National Green Tribunal
Nandakumar Waman Pawar vs Maharashtra Industrial Development ... on 11 February, 2026
BEFORE THE NATIONAL GREEN TRIBUNAL
WESTERN ZONE BENCH, PUNE
THROUGH PHYSICAL HEARING (WITH HYBRID OPTION)
**********
ORIGINAL APPLICATION NO.108 OF 2022 (WZ)
I.A. NO.38 OF 2023 (WZ)
IN THE MATTER OF:
1. Nandakumar Waman Pawar
Residing at Nandakumar Pawar House,
Opp. Jagannath Darshan, MD Keni Rd.,
Nahur (E), Mumbai - 400 042.
Also residing at Govind Kalan,
Salkunj Banglow, Sagarli Road,
Near Parvati Mahadev Mandir,
Azad Pada, Kalyan, Thane- 421 203.
2. Praful Shamtaram Patil
Residing at 1st floor, Vighnesh Apartment,
Sonarpada, near Kaverti Super market,
Dombivali East, Kalyan, Manpada,
Kalyan, Thane- 421 204.
.....Applicants
Versus
1. Maharashtra Industrial Development Corporation
Through its Chief Executive Officer
Dr. Vipin Sharma,
Having its office at Udyog Sarathi,
Mahankali Caves Road,
Andheri (E), Mumbai - 400 093.
2. Maharashtra Pollution Control Board
Through its Member Secretary
Having its office at Kalpataru Point,
3rd and 4th floor, Opp. PVR Cinema,
Sion Circle, Mumbai- 400 022.
3. Directorate of Industrial Safety and Health
Through its Director,
Having its office at Kamgar Bhawan, 5th Floor,
C-20, E-Block, Opp R.B.I.,
Bandra-Kurla Complex, Bandra (E).
Mumbai- 400 051.
4. Central Pollution Control Board,
Through its Chairman,
Having its office at Parivesh Bhawan,
East Arjun Nagar, Delhi-110 032.
Original Application No.108 OF 2022 (WZ) Page 1 of 30
5. Kalyan- Ambernath Manufacturers Association
Through its President,
Having its office address at Plot No 7,
MIDC, Phase I, MIDC, Dombivali East,
Dombivali, Maharashtra - 421 203.
.....Respondents
Counsel for the Applicants:
Mr. Zaman Ali, Advocate along-with
Mr. Yogesh H. Pandey, Advocate
Counsel for the Respondents:
Mr. Prashant Chawan, Senior Advocate along-with
Ms. Hemal Dedhia, Advocate i/b.
Mr. Navdeep Vora & Associates, for R-1/MIDC
Ms. Manasi Joshi, Advocate along-with
Ms. Pooja Natu, Advocate for R-2/MPCB
Mr. Aniruddha Kulkarni, Advocate for R-4/CPCB
Mr. Saket Mone, Advocate along-with
Mr. Abhishek Salian, Advocates for R-5/PP
PRESENT:
Hon'ble Mr. Justice Dinesh Kumar Singh (Judicial Member)
Hon'ble Dr. Sujit Kumar Bajpayee (Expert Member)
Reserved on : 09.01.2026
Pronounced on : 11.02.2026
JUDGMENT
1. This Original Application has been filed with the prayers that a direction may be issued to Respondent No.1- Maharashtra Industrial Development Corporation (MIDC) and Respondent No.4- Central Pollution Control Board to demolish the illegally occupied and unlawful industrial structures, constructed/ erected over the open marginal spaces and/ or carried out illegal extensions and additions in their respective industrial premises in Phase- I and Phase- II of the Dombivali Industrial Area, in the interest of environment under the precautionary principle; a direction may be issued to the Respondents, i.e. Respondent No.1- MIDC, Respondent No.2- Maharashtra Pollution Control Board, Respondent No.3- Directorate Original Application No.108 OF 2022 (WZ) Page 2 of 30 of Industrial Safety and Health and Respondent No.4- Central Pollution Control Board, to ensure that all the safety norms concerning maintenance of open marginal spaces are strictly followed as provided under the law; etc.
2. In the body of this application, it is submitted by the applicants that applicant No.1 is a fisherman by profession and applicant No.2 is a public-
spirited person and is involved in construction activities and transport business. They have filed the present Original Application having been aggrieved by the illegal/ unlawful industrial encroachments on the open spaces by constructing illegal, unregulated, unsystematic and dangerous boiler plants, extended chemical processing units, cooling towers, scrubbing structures, hazardous units, chemical and acid tanks, etc. by various industries situated in Dombivali Industrial area. The said illegal industrial encroachments have resulted in various industrial accidents in the State of Maharashtra, such as blasts due to fire in unregulated boilers, thereby causing deaths and injuries to number of employees working in the industries and the environmental health has also been jeopardised and put to grave risk on account of non-compliance of the safety norms by these industrial units in the Dombivali Industrial area.
3. Further, it is mentioned in this application that the Dombivali Industrial area was set up in the year 1964, which is located 45 kms. away from Mumbai and 35 kms. away from Thane. The said industrial area is divided into two parts- Phase I and Phase II. Phase- I spreads over an area of 148 Ha., while Phase- II spreads over an area of 97 Ha. The population of Dombivali is over and above seven lakhs, out of which around two lakh people live in the residential area situated between Phase I and Phase II.
Original Application No.108 OF 2022 (WZ) Page 3 of 304. Further, it is mentioned in this application that there are more than 500 industries located in the Dombivali Industrial area and majority of these industries are not only polluting industries, but have also illegally and unlawfully encroached upon open spaces in the industrial area. It is further mentioned that on 09th January, 2012, an industrial accident was caused by a minor fire incident in M/s. May Aerofine Chemical industries, situated in Phase- II of the Industrial area of Dombivali; on 26th March, 2012, a major fire broke out in Pioneer Dying Pvt. Ltd. situated in the Phase- I of the industrial area of Dombivali; on 11th October, 2012, a major fire broke out at Mahesh Textile Pvt. Ltd. situated in Phase- I, etc., which resulted in death and injuries to the workers.
5. Further, it is mentioned in this application that on 04th May, 2017, Applicant No.1 filed seven RTI applications, seeking therein documents showing the status and action taken on the Show Cause Notices dated 20th August 2015. In response to that, Respondent No.1- MIDC ambiguously replied to the said RTI application, stating therein that the information about the status and action taken on the show cause notices issued to the industries are not available with them.
6. Further, it is mentioned in this application that the survey chart of the industrial units, which was procured by the applicants under the Right to Information Act, would show that various industrial units have illegally and unlawfully encroached upon the open spaces by setting up boilers, reactors, chemical processing units, etc., in contravention to the safety measures, as laid down by the Development Control Regulations, a copy of which is annexed as Annexure- A-10 to this application. As per this Survey Chart, large number of industrial units, such as Navratna Processors situated on Plot Nos. A - 93 and B - 30; Krishna (B) Pvt. Ltd.
Original Application No.108 OF 2022 (WZ) Page 4 of 30situated on Plot no. B-32, etc. are said to have illegally encroached upon the open spaces from all sides with boiler and chemical processing units.
7. Further, it is mentioned in this application that under Section 7 of the Boiler Act, 1923, an owner of the boiler is supposed to get the registration done and thereafter, an inspector inspects the boiler plant for its satisfaction from the point of view of complete safety. Therefore, a careful safety analysis by an Inspector is sine qua non of erecting a boiler plant in an industry, barring which no such boiler plants can be set up in any industrial area. But the industrial units in Dombivali are in clear breach of the provisions of Boilers Act, 1923, thereby putting the life of the workers working in these industries as well as the environment in grave risk.
8. Further, it is mentioned in this application that the Development Control Regulations (DCR), 2009 of MIDC provides for a mandatory procedure which is required to be followed by the industrial units for the development of any structure/ building. As per clause nos.3 to 8 of the DCR, 2009, no person shall erect or re-erect a building or any temporary structure without obtaining prior development permission from the MIDC.
Further, the development work of the structures shall be planned, designed, submitted and supervised by the registered professionals. The decision of granting or refusing to grant permission for the construction of any building structure is solely on the MIDC. It is only after such necessary procedures and approvals that any person and/ or industrial unit can construct a structure/ building in the industrial area of Dombivali. However, failure on part of the industrial units to follow any necessary procedure as enumerated under the DCR shall render the structure/ building constructed/ erected by them as illegal and unlawful.
Original Application No.108 OF 2022 (WZ) Page 5 of 309. Further, it is mentioned in this application that as per Section 44(i) of the Maharashtra Industries Development Act, 1961, the Corporation is empowered to pass an order directing the demolition of any building structure in an estate or industrial area which has been erected in contravention to the provisions of the said Act within such a period not exceeding two months.
10. Further, it is mentioned in this application that there is non-
compliance of the order dated 25th June 2021 passed by this Tribunal in Original Application No.134 of 2021, in which following was stated:-
"16. .... Hazardous activities need to regulate in terms of quality of material to be used in the process of hazardous activities, number of persons to be allowed to work and safeguard to be followed and monitoring compliance of such safeguards. Apart from the measures suggested by the Committee, there is also need for a study of the potential for accidental, occupational and environmental hazards from such activities in the State. The study may include number of units to be allowed, size of operation of such units, quantity of material to be used, siting criteria for location of the units, arrangement for fire management and health services. Let such study be conducted by the Director of Industrial Safety in coordination with the State PCB and CPCB within three months and report submitted to the Chief Secretary, Maharashtra for further action. The Committee may take the assistance of any other experts/individual."
11. Having cited above order, it is submitted by the applicants that till date, Respondent Authorities have failed to undertake any such study and/ or have failed to file any such report with respect to the hazardous materials and industrial accidents in the industrial area of Dombivali, which was directed to be conducted. Hence, the above prayers are made by the applicants.
Original Application No.108 OF 2022 (WZ) Page 6 of 3012. The matter was first considered by this Tribunal on 02.12.2022 when the same was admitted and notices were issued to the Respondents to file their reply affidavits in this matter.
13. Record reveals that by our previous order dated 08.08.2024, we had constituted the same Committee, which was constituted by the Tribunal for conducting the study in Original Application No.134 of 2021, comprised members of Maharashtra Pollution Control Board, Central Pollution Control Board, Chief Fire Officer, Maharashtra Industrial Development Corporation (MIDC), Controller of Explosives, Additional/Joint Director of Industrial Safety and Health, Mumbai, and submitted its report with respect to the illegal encroachment and additional construction undertaken by each of the industrial unit in Dombiwali Industrial Area in Phase-I and Phase-II, within a period of three months.
14. Thereafter, in our previous order dated 03.01.2025, we had mentioned that in view of the order dated 25.06.2021 passed in Original Application No.134 of 2021, the purpose and scope of the Committee was different and that the work for conducting survey concerning the illegal encroachments and additional constructions still would fall within the purview of Respondent No.1 - MIDC. Therefore, on formal discussions with the Officers of the MIDC during meeting dated 12.12.2024, a survey regarding illegal encroachments and additional constructions had already been undertaken by the MIDC. In that backdrop, it was prayed that the Committee constituted in Original Application No.134 of 2021 may be exempted from the present work. Thereafter, it was mentioned in this order that from perusal of the affidavit filed by Respondent No.3- DISH, we found that the Joint Director of Industrial Safety and Health, Kalyan, which was a nodal agency of the Joint Committee, was shirking its Original Application No.108 OF 2022 (WZ) Page 7 of 30 responsibility by stating that the job in hand falls in the domain of MIDC only. Since the MIDC was also one of the members of the said Committee, we directed that whatever assistance was needed by the Joint Director, Industrial Safety and Health from the MIDC, can be had from the MIDC and if any obstruction was created from the side of MIDC, then a specific order would be passed by us. Accordingly, a clear instruction was given to Respondent No.3 to carry out the said study/survey within a period of eight weeks and to submit its report within three months.
15. Thereafter, Respondent No.3 submitted its Survey Report of the factories in Dombivali Phase- I & II regarding Illegal Encroachment and Additional Construction on 24.04.2025, which is annexed from page nos.920 to 958 of the paper book. A copy of the same is annexed as Annexure- 1 to this Judgment.
16. In the above Survey Report, total number of working Industrial Units/ Companies in MIDC Dombivali Industrial Area are shown to be 281 in Phase- I; and 364 in Phase-II, i.e. total number of working units in Phase- I & II are 645. Total number of closed units in MIDC Dombivali Industrial Area in Phase- I & II are shown to be 88. Therefore, it appears that in all 733 units were surveyed by the Joint Committee and out of them, regarding large number of industries, names of which are contained in Annexure- 1 to this Judgment, it was found that the said industries have encroached upon the area adjacent to it for various purposes, such as establishing of boiler and additional construction of other purposes, which are found to be illegal. Therefore, we have to consider as to whether we have the authority to pass any order with respect to demolishing these illegal structures in the case in hand or should this Tribunal keep itself confined to passing order with respect to violation of the environmental laws only.
Original Application No.108 OF 2022 (WZ) Page 8 of 3017. Respondent No.3- Directorate of Industrial safety and Health (DISH) has filed reply affidavit dated 17.01.2023, wherein it is submitted that between the period from 01st May, 2020 to 31st December, 2021, total 11 accidents occurred causing 3 fatalities and 3 injuries to the workers in Dombivli MIDC area, details of which are given in para no.3 of this affidavit.
18. It is further mentioned in this affidavit by Respondent No.3- DISH that on 17.06.2021, fire incidence occurred in M/s. Vishal Fire Works, Village Dehane, Tal. Dahanu, Dist.-Palghar, in which 9 workers were injured. Thereafter, the Principal Bench of this Tribunal had initiated suo motu cognizance of the said matter in Original Application No.134 of 2021, based on the media report published in the Hindustan Times dated 17.06.2021. Thereafter, on 25.06.2021, the Tribunal passed an order directing therein to conduct study of the potential for accidental, occupational and environmental hazards from such activities in the State.
The study may include number of units to be allowed, size of operation of such units, quantity of material to be used, siting criteria for location of the units, arrangement for fire management and health services. Such study was directed to be conducted by the DISH in coordination with the State PCB and CPCB and submit its report submitted to the Chief Secretary, Maharashtra for further action.
19. It is further mentioned in this affidavit by Respondent No.3- DISH that pursuant to the above direction, Industries, Energy and Labour Department of the Government of Maharashtra issued G.R. dated 16.12.2021 and constituted a Committee comprising members of Maharashtra Pollution Control Board, Central Pollution Control Board, Chief Fire Officer of Maharashtra Industrial Development Corporation, Controller of Explosive, Addl./Jt. Director, Industrial Safety and Health, Original Application No.108 OF 2022 (WZ) Page 9 of 30 Mumbai under the chairmanship of Director, Industrial Safety and Health.
Thereafter, work of the Committee was started and various meetings were conducted.
20. It is further mentioned in this affidavit by Respondent No.3- DISH that on 01.04.2022, the Hon'ble Supreme Court in Civil Appeal No(s).2045-2046/2022 admitted the appeal and issued notices to the Respondents stating therein that "in the meantime, the operation of the impugned judgment shall remain stayed". Hence, it is said that the said report will be submitted after the final decision of the Hon'ble Supreme Court.
21. From the above affidavit of Respondent No.3- DISH, it appears that Respondent No.3 has taken stand that the study, which was directed to be conducted by the Principal Bench of this Tribunal in Original Application No.134 of 2021, could not be done because of the stay having been granted by the Hon'ble Supreme Court in the above-mentioned Civil Appeal and therefore, it appears that they do not want to proceed in the case in hand based on that Judgment.
22. Respondent No.2- MPCB has filed reply affidavit dated 25.01.2023, wherein we find that the same facts have been reiterated, which we have already taken into consideration while dealing with the reply affidavit of Respondent No.3, therefore, they need not be reproduced here.
23. Respondent No.4- CPCB has filed reply affidavit dated 31.01.2022, in which no additional facts appear to have been mentioned other than what were already mentioned by us above.
24. Respondent No.5- Kalyan Ambernath Manufacturers Association (KAMA) has filed reply affidavit dated 08.03.2023, wherein it is submitted Original Application No.108 OF 2022 (WZ) Page 10 of 30 that the Answering Respondent is merely a representative Society, wherein various industries voluntarily become members for the overall welfare of all the industries in and around the vicinity. The Answering Respondent, in its capacity of merely being an association, is not in a position to deal with the allegations made against such individual members. In absence of such parties, the present Original Application is defective on account of non-joinder of the necessary parties and is required to be dismissed on this ground alone.
25. It is further mentioned in this affidavit by Respondent No.5 that the Answering Respondent represents all kinds of industries- large, medium, and small scale. The Answering Respondent and its members collectively contribute to nearly 60-70% of the industrial turnover in the area with an amount of Rs.1013 crores in the form of Export. The association currently houses approximately 600 members with a capital investment of over Rs.3000 crores and provides employment to more than one lakh workers.
The Answering Respondent serves as the voice of the local business community on all issues pertaining to the expansion of the industry. The Answering Respondent has taken the lead in carrying out actions in the environmental, health and safety sectors, while maintaining an objective viewpoint to protect the interests of its members and at the same time assist in reducing the pollution issues.
26. It is further mentioned in this affidavit by Respondent No.5 that the changes were brought out by the Answering Respondent in various industries, details of which are given in para no.13 of this affidavit from point (a) to (q).
27. It is further mentioned in this affidavit by Respondent No.5 that it is the allegation of the Original Applicant that various industries have Original Application No.108 OF 2022 (WZ) Page 11 of 30 violated the Development Control Regulations and have allegedly encroached upon the open spaces. In this regard, the Answering Respondent has submitted that this Tribunal ought not to entertain the allegations qua DCR violations, as the same is beyond the jurisdiction of this Tribunal, as per Schedule I of the National Green Tribunal Act, 2010.
The allegation with respect to illegal encroachments are vague and are nothing but fishing inquiry without any specific details. Further, the Answering Respondent is unable to categorically deal with the allegations with respect to industries adumbrated in the Original Application, as some of these Industries are not even members of the Answering Respondent's Society and in any case, it is well established that when the parties, against whom allegations are made, are not parties to the proceedings, such allegations ought not to be considered. With respect to the allegations with respect to non-compliance of the provisions of the Boilers' Act, 1923, it is submitted by the Answering Respondent that these allegations are absolutely baseless and vague.
28. With respect to the alleged violations of the provisions of Development Control Regulations for MIDC Rules, 2009, it is further mentioned in this affidavit by Respondent No.5 that the allegation of hazardous storage material is completely false. All the allegations with respect to Industrial Accidents had duly been taken cognizance of by the Tribunal in Original Application No.134 of 2021, the order of which was challenged before the Hon'ble Supreme Court. Therefore, the issue with respect to the alleged industrial accidents is sub-judice before the Hon'ble Supreme Court. In these circumstances, this Tribunal ought not to entertain allegations with respect to the alleged industrial accidents which issue is already pending consideration before the Hon'ble Supreme Court Original Application No.108 OF 2022 (WZ) Page 12 of 30 of India. Almost, all the accidents appear to be of the year 2012, which clearly hit by the law of limitation.
29. With respect to non-compliance of the order dated 25.06.2021 passed by this Tribunal in Original Application No.134 of 2021, it is further mentioned in this affidavit by Respondent No.5 that there is stay granted by the Hon'ble Supreme Court vide its order dated 01st April 2022 in Civil Appeal No. 2045-2046 of 2022. Therefore, there is no question of complying with the said directions.
30. Respondent No.1- MIDC has filed reply affidavit dated 21.03.2023, wherein it is submitted that the Answering Respondent is a Special Planning Authority as per Section 40 (1A) of the Maharashtra Regional Town Planning Act, 1966 (MRTP Act) and has framed separate Development Control Regulations in respect of the MIDC area, which came into force with effect from 07th January, 1999 and the Revised D.C. Regulations-2009 were sanctioned by the State Government's Urban Development Department Notification dated 31st August, 2009, which came into force with effect from 24th September, 2009. The said Development Control Regulations deal with various aspects including open spaces and amenity area to be kept in the various Industrial Areas developed by Respondent No.1. As per the Revised D.C. Regulation, 2009, Clause No.16, the C.E.O, MIDC has discretionary powers to regularize the structures in marginal open spaces for hardship caused by the plot holders.
31. It is further mentioned in this affidavit by Respondent No.1 that above Section of the MID Act, 1961 empowers Respondent No.1 inter alia "to acquire and hold such property, both moveable and immovable as the Corporation may deem necessary for the performance of any of its Original Application No.108 OF 2022 (WZ) Page 13 of 30 activities, and to lease, sell, exchange or otherwise transfer any property held by it on such condition as may be deemed proper by the Corporation".
Thus, the Answering Respondent can acquire the property in its own name and dispose-off on such terms and conditions as it may deem fit in accordance with the Rules and Regulations framed in respect thereof.
Hence, it is submitted that the prayers made by the Applicants in the present Original Application are not maintainable and beyond the purview of this Tribunal. The Original Application raises no substantial question relating to environment as envisaged under the provisions of Sections 14, 15, 17, 18 and 20 of the National Green Tribunal, Act 2010.
32. It is further mentioned in this affidavit by Respondent No.1 that the present Original Application is hopelessly barred by limitation prescribed by Section 14 of National Green Tribunal Act, 2010, as the incidents alleged and the Survey Report of Respondent No.1 and demolition notices issued by Respondent No.1 referred to in the present Application are of the year 2015-16 and the Applicants are seeking direction against the Answering Respondent to act upon the said notices. The survey report is of the year 2016. It is settled position of law that the limitation period starts from the date, on which the cause of action first accrued. In case of multiple causes of actions, for considering the same, the present Original Application ought to have been filed within 6 months from the date of occurrence of the first incident in 2015-16, after that the Applicants had also preferred the W.P. No.8372 of 2017, wherein similar reliefs were claimed by the Applicants and the same was withdrawn vide order dated 20.08.2018. So, in any case, within 6 months from initial cause of action, the present Original Application ought to have been filed by the Applicants. Therefore, the present Application is liable to be dismissed on the ground of being barred by limitation.
Original Application No.108 OF 2022 (WZ) Page 14 of 3033. It is further mentioned in this affidavit by Respondent No.1 that there is absolutely no correlation between alleged encroachments in the open marginal spaces by the industries and the environmental hazards or threat posed by the industries on account of their manufacturing process or activity carried out in the industries, as the same is not regulated by the Answering Respondent. The role of the Answering Respondent is limited to sanctioning plans for construction/ development of the building on the plots allotted by Respondent No.1 as per the D.C. Regulations framed by the Respondent No.1 dated 07.01.1999 and Revised D.C. Regulations-
2009 sanctioned on 24.09.2009. All the necessary environmental clearances and permissions, required for the installation of plant and machinery, are being issued by Respondent Nos.2 to 4. Therefore, it is stated that unless the study is conducted by the Competent Authorities as per the directions issued by this Tribunal by Judgment dated 25.06.2021, no further steps can be taken by the Answering Respondent in furtherance thereof on the ground that any environmental hazard is posed by the defaulting industries. Moreover, so far as the issue of encroachment is concerned, if considered in isolation, without considering its environmental impact, then it becomes an issue beyond the purview of this Tribunal.
34. It is further mentioned in this affidavit by Respondent No.1 that the survey chart of the year 2016 and the notices issued in the year 2015-16 referred to in the present Original Application, have all lapsed now, on account of passage of time and would hold no relevance today due to change in the circumstances. Therefore, no further action can be initiated by Respondent No.1 on the basis of the said survey chart of 2016 and/ or the notices issued in the year 2015-16 which have already lapsed and have become time-barred.
Original Application No.108 OF 2022 (WZ) Page 15 of 3035. It is further mentioned in this affidavit by Respondent No.1 that as per Section 20 of the National Green Tribunal Act, 2010, this Tribunal is also bound to apply the principle of sustainable development, and considering from that angle as well, such blanket prayers of demolition of industries cannot be sustained, as it would have cascading effect and would entail huge financial and developmental repercussions, that too without any substantial proof of the alleged environmental hazard posed by the industries, simplicitor on account of alleged encroachments in open marginal spaces. It is further submitted that even in case of any irregularity regarding the boiler plants, the Answering Respondent is not empowered to issue order of demolition, as the Section 44 (1) of MID Act clearly provides that the order of demolition can be issued only where the terms and conditions, on which the permission for construction of building is granted by the Answering Respondent, has been violated. So far as the permissions regarding boiler plants under the Indian Boilers Act are concerned, the same is not granted by the Answering Respondent.
Therefore, the provisions of Section 44 (1) of MID Act cannot be invoked.
36. Rejoinder affidavit dated 21.03.2023 to the reply affidavit of Respondent No.5-Project Proponent, has been filed by the applicants, wherein denying the allegations made by Respondent No.5, it is alleged that the cause of action has arisen out of a single incident of boiler blast in May 2016 at the industrial unit known as Probace Industries, in which 12 people got killed, for which it was alleged that there were no "completion certificates" issued. In the present Original Application, prayer is for demolition of illegally occupied and unlawfully made industrial structures, that have been constructed over open marginal spaces. Such encroachments have already led to various industrial accidents in the past and have a serious potential to cause even further accidents, which is a Original Application No.108 OF 2022 (WZ) Page 16 of 30 violation of Sections 8 & 9 of E.P. Act, 1986, Section 21 of the Air (Prevention and Control of Pollution) Act, 1981 and Section 25 of the Water (Prevention and Control of Pollution) Act, 1974.
37. It is further submitted in this rejoinder affidavit by the applicants that the present cause of action has arisen under the polluter pays principle, on account of continuing industrial encroachment in the Dombivali Industrial Area. In light of the settled legal position, this Tribunal is a sui generis body that has the power to take preventative and remedial steps to avoid any further industrial accidents, especially when serious mass violations have been reported by a government body.
38. It is further submitted in this rejoinder affidavit by the applicants that in the case in hand, the provisions of Environment Protection Act, 1986, Air (Prevention and Control of Pollution) Act, 1981 and Water (Prevention and Control of Pollution) Act, 1974 are specifically invoked.
Environment being a multi-dimensional issue and the other enactments, such as the regulations of MIDC, Boilers Act, 1923 and Maharashtra Regional and Town Planning Act, 1966 are invoked only to collate the data qua industrial encroachments prepared by the enforcement and planning authorities, which have a direct relation with the repercussions on the environment and safety of Dombivali, for which the umbrella legislation of E.P. Act, 1986 and Article 21 of the Constitution have been invoked under the Precautionary Principle. Further, Air and Water Acts have also been invoked in light of the fact that Respondent No.1, being the planning authority of the Industrial area, has recorded existence of industrial encroachments and industrial illegalities upon construction of illegal boilers and other risky infrastructure, for which mandatory Consent to Establish and Consent to Operate have not been obtained under Section 21 of the Air Act, 1981 and Section 25 of the Water Act, 1974.
Original Application No.108 OF 2022 (WZ) Page 17 of 3039. It is further submitted in this rejoinder affidavit by the applicants that the EPA, being an umbrella legislation, gets invoked and comes into operation when there is any impact of adverse consequences on common public resources, such as land, air and water. Such adverse consequences may also arise when certain specific development and planning laws are not complied with. The Polluter Pays Principle or Precautionary Principle under the E.P. Act, 1986 will have to be invoked along-with the other provisions of planning, development and technical enactments, when the environmental pollution is being caused or apprehended to occur.
40. It is further submitted in this rejoinder affidavit by the applicants that the legal position is now settled that this Tribunal is a sui generiss body, that can always look into the source of violation of certain provisions, which may not directly come under Schedule-I of the National Green Tribunal Act, 2010, but its consequences or non-adherence are enough to invoke the provisions of EPA, 1986. In the case in hand, the act of industrial encroachment and illegalities inside the Dombivali Industrial Area has its source not only in the DCR Regulations, MRTP Act and the Boilers Act but also such violations are in the nature that are directly relatable to the E.P. Act, Air Act and Water Act, on the basis of which the jurisdiction of this Tribunal is invoked.
41. As regards the issue of limitation raised by Respondent No.5 in the present application, it is further submitted in this rejoinder affidavit by the applicants that it is a settled position of law that whenever a wrong or offence is committed and ingredients are satisfied and repeated, evidently it would be a case of 'continuing wrong or offence'. Just as using the factory without registration is an offence, every time, the premises are used as a factory, if the boilers are being used without any consents or if there is an encroachment in the open marginal spaces under the DCR by Original Application No.108 OF 2022 (WZ) Page 18 of 30 setting up sheds and hazardous chemicals are stored or its chemical units are expanded without any permission from MPCB and MIDC, then it amounts to an offence.
42. With respect to locus standi and non-rejoinder of the parties, it is further submitted in this rejoinder affidavit by the applicants that Applicant Nos.1 & 2 have their residences in Kalyan, which adjoin to the Dombivali Industrial Area. In fact, Applicant No.2 resides at Manpada Road in Kalyan which borders Dombivali Industrial Area. Therefore, pollution of any kind that affects or is apprehended to affect the air, water and land surface of the area, will have a direct impact on the applicants herein and therefore, the applicants are affected or aggrieved parties within the ambit of National Green Tribunal Act, 2010. Hence, the Applicants are aggrieved parties by virtue of living in extremely close proximity to the Dombivali Industrial area and will be further affected if any future untoward incident happens in the nature of boiler blasts and chemical fires. This Tribunal has given a flexible and liberal approach to the terms "aggrieved party", which would also apply to the persons who live beyond the local area where an environmental wrong is caused or apprehended to occur. Applicants has also denied the allegations that the present Original Application suffers from non-rejoinder of the necessary parties.
43. Regarding plural remedies, it is further submitted in this rejoinder affidavit by the applicants that they have sought industrial safety, in general, by submitting a study of the potential for environmental accidents in the State of Maharashtra and therefore, prayer (iii) also constituted a part of the same cause of action. Although we may mention here that the learned counsel for the applicants has denied to press prayer no.(iii) at the time of argument. Moreover, it is further submitted that subsequent to the Original Application No.108 OF 2022 (WZ) Page 19 of 30 filing of the present Original Application, the Applicants have been informed by Respondent No.5 that the aforesaid order has been stayed by the Hon'ble Apex Court which the Applicants were not made aware of by any of the Respondent Authorities, despite having sought specific information relating to O.A No.34 of 2021 through RTIs and made various representations and in light of this, the applicants, being the Dominus Litis, shall not be pressing prayer for the said relief at this stage.
44. Applicants have filed another combined affidavit-in-rejoinder dated 30.06.2023, wherein we find more or less the same facts, which we have already taken into consideration above while dealing with their earlier rejoinder affidavit.
45. Respondent No.3- DISH has filed another reply affidavit dated 23.12.2024, which too contains the same facts, which we have already taken into consideration above.
46. Respondent No.3- DISH has filed another reply affidavit dated 24.04.2025, which too contains the same facts, which we have already taken into consideration above.
47. Respondent No.3- DISH has filed another reply affidavit dated 19.06.2025, which too contains the same facts, which we have already taken into consideration above.
48. Respondent No.5- Kalyan Ambernath Manufacturers Association (KAMA) has filed objections dated 01.08.2025 to the Joint Committee Report dated 19.06.2025, which too contains the same facts, which we have already taken into consideration above.
49. After having heard the arguments of learned counsel for the parties and perused the entire record thoroughly, we are of the view that in the Original Application No.108 OF 2022 (WZ) Page 20 of 30 present Original Application, the applicants have raised the issue of illegal constructions having been constructed/erected by the Industries over the open marginal spaces and/or carried out its illegal extensions and additions in the industrial premises in Phases - I & II of Dombivali area beyond the approved areas and the same are alleged to have been used for various purposes, such as setting up boiler plants, scrubbing structures, sheds, etc. and also these areas are being used for the purposes of production. Therefore, it is alleged that the extended portion, which is being used for production purposes, is leading to huge pollution and there is considerable likelihood that accidents might take place, which may result in deaths of number of people including the workers. Therefore, it is prayed that these extended constructions may be ordered to be demolished under the precautionary principle.
50. In rebuttal, from the side of Respondent No.1- MIDC, it is submitted, by the learned counsel representing them that these extended encroachments cannot be ordered to be demolished by them because under the Rules, only then demolition order can be passed if any structure is made in violation of the permission granted and even the said power vests with the Authority to regularize the same in appropriate cases.
During argument, it is also submitted by him that in number of cases, Respondent No.1 had issued Show Cause Notices to the defaulters to show the cause as to why demolition order be not passed regarding demolition of the extended structures and in number of matters, process of hearing to the parties concerned is going on. As regards in the case in hand, they resist the order of demolition on the ground that there is no violation of environmental norms.
51. Further, it is submitted by learned counsel for Respondent No.1- MIDC that the MIDC Rules and the Boilers Acts, provisions of which are Original Application No.108 OF 2022 (WZ) Page 21 of 30 said to have been violated, did not form part of the Schedule-I of the National Green Tribunal Act, 2010. Therefore, this Tribunal would be devoid of jurisdiction in the case in hand.
52. To the above argument of learned counsel for Respondent No.1- MIDC, response is given by learned counsel for the applicants that the Tribunal is sui generiss body which would have power vested in it, in case the Tribunal finds that the violation of any provision of other Acts, which are not covered under Schedule-I of the National Green Tribunal Act, 2010, would result in spreading pollution in violation of environmental laws. In that case, even if such an act is not within the purview of Schedule- I of the National Green Tribunal Act, 2010, this Tribunal would not be deprived of exercising its jurisdiction.
53. Learned counsel for the applicants has placed reliance on the Judgment of Hon'ble Supreme Court in the matter of Himachal Pradesh Bus-Stand Management and Development Authority v/s Central Empowered Committee & Ors. [(2021) 4 SCC 309] and has drawn our attention to para no.65 of this Judgment, which is quoted herein below for the sake of convenience:-
"1.4 Jurisdiction of NGT
65. An ancillary issue now remains for our consideration, which is whether the NGT could have adjudicated upon a violation of the TCP Act, which is not an Act present in Schedule I of the NGT Act. In a recent two-judge Bench decision of this Court in State of M.P. vs Centre for Environment Protection Research & Development, one of us speaking for the Court (Justice Indira Banerjee), held as follows:
"41. The Tribunal constituted under the NGT Act has jurisdiction under Section 14 of the said Act to decide all civil cases where any substantial question relating to Original Application No.108 OF 2022 (WZ) Page 22 of 30 environment including enforcement of any right relating to environment is involved and such question arises out of the implementation of the enactments specified in Schedule I to the said Act, which includes the Air (Prevention and Control of Pollution) Act, 1981 and the Environment (Protection) Act, 1986.
42. In view of the definition of "substantial question relating to environment" in Section 2(1)(m) of the NGT Act, the learned Tribunal can examine and decide the question of violation of any specific statutory environmental obligation, which affects or is likely to affect a group of individuals, or the community at large.
43. For exercise of power under Section 14 of the NGT Act, a substantial question of law should be involved including any legal right to environment and such question should arise out of implementation of the specified enactments.
44. Violation of any specific statutory environmental obligation gives rise to a substantial question of law and not just statutory obligations under the enactments specified in Schedule I. However, the question must arise out of implementation of one or more of the enactments specified in Schedule I."
The provisions of the TCP Act required the appellant and second respondent to take prior permission from the TCP Department before changing the nature of the land through their construction. Non-conformity with this stipulation led to a violation of their environmental obligations. In any case, this question is academic because the NGT's impugned judgment grounds its decision in the appellant and second respondent's violation of Section 2 of the Forest Act, which is an Act present within Schedule I of the NGT Act."
54. In regard to the above ruling, which is relied on by learned counsel for the applicants, we are of the view that three Judges Bench of the Hon'ble Supreme Court, which is a larger Bench, has already decided Original Application No.108 OF 2022 (WZ) Page 23 of 30 conclusively that in view of the definition of "substantial question relating to environment" in Section 2 (1) (m) of the National Green Tribunal Act, 2010, the Tribunal can examine and decide the question of violation of any specific statutory environmental obligation, which affects or is likely to affect a group of individuals, or the community at large. Violation of any specific statutory environmental obligation gives rise to a substantial question of law and not just statutory obligations under the enactments specified in Schedule- I. However, the question must arise out of implementation of one or more of the enactments specified in Schedule I.
55. In rebuttal, learned counsel for Respondent No.5 has relied on the Judgment/ Order dated 17.03.2025 passed by the Hon'ble Supreme Court in the matter of THE AUROVILLE FOUNDATION VERSUS NAVROZ KERSASP MODY & ORS. [CIVIL APPEAL NO(s).5781-5782 OF 2022]¸ in which our attention is drawn to the following paras:-
"(VI) The Tribunal raised the following points for consideration.
"65. The points that arise for consideration are:
(i) Whether the application is maintainable?
(ii) Whether it was barred by limitation?
(iii) Whether the intended activity of the 1st respondent requires any prior Environmental Clearance or clearance under the Forest (Conservation) Act, 1980 as claimed by the applicant. Even if they are not required, is there any necessity to issue any directions applying the "Precautionary Principle" to protect environment and if so, what are the nature of directions to be issued?"
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7. As transpiring from the Section 14, the Tribunal has the jurisdiction over all civil cases where the substantial question relating to environment including enforcement of any legal right Original Application No.108 OF 2022 (WZ) Page 24 of 30 relating to environment, is involved and such question arises out of the implementation of the enactments specified in Schedule I. Therefore, for the exercise of jurisdiction by the Tribunal under Section 14, it has to be shown that (1) a substantial question relating to environment including enforcement of any legal right relating to environment is involved; and (2) such questions arise out of the implementation of the enactments specified in Schedule I. The term "substantial question relating to environment" as defined in Section 2(1)(m) of the Act would include, inter alia, the question where there is a direct violation of a specific statutory environmental obligation by a person by which (a) the community at large other than the individual or group of individuals is affected or likely to be affected by the environmental consequences; or (b) the gravity of damage to the environment or property is substantial; or (c) the damage to public health is broadly measurable. The substantial question would also include the environmental consequences relating to a specific activity or a point source of pollution. In view of the said definition also the Tribunal before exercising the jurisdiction has to satisfy itself that a substantial question pertaining to the violation of or implementation of any specific statutory environmental obligations contained in any of the enactments specified in Schedule I, is involved.
8. Recently in case of State of Madhya Pradesh Vs. Centre for Environment Protection Research and Development2, this Court held as follows:
"42. In view of the definition of "substantial question relating to environment" in Section 2(1)(m) of the NGT Act, the learned Tribunal can examine and decide the question of violation of any specific statutory environmental obligation, which affects or is likely to affect a group of individuals, or the community at large.
43. For exercise of power under Section 14 of the NGT Act, a substantial question of law should be involved including any legal right to environment and such question should arise out of implementation of the specified enactments.Original Application No.108 OF 2022 (WZ) Page 25 of 30
44. Violation of any specific statutory environmental obligation gives rise to a substantial question of law and not just statutory obligations under the enactments specified in Schedule I. However, the question must arise out of implementation of one or more of the enactments specified in Schedule I."
Similar view is also taken in case of H.P. Bus-Stand Management and Development Authority Vs. Central Empowered Committee.
9. From the above, it is explicitly clear that every question or dispute raised by an Applicant before the Tribunal pertaining to the environment cannot be treated as a substantial question. It has to be a substantial question relating to environment as contemplated in Section 2(1)(m), and such substantial question must arise out of the implementation of any of the enactment/enactments specified in Schedule I. Though strict law of evidence may not be applicable to the cases filed before the Tribunal, the Applicant has to raise the substantial question in his Application specifically alleging the violation of a particular enactment specified in Schedule I.
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56. In regard to the above rulings, we are of the view that the Judgment/Order, which has been relied on by learned counsel for Respondent No.5, is decided by two Judges Bench of the Hon'ble Supreme Court, in which it is held that every question or dispute raised by the applicant before the Tribunal pertaining to the environment cannot be treated as a substantial question relating to environment because substantial question must relate to the environment as contemplated in Section 2(1) (m), which must arise out of the implementation of any of the enactment/enactments specified in Schedule I. Therefore, we find that in the case in hand, the allegation of the applicants is that there are violations of Boilers Act and MIDC Act etc., which are said to be incidentally causing environmental consequences at the area in question.Original Application No.108 OF 2022 (WZ) Page 26 of 30
Therefore, we deem it appropriate that this Tribunal would have jurisdiction arisen in its favour to consider the matter in issue.
57. During arguments, much emphasis has been laid by learned counsel for Respondent No.5 that in the limitation clause in para no.35 onwards of the present Original Application, it is mentioned by the applicants that no delay has occurred in filing the present Original Application, as the violations and illegalities committed by industrial units belonging to Respondent No.5 are continuous. The illegal encroachments by the industrial units persist till date and that the Respondent Authorities have failed to demolish or take any action against the said illegalities prevailing in the Industrial area of Dombivali, hence the present application invokes Section 8 & 9 of the E.P. Act, 1986, Section 21 of the Air (prevention & Control of Pollution) Act, 1981 and Section 25 of the Water (Prevention and Control of Pollution) Act, 1974, which is being filed within six months from the date of cause of action.
58. Having drawn our attention to the above limitation clause, it is submitted by learned counsel for Respondent No.5 that this clause does not contain any specific date, on which date the cause of action is said to have arisen to the applicants. Therefore, the present application needs to be dismissed, the same having been filed beyond limitation.
59. We find that at the top of the present Original Application, mention is made of Section 14 and Section 18 read-with Sections 15, 17 & 20 of the National Green Tribunal Act, 2010, under which the present Original Application has been moved, which provides for six months' period from the date of cause of action first arose to file an Original Application, if any person is aggrieved by the cause of action, and 60 days' further period is left to the discretion of this Tribunal on sufficient ground to be shown for Original Application No.108 OF 2022 (WZ) Page 27 of 30 the said delay. Though there is no specific date mentioned of the cause of action having first arisen in favour of the applicants, but during argument, it is made clear by learned counsel for the applicants that he obtained a copy of the Survey Report of the Dombivali Industrial Phase- I & II, with respect to encroachments etc. made by the industrial units, under the RTI, which pertains to the year 2016 and he has indicated in his application the dates of accident, which happened on various dates. The last accident is mentioned to have happened on 03.04.2022 (in para no.24 at page no.28 of the paper book) and it is said that these accidents are likely to have happened again from time to time because of the illegal encroachments and the norms not having been complied with by the industrial units. Therefore, it is said that there is continuous cause of action in favour of the applicants and therefore, this application should be admitted.
60. On the other hand, from the side of Respondent No.5- Project Proponent, it is submitted by learned counsel that since the date of cause of action is not specified in the limitation clause of the present Original Application by the applicants, it should be out-rightly dismissed being time barred.
61. We are convinced with the above argument made by learned counsel for the applicants. This appears to be a case of continuous cause of action in favour of the applicants as they have raised pertinent issue of environment being adversely affected/disaster likely to happen due to encroachments in the industrial area by the industrial units outside their premises and by way of example, he has given not only one but many examples also of the accident having happened and this Tribunal having taken cognizance thereof suo motu on various occasions. Therefore, it is quite serious issue which needs to be taken care of.Original Application No.108 OF 2022 (WZ) Page 28 of 30
62. But we find, in the light of evidence, which has already come on record, that it is clear that a large number of units are there, regarding which reports of some encroachments have been found in the area in question. But how they impact environment adversely, at this stage, has not come on record. It is only due to use of a gasifier, at this stage, that these encroachments might result in further accident happening at the site. Therefore, it is prayed by the applicants that these extended structures ought to be ordered to be demolished.
63. We may make it clear here at this stage that as regards ordering demolition of the extended structure/construction, the same is not covered under the domain of this Tribunal because that would fall in the domain of MIDC, whose counsel has already stated that appropriate notices have already been issued to the defaulting units in this regard and hearings are going on. Therefore, we expect that they would expedite the hearing and conclude the process of finalizing whether any demolition order is required to be passed in accordance with the law or if any regularization is required to be done, even that may be done in accordance with the law at their end, in consultation with the MPCB, so as to ensure that whatever regularization is being permitted, it may not result in any kind of environmental disaster.
64. As regards the violations committed under the environmental laws, i.e. Air (Prevention and Control of Pollution) Act, 1981; Water (Prevention and Control of Pollution) Act, 1974; and Environment (Protection) Act, 1986, the same is falling in the domain of Respondent No.2- MPCB.
Therefore, we direct Respondent No.2- MPCB to take cognizance of all those cases with respect to the industries, names of which are already annexed by us as Annexure-I to this Judgment and find whether any violations are committed by them and an appropriate action shall be taken Original Application No.108 OF 2022 (WZ) Page 29 of 30 at their end against such industries, which are found to have been violated the norms prescribed. This exercise shall be completed by Respondent No.2- MPCB within a period of three months from the date of uploading of this Judgment.
65. With the above directions/observations, we dispose of this Original Application.
66. Pending I.A. also stands disposed of.
67. There shall be no order as to costs.
Dinesh Kumar Singh, JM Dr. Sujit Kumar Bajpayee, EM February 11, 2026 ORIGINAL APPLICATION NO.108 OF 2022 (WZ) I.A. NO.38 OF 2023 (WZ) P.Kr.Original Application No.108 OF 2022 (WZ) Page 30 of 30 921
at Annexure No. 4. In the said meeting it r.vas decided to give heaxing to the Complainants and Respondent No.5. Accordingly hearing was given to Applicant and Respondent no.5 i.e. Kalyan Ambemath Manufactudng Association on 14/01/2025. The said hearing was kept on hybrid mode i.e. online as well as physical presence, The Applicant N&. Nandkumar Waman Pawar remain present physically whereas Respondent no.5 i.e. rcprcsenlalive olKalyan Ambernath Manufactuing Association attended the meeting online. Minutes of meeting i. uploaded hereuith at Annexure no. 5.
Actual Survey:
Maharashtra Industrial Development Corporation being expeft and special Planning authority lead this survey. The oflicer from Maharashtra Industial Development Corporation, Directorate of Industrial Safety and Health, Maharashtra Pollution Control Board and Fire Service Department conducted this sun'ey. Seven teams were lbrmed representing one officer liom all depaftment. In all 733 number ofunits located in Dombivali MIDC Phase I & II were visited to identify illegal encroachment and additional construclion.
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