachocaseoando noo strait-jacketoformulao canobeo evolvedoinothatobehalf.o Theo reliefo too redresso theo wrongo foro theo establishedo invasionoofotheofundamentalorightsoofotheocitizen,oundero theo publico lawo jurisdictiono is,o thus,o ino additiono too theo traditionaloremediesoandonotoinoderogationoofothem.oTheo amountoofocompensationoasoawardedobyotheoCourtoando paidobyotheoStateotooredressotheowrongodone,omayoinoao givenocase,obeoadjustedoagainstoanyoamountowhichomayo beoawardedotootheoclaimantobyowayoofodamagesoinoaocivilo o oooCWP-21023-2022o o o o o o o o oo-45-o o o suit.oDr.Dhawanoalsooreliedouponotheojudgmentoreportedo aso M.C.o Mehtao Vs.Uniono ofo India,o 1987o (1)o Supremeo CourtoCaseso395,otoocontendothatotoojustifyotheoawardoofo compensation,otheorequirementoisothatoinfringementomusto beogross,opatent,oincontrovertibleoandoexofacieoglaring.oIto isoalsoohisosubmissionothatotheoremedyoofodamagesowasoano extraoordinaryoremedyowhereothereowasogrossoviolationo arisingo outo ofo deliberateo actiono oro maliciouso actiono resultingo ino deprivationo ofo personalo liberty.o Ito iso submittedothatotheoexemplaryodamagesoinopublicolawowereo nototoobeoconfusedowithodamagesoinoprivateolawoforowhicho privateo lawo remedieso wereo available.o Theo damageso availableoforoconstitutionalowrongsowereobyoveryonatureo exemplaryo ando haveo ao limitedo meaningo ando wereo noto intendedotoobeocompensatoryoinonature.oInosupportoofohiso contentions,oheorefersotootheojudgmentsoofotheoSupremeo Courto ino Nilabatio Beharao Vs.Stateo ofo Orissa,o 1993o (2)o SupremeoCourtoCaseso746oandoIndianoCounciloforoEnviroo LegaloActionoandoOthersoVs.UnionoofoIndiaoandoOthers,o 1996o(3)oSupremeoCourtoCaseso212.oInoNilabatioBeharao Vs.Stateo ofo Orissa(Supra),o ito waso heldo byo theo Supremeo Courtothatoitowould,ohowever,obeoappropriateotoospelloouto clearlyotheoprincipleoonowhichotheoliabilityoofotheoStateo arisesoinosuchocasesoforopaymentoofocompensationoandotheo distinctiono betweeno thiso liabilityo ando theo liabilityo ino privateolawoforopaymentoofocompensationoinoanoactionoono tort.o Ito mayo beo mentionedo straightwayo thato awardo ofo compensationo ino ao proceedingo underoArticleo 32obyo theo SupremeoCourtoorobyotheoHighoCourtounderoArticleo226oofo theo Constitutiono iso ao remedyo availableo ino publico law,o basedoonostrictoliabilityoforocontraventionoofofundamentalo rightsotoowhichotheoprincipleoofosovereignoimmunityodoeso notoapply,oevenothoughoitomayobeoavailableoasoaodefenseo ino privateo lawo ino ano actiono basedo ono tort.o Thiso iso ao o oooCWP-21023-2022o o o o o o o o oo-46-o o o distinctionobetweenotheotwooremediesotoobeoborneoinomindo whichoalsooindicatesotheobasisoonowhichocompensationoiso awardedoinosuchoproceedings.oWeoshallonoworeferotootheo earliero decisionso ofo thiso courto aso wello aso someo othero decisionsobeforeofurtherodiscussionoofothisoprinciple.oTheo compensationo iso ino theo natureo ofo 'exemplaryo damages'o awardedo againsto theo wrongdoero foro theo breacho too itso publicolawodutyoandoisoindependentoofotheorightsoavailableo tootheoaggrievedopartyotooclaimocompensationounderotheo privateolawoinoanoactionobasedoonotort,othroughoaosuito institutedo ino ao courto ofo competento jurisdictiono or/ando prosecuteotheooffenderounderotheopenalolaw.o

49.oInoIndianoCounciloforoEnvirooLegaloActionoandoOtherso Vs.UnionoofoIndiaoandootherso(Supra),otheoSupremeoCourto hadoheldothatoevenoifoitoisoassumedothatotheoCourtocannoto awardodamagesoagainstotheorespondentsoinoproceedingso underoArticleo32oofotheoConstitutionoofoIndiaothatowouldo noto meano thato theo Courto couldo noto directo theo Centralo Governmento too determineo ando recovero theo costo ofo remedialo measureso fromo theo respondents.o Ito waso heldo thatoSectiono3oofotheoEnvironmento(Protection)oAct,o1986o expresslyoempoweredotheoCentraloGovernmentotoomadeo allosuchomeasuresoasoitodeemsonecessaryooroexpedientoforo theopurposeoofoprotectingoandoimprovingotheoqualityoofo environment.o Theo righto too claimo damageso waso lefto byo institutionoofosuitsoinoappropriateoCiviloCourtsoandoitowaso heldothatoifosuchosuitsowereofiledoinoformaopauperis,otheo StateoofoRajasthanoshallonotoopposeothoseoapplicationsoforo leaveotoosueoinoformaopauperis.o xxxoxxxo

52.oWeohaveogivenoourothoughtfuloconsiderationotootheo argumentsoadvancedobyoDr.RajeevoDhawanothatopublico o oooCWP-21023-2022o o o o o o o o oo-47-o o o laworemediesobyowayoofowritopetitionoareonormallyolimitedo too givingo directions,o providingo interimo ando finalo injunctiveo reliefso ando quashingo decisionso whicho areo violativeo ofo theo fundamentalo rightso oro violationo ofo lawo ando thato theo remedyo ofo damageso ino publico lawo iso noto availableo foro eacho ando everyo transgressiono ofo fundamentalo rightso noro ultrao vireso actso byo themselveso giveo riseo too damageso ando thato whereo theo disputeso questionsoofofactoinvolved,otheopartyoshouldobeoleftotootheo normalocourseoofogettingotheomatterodecidedobyoaoCivilo Courto buto weo haveo noto beeno ableo too makeo ourselveso agreeableowithoDr.RajeevoDhawan.oWeohaveoalreadyoheldo ino ouro judgmento datedo 29tho February,o 2000o thato theo petitionoforoclaimingodamagesoinopublicolawobyofilingoao petitiono underoArticleo 226oofo theo Constitutiono ofo Indiao wasomaintainable.oWeohaveoalsooalreadyoheldothatoitowaso notoaomatteroinowhichohighlyodisputedoquestionsoofofacto aroseoandoitoappearsotoobeoaomatteroinowhichofactsocouldo beoascertainedoveryoeasily.oTheoearlieroobservationsoofo theoCourt,oinoouroview,oareorelevantotooquoteoatothisostageo asounder:o Xxxo xxxxo xxxxo xxxxo xxxxo xxxxo xxxxo xxxo xxxxo

14.oAnoappealoagainstotheosaidoorderowasopartlyoallowedo ino"oMunicipaloCorporationoofoDelhi,oDelhiov.oUphaaro Tragedyo Victimso Associationo &o Ors"o reportedo aso "(2011)o14oSCCo481.owhereinothisoCourtoheldoasounder:o "60.o Theo contentiono ofo theo licenseeo iso whato couldo beo awardedo aso ao publico lawo remedyo iso onlyo ao nominalo interimooropalliativeocompensationoandoifoanyoclaimantso (legaloheirsoofotheodeceasedooro14o(2011)o14oSCCo481anyo injured)owantedoaohigherocompensation,otheyoshouldofileoao suitofororecoveryothereof.oItowasocontendedothatoasowhato VISHAL SHARMA wasoawardedowasoanointerimooropalliativeocompensation,o o oooCWP-21023-2022o o o o o o o o oo-48-o o o theo Higho Courto couldo noto haveo assumedo theo monthlyo incomeoofoeachoadultowhoodiedoasobeingonotolessothanoRso 15,000o ando theno determiningo theo compensationo byo applyingotheomultiplieroofo15owasoimproper.oThisogiveso riseotootheofollowingoquestiono:owhetherotheoincomeoando multipliero methodo adoptedo too finallyo determineo compensationocanobeoarrivedoatowhileoawardingotentativeo oro palliativeo compensationo byo wayo ofo ao publico lawo remedyounderoArticleo226ooro32oofotheoConstitution?o xxoxxoxxo

64.oTherefore,owhatocanobeoawardedoasocompensationobyo wayoofopublicolaworemedyoneedonotoonlyobeoaonominalo palliativeoamount,obutosomethingomore.oItocanobeobyowayo ofomakingomonetaryoamountsoforotheowrongodoneoorobyo wayo ofo exemplaryo damages,o exclusiveo ofo anyo amounto recoverableoinoaociviloactionobasedoonotortiousoliability..o .....................o xxoxxoxxo

67.oInsofaroasodeathocasesoareoconcernedotheoprincipleoofo determiningo compensationo iso streamlinedo byo severalo decisionsoofothisoCourt.o(SeeoforoexampleoSarlaoVermaov.o DTCo[(2009)o6oSCCo121o:o(2009)o2oSCCo(Cri)o1002o:o

(2009)o2oSCCo(Civ)o770]o.)oIfothreeofactorsoareoavailableo theocompensationocanobeodetermined.oTheofirstoisotheoageo ofotheodeceased,otheosecondoisotheoincomeoofotheodeceasedo andotheothirdoisonumberoofodependentso(toodetermineotheo percentageo ofo deductiono foro personalo expenses).o Foro convenienceo theo thirdo factoro cano alsoo beo excludedo byo adoptingo ao standardo deductiono ofo one-thirdo towardso personalo expenses.o Thereforeo justo twoo factorso areo requiredotoobeoascertainedotoodetermineotheocompensationo ino59oindividualocases.oFirstoisotheoannualoincomeoofotheo deceased,otwo-thirdsoofowhichobecomesotheoannualolossoofo dependency;oandosecond,otheoageoofotheodeceasedowhicho o oooCWP-21023-2022o o o o o o o o oo-49-o o o willo furnisho theo multipliero ino termso ofo Sarlao Vermao [(2009)o6oSCCo121o:o(2009)o2oSCCo(Cri)o1002o:o(2009)o2o SCCo (Civ)o 770]o .o Theo annualo losso ofo dependencyo multipliedobyotheomultiplierowillogiveotheocompensation.o Asothisoisoaocomparativelyosimpleoexercise,oweodirectotheo Registraro Generaloofo theo Delhio Higho Courtotoo receiveoo applicationsoinoregardotoodeathocases,ofromotheoclaimantso (legaloheirsoofotheodeceased)owhoowantoaocompensationoino excessoofowhatohasobeenoawarded,othatois,oRso10olakhs/Rso

7.5olakhs.oSuchoapplicationsoshouldobeofiledowithinothreeo monthsofromotoday.oHeoshalloholdoaosummaryoinquiryoando determineo theo compensation.o Anyo amounto awardedo ino excessoofowhatoisoherebyoawardedoasocompensationoshallo beoborneoexclusivelyobyotheotheatreoowner.oTooexpediteo theo processo theo claimantso concernedo ando theo licenseeo witho theiro respectiveo counselo shallo appearo beforeo theo Registraro withouto furthero notice.o Foro thiso purposeo theo claimantsoandotheotheatreoowneromayoappearobeforeotheo Registraroono10-1-2012o ando takeofurthero orderso ino theo matter.oTheohearingoandodeterminationoofocompensationo mayobeoassignedotooanyoRegistraroorootheroSenioroJudgeo nominatedo byo theo learnedo Chiefo Justice/Actingo Chiefo JusticeoofotheoDelhioHighoCourt.o xxoxxoxxoo

76.4.oTheolicenseeo(appellantoinoCAoNo.o6748oofo2004)o andotheoDelhioVidyutoBoardoareoheldojointlyoandoseverallyo liableo too compensateo theo victimso ofo theo Uphaaro fireo tragedy.o Thougho theiro liabilityo iso jointo ando several,o aso betweenothem,otheoliabilityoshallobeo85%oonotheopartoofo theolicenseeoando15%oonotheopartoofotheoDVB."o

15.o oIno ao separateo order,o Hon'bleo Mr.o Justiceo K.S.P.o Radhakrishnanoheldoasounder:o o oooCWP-21023-2022o o o o o o o o oo-50-o o o "78.oPrivateolawocausesoofoaction,ogenerallyoenforcedobyo theoclaimantsoagainstopublicobodiesoandoindividuals,oareo negligence,o breacho ofo statutoryo duty,o misfeasanceo ino publico office,o etc.o Negligenceo aso ao torto iso ao breacho ofo legalodutyotootakeocareowhichoresultsoinodamageooroinjuryo too another.o Breacho ofo statutoryo dutyo iso conceptuallyo separateoandoindependentofromootherorelatedotortsosucho asonegligenceothoughoanoactionoforonegligenceocanoalsoo ariseo aso ao resulto ofo cursoryo ando malao fideo exerciseo ofo statutoryopowers.oRightoofoanoaggrievedopersonotoosueoino ordinaryocivilocourtsoagainstotheoStateoandoitsoofficialso andoprivateo personso throughoano actionoino tortoandotheo principlesotoobeofollowedoinoconsideringosuchoclaimsoareo wellosettledoandorequireonoofurtheroelucidation.o oxxoxxoxxo

80.oWeoareoprimarilyoconcernedowithotheopowersoofotheo constitutionalo courtso ino entertainingo sucho monetaryo claimso raisedo byo theo victimso againsto theo violationo ofo statutoryo provisionso byo theo licensingo authorities,o licensees,o ando otherso affectingo theo fundamentalo rightso guaranteedo too themo undero theo Constitution.o Theo constitutionalocourtsoinosuchosituationsoareoexpectedotoo vindicateo theo partieso constitutionally,o compensateo themo foro theo resultingo harmo ando alsoo too detero futureo misconduct.o Theo constitutionalo courtso seldomo exerciseo theiro constitutionalo powerso too examineo ao claimo foro compensationomerelyodueotooviolationoofosomeostatutoryo provisionsoresultingoino monetaryo lossotootheo claimants.o Mostoofotheocasesoinowhichocourtsohaveoexercisedotheiro constitutionalopowersoareowhenothereoisointenseoseriouso violationoofopersonaloliberty,orightotoolifeooroviolationoofo humanorights.o o oooCWP-21023-2022o o o o o o o o oo-51-o o o

93.o Liabilityo too compensateo foro infringemento ofo fundamentalo rightso guaranteedo underoArticleo 21owaso successfullyoraisedoinoKhatrio(2)ov.oStateoofoBiharo[(1981)o 1oSCCo627o:o1981oSCCo(Cri)o228]o(BhagalpuroBlindedo Prisonersocase).o xxoxxoxxo

96.oCourtsohaveoheldothatodueotootheoactionooroinactionoofo theoStateooroitsoofficers,oifotheofundamentalorightsoofoao citizeno areo infringedo theno theo liabilityo ofo theo State,o itso officialsoandoinstrumentalities,oisostrict.oTheoclaimoraisedo foro compensationo ino sucho ao caseo iso noto ao privateo lawo claimo foro damages,o undero whicho theo damageso recoverableoareolarge.oTheoclaimomadeoforocompensationo ino publico lawo iso foro compensatingo theo claimantso foro deprivationoofolifeoandopersonalolibertyowhichohasonothingo toodoowithoaoclaimoinoaoprivateolawoclaimoinotortoinoano ordinaryocivilocourt.o xxoxxoxxo

98.oBut,oinoaocase,owhereolifeoandopersonalolibertyohaveo beenoviolated,otheoabsenceoofoanyostatutoryoprovisionoforo compensationoinotheostatuteoisoofonooconsequence.oRighto toolifeoguaranteedounderoArticleo21oofotheoConstitutionoofo Indiaoisotheomostosacredorightopreservedoandoprotectedo undero theo Constitution,o violationo ofo whicho iso alwayso actionableo ando thereo iso noo necessityo ofo statutoryo provisionoasosuchoforopreservingothatoright.oArticleo21oofo theoConstitutionoofoIndiaohasotoobeoreadointooallopublico safetyo statutes,o sinceo theo primeo objecto ofo publico safetyo legislationoisotooprotectotheoindividualoandotoocompensateo himo foro theo losso suffered.o Dutyo ofo careo expectedo fromo Stateooroitsoofficialsofunctioningounderotheopublicosafetyo legislationo is,o therefore,o veryo high,o comparedo too theo o oooCWP-21023-2022o o o o o o o o oo-52-o o o statutoryo powerso ando supervisiono expectedo fromo theo officersofunctioningounderotheostatutesolikeotheoCompanieso Act,o theoCooperativeo Societieso Actoando sucho similaro legislations.oWhenoweolookoatotheovariousoprovisionsoofo theoCinematographo Act,o 1952o ando theo Ruleso madeo thereunder,o theo Delhio Buildingo Regulationso ando theo Electricityolawsotheodutyoofocareoonoofficialsowasohighoando liabilitiesostrict."o(EmphasisoSupplied)o

16.oo Weofindotheoprecedentsoforopaymentoofocompensationoinoao writo petitiono underoArticleo 32oofo theo Constitutiono fallo undero threeocategoriesoofocases.oFirstocategoryoisowhereotheoactsoofo commissiono oro omissiono areo attributedo too theo Stateo oro itso officersosuchoaso"NilabatioBehera,oSubeoSingh,oRuduloSahov.o StateoofoBiharo&oAnr."oreportedoaso(1993)o2oSCCo746,oBhimo Singh,oMLAov.oStateoofoJo&oKo&oOrs.oreportedoaso(2006)o3oSCCo 178o o ando"D.K.o Basuo v.o Stateo ofo W.B"o reportedo aso (1997)oooooooooooooooo 1oSCCo416.o o XXXo XXXo XXXo

58.oo Theo Stateo haso paido Rs.2o lakhso eacho aso ex-gratiao compensationotootheofamiliesoofotheodeceased,oRs.1olakhoeachoforo theopersonsowhoosufferedoseriousoinjuriesoandoRs.50,000/-oeacho forotheopersonsosufferingofromominoroinjuriesowhereasotheoUniono ofoIndiaohasopaidoex-gratiaocompensationoofoRs.1olakhoeachoforo theo deceasedo ando Rs.50,000/-o eacho foro thoseo witho seriouso injuries.oInotermsoofotheoorderoofothisoCourt,otheoStateohasopaido Rs.5olakhsoeachotootheodeceased,oRs.2olakhsoeachotootheovictimso sufferingoseriousoinjuriesoandoRs.o75,000/-oeachotootheovictimso sufferingo minoro injuries,o aparto fromo theo amounto paido byo theo UnionoofoIndia.o

59.oo Theo listo ofo deceasedo ando injuredo personso haso beeno producedo byo theo learnedo counselo foro theo petitioners.o Theo amountoofocompensationopayableotooeachoofotheovictimoincludingo o oooCWP-21023-2022o o o o o o o o oo-53-o o o theofamiliesoofotheodeceasedohaveonotobeenocomputedoandosucho amounto iso requiredo too beo computedo ino accordanceo witho theo principlesoofojustocompensationoasoinotheocaseoofoaccidentoundero theoMotoroVehicleoAct,o1988obyotheoMotoroAccidentsoClaimso Tribunal."o

28.o o Evenothough,otheoStateoofoPunjaboandoHaryanaohaveoframedo certainoguidelinesoforocompensatingotheocitizensoforotheoinjurieso(fatal/non-fatal)o sustainedo byo themo aso ao resulto ofo strayo animalso includingo dogs,o however,o noo sucho policyo haso beeno notifiedo byo theo respondent-U.T.o Chandigarho aso wello aso Municipalo Corporation.o Publico safetyo beingo ao sovereignofunctionoandotheoprimeoresponsibilityoofotheoState,ohenceotheo Stateowouldoremainoliableoforoanyodangerothatohasooccasionedotoopublico safety.oDivestingotheoresponsibilityotootheoMunicipaloCorporation,oisoonlyoao mechanismo puto ino placeo byo theo Stateo Governmento foro checkingo theo menace.oTheofailureoisothusojointoandoseveral.oo

29.o o Hence,otheorespondentsoareoheldoliableoonotheoprinciplesoofo strictoliabilityoforotheoomission/lapsesoonotheiropart.oTheyoareothusoliableotoo compensateotheopetitioneroforotheomentaloandophysicalotraumaosufferedobyo herodueotootheodogobite.oo

30.o o Theo sameo nexto leadso too theo determinationo ofo theo pointo ofo compensation.oo

31.o o TheopetitionerohasoalthoughoclaimedocompensationoofoRs.o1o croreoandohasobasedotheosameoonotheoprospectiveoimpairmentowhichoitohaso ono theo careero ofo theo petitionero aso ao professionalo Tenniso player.o Theo monthlyo expenseso incurredo byo hero parentso foro hero training,o theo sportso eventsothatosheoisolikelyotooskipobetweenoherorecoveryoandoconsideringothato o oooCWP-21023-2022o o o o o o o o oo-54-o o o theopetitioneroiso19oyearsooldoandoatotheopeakoofoheroenergyoinoherocareeroaso wello aso theo paino sufferedo byo hero alongwitho ao mentalo trauma.o Theo respondents,oinotheiroreplyohaveonotowhisperedoanythingowithorespectotoo theo quantumo ofo compensationo ando haveo noto disputedo oro deniedo theo incident.oHowever,oevenothoughotheoreplyomayonotobeoveryoresponsive,o yet,osuchocomputationoisoaomatteroofoevidenceoandohasotoobeobestoleftotoobeo establishedo ono theo strengtho ofo evidenceo thato mayo beo adducedo beforeoao competentoCiviloCourt.oo

32.o o Theoonlyodefenceotakenobyotheorespondentsoisothatotheomattero withorespectotootheoActoofo1960oandoRulesoofo2001oisopendingobeforeotheo Hon'bleoSupremeoCourtoofoIndiaowhichohasorequestedotheoHighoCourtsotoo notopassoanyoorderoonotheoaforesaidoActoandoRules.oTheosaidojudgment,o however,odoesonotocomeotootheorescueoofotheorespondentsoinotheopresento caseoinasmuchoasothisoCourtoisoexaminingotheoissueoofocompensationotoobeo awardedo too ao citizeno foro theo injurieso sufferedo byo themo ando iso noto commentingo upono theo mannero ofo applicability/enforcemento ofo theo provisionsoofotheoActoofo1960oandotheoRulesoofo2001onotifiedothereunder.oo

33.o o Ino viewo ofo theo circumstanceso noticedo aboveo ando theo undisputedofacts,otheointerimofinancialoassistanceoofoRs.o5,00,000/-oiso awardedotootheopetitionerotoobeopaidobyotheorespondent-Chandigarho AdministrationoandoMunicipaloCorporation,oChandigarhojointlyoando severally.o Theo Commissioner,o Municipalo Corporationo iso directedo too releaseotheoaforesaidofinancialoassistanceowithinoaoperiodoofo06oweekso fromo theo receipto ofo ao certifiedo copyo ofo thiso order.o Theo aforesaido VISHAL SHARfMinAancialoassistanceoisowithoutoprejudiceotootheorightsoofotheopetitionerotoo o oooCWP-21023-2022o o o o o o o o oo-55-o o o fileoanoappropriateosuitoforoclaimingodamagesobeforeoaocompetentoCourt.o Theoperiododuringowhichotheopresentopetitionohasoremainedopendingoshallo beotakenointooconsiderationowhileocomputingotheolimitationoforoinstitutiono ofosuchosuit.oo o o Theowritopetitionoisoaccordinglyodisposedoof.oo o oo oo o o o o o oooo(VINODoS.oBHARDWAJ)oo AUGUSTo22,o2023o o o o o o ooJUDGEo VishaloSharmao o o o Whetherospeaking/reasonedo :o Yes/Noo o o o WhetheroReportableo o :o Yes/Noo