Holding

Appeals under the NGT Act are governed by the Act’s own limitation provisions, the General Clauses Act applies to extend the deadline when it falls on a holiday, and the NGT must exercise a liberal discretion in condoning delay where sufficient cause is shown.

Summary

The petitioner, Sridevi Datla, challenged the National Green Tribunal's (NGT) dismissal of her appeal against the environmental clearance for the Bhogapuram Greenfield Airport, arguing that the appeal was filed within the extended 60‑day period because the last day fell on a Sunday and that the NGT erred in refusing to condone the delay. The Court examined whether the Limitation Act, 1963 applies to appeals under the NGT Act, 2010 and held that special statutes prescribe their own limitation periods, rendering the Limitation Act inapplicable. It further ruled that Section 10 of the General Clauses Act, 1897 applies to the NGT Act, so a deadline falling on a public holiday is deemed met on the next working day. The Court also analyzed the meaning of “sufficient cause” under Section 16 of the NGT Act, emphasizing a liberal, fact‑specific approach that requires bona‑fides and no gross negligence. Finding merit in the petitioner’s explanation of voluminous documentation and lack of expert advice, the Court concluded that the NGT had wrongly exercised its discretion in rejecting the condonation. Consequently, the NGT’s order was set aside, the delay was condoned, and the appeal was allowed to proceed on its merits.

Issues considered

The applicability of the Limitation Act, 1963 to appeals filed under the National Green Tribunal Act, 2010.
Whether Section 10 of the General Clauses Act, 1897 extends the filing period when the last day falls on a public holiday for NGT appeals.
The interpretation of ‘sufficient cause’ under Section 16 of the NGT Act for condonation of delay.

Legislation cited

General Clauses Act, 1897s. 10
Limitation Act, 1963
National Green Tribunal Act, 2010s. 16, s. 19, s. 22, s. 33, s. 33-B

Subjects

Limitation ActGeneral Clauses ActNational Green Tribunal Actcondonation of delayenvironmental clearanceappeal limitation periodsufficient causeenvironmental lawspecial legislation

Judgment

282 [2021]REPORTS
SUPREME COURT 13 S.C.R.282 [2021] 13 S.C.R.

A SRIDEVI DATLA
v.
UNION OF INDIA AND ORS.
(Civil Appeal No. 3136 of 2020)
B MARCH 02, 2021
[L. NAGESWARA RAO AND S. RAVINDRA BHAT, JJ.]
Limitation Act, 1963: Applicability to Special laws – Held:
Where period of limitation are prescribed under special laws,
appeals that exceed the period granted in the special laws can be
C entertained at the discretion of the tribunal and Limitation act would
not apply – National Green Tribunal Act, 2010.
General Clauses Act – Applicability of, to appeals filed under
the NGT Act – Held: s.10 of General Clauses Act stipulates when
the last date for doing something falls on a public holiday, the act
shall be considered as done, if it is done or taken on the next day
D
afterwards on which the Court or office is open – This provision
applies to all Central Acts enacted after the said Act was brought
into force – Therefore, s.10 applies proprio vigore to all appeals
filed under the NGT Act – National Green Tribunal Act, 2010.
National Green Tribunal Act, 2010: s.16 – Approach of the
E Court in considering the application for condonation of delay –
The term ‘sufficient cause’ is relative, fact dependant, and has many
hues, largely deriving colour from the facts of each case, and the
behaviour of the litigant who seeks condonation of delay (in
approaching the court) – Appellant pleaded that since the
F documentation attendant to the clearance granted to the Project
Applicant was voluminous, and expert as well as professional legal
advice of the kind necessary to approach the NGT was not available
in the State of Andhra Pradesh, the procuring of relevant documents,
and correspondence with counsel in Delhi and drafting of the appeal
entailed some delay – In approaching NGT, scientific or technical
G support is necessary apart from expert professional legal advice –
Rejection of appeal by dismissing application for condonation of
delay, on the ground that no sufficient cause was shown, was
erroneous discretion of NGT – An appeal to the NGT in such matters
is no ordinary matter – The delay in filing the appeal before the
H NGT is condoned.
282
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 283

Allowing the appeal, the Court A
HELD: 1. There can be no dispute that the period of
limitation set out in a special law, which provides for remedies
and appeals, has to be construed in its terms and without
reference to the Limitation Act, if it contains specific provisions
delineating the time or period within which applications or appeals B
can be preferred, and confines the consideration of applications
for condoning the delay to a specific number of days. Undoubtedly,
in such cases, the Limitation Act would be inapplicable. There
are several previous judgments of this court holding that where
periods of limitation are prescribed under special laws, appeals
that exceed the period granted and are within the extended period C
of limitation in the special law, can be entertained at the discretion
of the tribunal, or court concerned and the Limitation Act would
not apply upon expiry of such extended period. This court held
that there is merit in the contention of the Union that the
provisions of the Limitation Act are inapplicable. [Para 18][293- D
F-G; 294-A-B]
2. The appellant argues that the appeal is to be considered
as having been filed within the extended period of 60 days, since
the last (of the 60 days) was a Sunday (12.07.2020). The appellant
relied on Section 10 of the General Clauses Act, for this purpose. E
Section 10 of the General Clauses Act, 1897 stipulates that when
the last date for doing something falls on a public holiday, the act
“shall be considered as done..” if it “is done or taken on the next
day afterwards on which the Court or office is open”. This provision
applies to all Central Acts enacted after the said Act was brought
into force. It is also noticeable that there is no indication in the F
NGT Act that Section 10 of the General Clauses Act cannot be
applied. It is therefore, held that the provision applies proprio
vigore to all appeals filed under the NGT Act. [Paras 19, 20,
21][294-C-E; 295-A, C-D]
H.H Raja Harinder Singh v. S. Karnail Singh [1957] G
SCR 208 – followed.
3. It is evident that the term sufficient cause is relative,
fact dependant, and has many hues, largely deriving colour from
the facts of each case, and the behaviour of the litigant who seeks
condonation of delay (in approaching the court). However, what H
284 SUPREME COURT REPORTS [2021] 13 S.C.R.

A can broadly be said to be universally accepted is that in principle,
the applicant must display bona fides, should not have been
negligent, and the delay occasioned should not be such that
condoning it would seriously prejudice the other party. Keeping
these principles in mind, it is relevant to consider whether the
NGT’s refusal to exercise discretion, in the facts and
B
circumstances of this case, was erroneous. The court is conscious
of the fact that exercise of discretion, per se, is a fact dependent
one, and considerable latitude should be given to the court or
tribunal of the first instance, in the performance of that task.
Nevertheless, as decided, cases and judgments have shown that
C the exercise of discretion does at times, call for appellate scrutiny
by this court. This is one such. The appellant pleaded that since
the documentation attendant to the clearance granted to the
Project Applicant was voluminous, and expert as well as
professional legal advice of the kind necessary to approach the
NGT was not available in the State of Andhra Pradesh, the
D
procuring of relevant documents, and correspondence with
counsel in Delhi and drafting of the appeal entailed some delay.
This court is of the opinion that there is merit in appellant
argument. [Paras 27 and 28][297-F-H; 298-A-B]
Smt. Padmabati Mohapatra v. Union of India (2013)
E SCC OnLine NGT 2177; Rambir Narhargir Gosai v.
Prabhakar Bhaskar Gadhaway AIR 1955 Nag 300;
Save Mon Region Federation v. Union of India (2013)
SCC OnLine NGT 2511; H. Dohil Construction
Company Private Limited v. Nahar Exports Limited
F (2015) 1 SCC 680 : [2014] 8 SCR 424; BRS Steels
Private Limited v. State of Rajasthan (2012) 6 SCC 782
: [2012] 5 SCR 583; Jitendra Singh v. Ministry of
Environment & Others (2019) SCC OnLine SC 1510;
Hanuman Laxman Aroskar v. Union of India (2019) 15
SCC 401 : [2019] 5 SCR 916; Kaushalya Rani v Gopal
G Singh [1964] 4 SCR 982; Collector of Excise & Customs
v. Hongo India (P) Ltd. (2009) 5 SCC 791 : [2009]
4 SCR 1197; Union of India v. Popular Construction
Co. (2001) 8 SCC 470 : [2001] 3 Suppl. SCR 619; Patel
Bros. v. State of Assam (2017) 2 SCC 350 : [2017] 1
H SCR 95; H.H. Raja Harinder Singh v. S. Karnail Singh
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 285

[1957] SCR 208; Manohar Joshi v. Nitin Bhaurao Patil A
(1996) 1 SCC 169 : [1995] 6 Suppl. SCR 421; Mohd.
Ayub v. State of U.P. (2009) 17 SCC 70 : [2009]
15 SCR 1095; G. Ramegowda v. Land Acquisition
Officer (1988) 2 SCC 142 : [1988] 3 SCR 198; Esha
Bhattacharjee v. Raghunathpur Nafar Academy (2013)
B
12 SCC 649 : [2013] 9 SCR 782; State of
Nagaland v. Lipok Ao (2005) 3 SCC 752 : [2005]
3 SCR 108; New India Insurance Co. Ltd. v. Shanti
Misra (1975) 2 SCC 840 : [1976] 2 SCR 266; N.
Balakrishnan v. M. Krishnamurthy (1998) 7 SCC 23 :
[1998] Suppl. SCR 403; State of Haryana v. Chandra C
Mani (1996) 3 SCC 132 : [1996] 1 SCR 1060;
Tehsildar (LA) v. K.V. Ayisumma (1996) 10 SCC 634;
Improvement Trust v. Ujagar Singh (2010) 6 SCC 786:
[2010] 7 SCR 376; Maniben Devraj Shah v. Municipal
Corpn. of Brihan Mumbai (2012) 5 SCC 157 – referred
D
to.
Case Law Reference
[2014] 8 SCR 424 referred to Para 11
[2012] 5 SCR 583 referred to Para 11
E
[2019] 5 SCR 916 referred to Para 15
[1964] 4 SCR 982 referred to Para 18
[2009] 4 SCR 1197 referred to Para 18
[2001] 3 Suppl. SCR 619 referred to Para 18
F
[2017] 1 SCR 95 referred to Para 18
[1957] SCR 208 followed Para 20
[1995] 6 Suppl. SCR 421 referred to Para 21
[2009] 15 SCR 1095 referred to Para 22 G
[1988] 3 SCR 198 referred to Para 22
[2013] 9 SCR 782 referred to Para 24
[2005] 3 SCR 108 referred to Para 24
[1976] 2 SCR 266 referred to Para 24 H
286 SUPREME COURT REPORTS [2021] 13 S.C.R.

A [1998] Suppl. SCR 403 referred to Para 24
[1996] 1 SCR 1060 referred to Para 24
(1996) 10 SCC 634 referred to Para 24
[2010] 7 SCR 376 referred to Para 24
B (2012) 5 SCC 157 referred to Para 26
CIVIL APPELLATE JURISDICTION: Civil Appeal No. 3136
of 2020.
From the Judgment and Order dated 31.07.2020 of the National
Green Tribunal, Southern Zone Bench at Chennai in M.A. No. 231 of
C
2017 in Appeal Nos. 18 of 2020 (SZ).
K. M. Natrajan, ASG, Ms. Anitha Shenoy, Atmaram Nadkarni,
Mukul Rohatgi, Sr. Adv., Ms. Srishti Agnihotri, Ms. Kanika Sood,
Ms. Sanjana Grace Thomas, Ms. Anmol Gupta, Gurmeet Singh Makker,
Kanu Agrawal, Vatsal Joshi, Arup Banerjee, Varun Verma, Mahesh
D
Agarwal, M. S. Ananth, Anirudh Bhatia, E. C. Agrawala, Advs. for the
appearing parties.
The Judgment of the Court was delivered by
S. RAVINDRA BHAT, J.
E 1. The appellant is aggrieved by an order of the National Green
Tribunal (hereafter referred to as “the NGT”1) and has, therefore,
approached this Court under Section 22 of the NGT Act. The NGT
rejected her appeal, preferred to it against the environmental clearance
for construction of the Greenfield International Airport, Bhogapuram,
F Vishakapatnam, which had been sought for by the fifth respondent.
2. The facts are simple: the fifth respondent (hereafter called
“the Project Applicant”) proposed the construction of a new Greenfield
international airport. As was required by law and extant statutory
notifications, it applied to the Ministry of Environment, Forests and
G Climate Change (hereinafter, the “MoEF”) to seek environmental
clearance. The MoEF, after following the prescribed procedure, which
included ascertaining the views and objections of the concerned parties,
the general public etc, indicated its approval by an order dated 14.08.2017.
In terms of Section 19 of the NGT Act, the approval was posted on the
1
H Dated 31.07.2020
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 287
[S. RAVINDRA BHAT, J.]

website of the MoEF on 14.08.2017. Concededly, the Project Applicant A
published the approval in an English daily on 13.09.2017.
3. The appellant preferred her appeal to the NGT on 13.11.2017.
Along with the appeal, she preferred an application for condonation of
delay in approaching the NGT, given the stipulation of Section 19 that
the appeal had to be preferred within 30 days from the date of B
communication of the order impugned. She explained that since the
clearance and related documents were voluminous and the matter
required some technical expertise, requiring the papers to be forwarded
to experts and lawyers in Delhi, and the inter se communication delay,
the NGT needed to condone the delay, in the interests of justice. After
considering the submissions made by the appellant as well as the Project C
Applicant, which opposed the application for condonation of delay, the
NGT, by its impugned order, rejected the appellant’s application and
consequently the appeal as well.
4. The appellant’s arguments before this Court are mainly twofold:
that the requirement of Section 16 is to “communicate the order to the D
concerned parties as well as the public and that a meaningful
interpretation should be given to the provision”. It was emphasised
in this context that communication means not merely the publication on
the Central Government’s website, but also dissemination of the news
or the decision to the affected parties. Learned senior counsel for the E
appellant – Ms. Anitha Shenoy, in this context, relied upon the terms
contained in the environmental clearance/approval given by the MoEF,
especially those which obliged the Project Applicant to intimate the
decision in dailies having local circulation in the vernacular. She also
relied upon the stipulations in the environmental clearance (“EC”) which
prescribed that the successful project applicant had to, in continuation to F
so publishing the decision or intimation in local newspapers, also ensure
that the decision was forwarded to local communities through the
Panchayats etc. for dissemination.
5. It was pointed out that the object of these conditions should be
construed as part of a larger scheme of the Act to communicate every G
decision. The appellant argued that if a contrary interpretation were to
be accepted, the appeal given by the statute would be meaningless as
most often, large projects which involve either displacement of people
or which affect habitats and have the tendency to damage or at least
cause significant adverse impact upon the environment would not be H
288 SUPREME COURT REPORTS [2021] 13 S.C.R.

A considered on its merits by the NGT since people and neighbourhoods
cannot be presumed to have knowledge of deliberations in New Delhi.
6. It was also argued on behalf of the appellant that in the
circumstances of the present case, at least the appeal could not be said
to be time barred. It was argued that the date for reckoning (limitation)
B is from 14.08.2017, when the MoEF uploaded the decision on its website.
The ninety-day period within which appeal was to be filed, expired on
12.11.2017, which was a Sunday. It was submitted that under Section 10
of the General Clauses Act, if any period prescribed ends on a Sunday
or a day on which the Court or the Tribunal does not function, the next
day should be considered as the terminus quo in point of time.
C Consequently, it was submitted that the appeal should be considered as
within time and should have been entertained on merits.
7. Lastly, it was argued that the NGT’s opinion that sufficient
cause was not shown while seeking condonation of delay is erroneous.
Learned counsel highlighted that any proposal as well as clearances
D where voluminous documentation is involved, or if any individual or entity
is aggrieved, or adversely affected, the only remedy provided is by way
of an appeal. To substantiate the grounds of appeal, it would be essential
that in many instances, expert advice is obtained based on which the
grounds of appeal can be prepared and urged. If the issue were to be
E considered in this perspective, the explanation provided by the appellant
in her application seeking condonation of delay could not be considered
unreasonable and in fact amounts to sufficient cause. Learned counsel
relied upon a previous order of the NGT in Smt. Padmabati Mohapatra
v. Union of India2. Reliance was also placed on the judgment of the
Nagpur High Court, reported as Rambir Narhargir Gosai v. Prabhakar
F Bhaskar Gadhaway. 3
8. On behalf of the Union of India, the ASG, Mr. K.M. Natraj
argued that the impugned order does not require to be disturbed. He
pointed out that the impugned order had noticed that the appellant made
no complaint that the MoEF had put up the decision to grant environmental
G clearance on its website on 14.08.2017 or that having uploaded the
decision it could not be viewed publicly in an uninterrupted manner. He
further submitted that the finding that the first date when the decision
was communicated by the MoEF on its website is determinative for the
2
2013 SCC OnLine NGT 2177
H 3
AIR 1955 Nag 300
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 289
[S. RAVINDRA BHAT, J.]

purpose of reckoning limitation rather than any other later point in time. A
It was further emphasised on behalf of the UOI that the need to publish
environmental clearances under the Environment Impact Notification
2006, framed under the Environment Protection Act, 1986 is now known
to all. The proposal of the Project Applicant clearly fell within the sweep
of the Environment Impact Notification in Item No.7(a) to the Schedule
B
(to the notification).
9. It was submitted on behalf of the UOI that in terms of the
Environment Impact Assessment Notification, 2006, the clearance had
to be published within seven days from the date of uploading. The
publication of Environment Clearance dated 14.08.2017 was done on
21.08.2017. Thus, the appellant’s plea that she came to know of the C
environmental clearance on 24.08.2017 is baseless. The learned ASG
relied upon a decision of the NGT in Save Mon Region Federation v.
Union of India4 in this regard.
10. Learned ASG lastly argued that by virtue of Section 33 of the
Act, the provisions of all other laws stand overridden and consequently, D
the question of extending the period of limitation by reference to Section
5 of the Limitation Act would not arise. He further urged that the period
of limitation prescribed is actually 30 days for the filing of an appeal, and
that further period of 60 days is only by way of acceptance of application
for condonation of delay. Thus, no appeal is maintainable after the expiry
E
of 90 days. It is pointed out that in the present case, the 90 day period in
fact ended a day prior to the filing of the appeal; it was, therefore, clearly
time-barred.
11. Mr. Mukul Rohatgi, learned senior counsel appearing for the
Project Applicant supported the submissions of the Union and argued
that the concerned Project Applicant, i.e. M/s Bhogapuram International F
Airport Corporation Ltd., has been conceived in public interest and in
replacement of the existing Vishakhapatnam Airport which is primarily
a defence airport. Learned counsel relied upon the decision of this Court
in H. Dohil Construction Company Private Limited v. Nahar Exports
Limited5 to the effect that any aggrieved litigant should be vigilant in the G
exercise of his rights and that he cannot claim the exercise of discretion
for condoning any delay as a matter of right. Reliance was also placed
upon the decision in BRS Steels Private Limited v. State of Rajasthan6.
4
2013 SCC OnLine NGT 2511
5
(2015) 1SCC 680
6
(2012) 6 SCC 782 H
290 SUPREME COURT REPORTS [2021] 13 S.C.R.

A In this regard, it was submitted that the appeal before this Court which
purports to be under Section 22 of the Act is confined to the grounds
specified under Section 100 of the CPC, which is only if the Court is
satisfied that the case involves a substantial question of law.
12. Lastly, it was submitted by learned senior counsel that the
B NGT Act correctly surmised in the circumstances of the case that the
appellant had adopted a casual approach and did not believe the contents
of the application for condonation of delay. Learned counsel in this context
argued that the appellant is an interested person in the sense that her
lands had been notified for acquisition and was therefore not
uninformed or incapable of receiving appropriate legal advice.
C
Analysis and Findings
13. The relevant provision of the Act, i.e. Section 167 reads as
follows:
“16. Tribunal to have appellate jurisdiction. -Any person
D aggrieved by,-
(a) an order or decision, made, on or after the commencement
of the National Green Tribunal Act, 2010, by the appellate
authority under section 28 of the Water (Prevention and
Control of Pollution) Act, 1974 (6 of 1974);
E
(b) an order passed, on or after the commencement of the
National Green Tribunal Act, 2010, by the State Government
under section 29 of the Water (Prevention and Control of
Pollution) Act, 1974 (6 of 1974);
(c) directions issued, on or after the commencement of the
F National Green Tribunal Act, 2010, by a Board, under section
33A of the Water (Prevention and Control of Pollution) Act,
1974 (6 of 1974);
(d) an order or decision made, on or after the commencement
of the National Green Tribunal Act, 2010, by the appellate
G authority under section 13 of the Water (Prevention and
Control of Pollution) Cess Act, 1977 (36 of 1977);
(e) an order or decision made, on or after the commencement
of the National Green Tribunal Act, 2010, by the State

H 7
Of the NGT Act
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 291
[S. RAVINDRA BHAT, J.]

Government or other authority under section 2 of the Forest A
(Conservation) Act, 1980 (69 of 1980);
(f) an order or decision, made, on or after the commencement
of the National Green Tribunal Act, 2010, by the Appellate
Authority under section 31 of the Air (Prevention and Control
of Pollution) Act, 1981 (14 of 1981); B
(g) any direction issued, on or after the commencement of the
National Green Tribunal Act, 2010, under section 5 of the
Environment (Protection) Act, 1986 (29 of 1986);
(h) an order made, on or after the commencement of the
National Green Tribunal Act, 2010, granting environmental C
clearance in the area in which any industries, operations or
processes or class of industries, operations and processes
shall not be carried out or shall be carried out subject to
certain safeguards under the Environment (Protection) Act,
1986 (29 of 1986); D
(i) an order made, on or after the commencement of the
National Green Tribunal Act, 2010, refusing to grant
environmental clearance for carrying out any activity or
operation or process under the Environment (Protection) Act,
1986 (29 of 1986); E
(j) any determination of benefit sharing or order made, on or
after the commencement of the National Green Tribunal Act,
2010, by the National Biodiversity Authority or a State
Biodiversity Board under the provisions of the Biological
Diversity Act, 2002 (18 of 2003), may, within a period of thirty F
days from the date on which the order or decision or direction
or determination is communicated to him, prefer an appeal to
the Tribunal;
Provided that the Tribunal may, if it is satisfied that the
appellant was prevented by sufficient cause from filing the
G
appeal within the said period, allow it to be filed under this
section within a further period not exceeding sixty days.”
14. Environmental disputes are complicated and entail expertise
in diverse fields (such as ecology, chemistry, biology, economics,
administration, management, law etc.) for their determination in an
H
292 SUPREME COURT REPORTS [2021] 13 S.C.R.

A effective and speedy fashion, that is not possible within the regular judicial
and administrative set up in India. In other words, environmental disputes
relating to forests, biodiversity, air and water are complicated in nature;
resolving and expeditiously disposing of these cases is not possible without
a separate special court. Environmental courts or tribunals have been a
long-standing demand for other reasons too. For effective prevention
B
and control of environmental protection, there was an urgent need for a
separate environmental court or tribunal to adjudicate without much
delay. India is a party to the United Nations Conference on the Human
Environment (known as the Stockholm Conference), 1972 where it made
commitments relating to safeguarding of natural resources and developing
C international law, and to provide compensation to victims of pollution and
other environmental degradation. India is also a signatory to the Rio
Declaration adopted at the United Nations Conference on Environment
and Development at Rio de Janeiro in 1992. The Rio Declaration states
that participating states must make suitable environmental legislation
regarding effective access to the people, to judicial and administrative
D
proceedings, including remedies. The Law Commission’s 186 th report
recommended that the Union government should establish and constitute
separate Environmental Courts in each state, to deal with complex,
specialised issues concerning the environment. It was in this background
that Parliament enacted the NGT Act. The Act amends various other
E enactments and adds provisions to them, for appeal before the NGT.
These are incorporated in Section 33-B of The Water (Prevention and
Control of Pollution) Act, 1974; Section 13-A of The Water (Prevention
and Control of Pollution) Cess Act, 1977; Section 2-A of The Forest
(Conservation) Act, 1980; Section 31-B of The Air (Prevention and
Control of Pollution) Act, 1981; Section 5-A in the Environment
F
(Protection) Act, 1986 and Section 52-A in the Biological Diversity Act,
2002.
15. In Jitendra Singh v. Ministry of Environment & Others8
the narrow, but important question considered was whether a state could
alienate publicly available resources like ponds. This court held that that
G such transfer or alienation was impermissible. In Hanuman Laxman
Aroskar v. Union of India9 this court held that the NGT is under an
obligation to consider issues as an expert body, and apply the principle of
sustainable development, in adjudicating environmental issues, especially
8
2019 SCC OnLine SC 1510
H 9
(2019) 15 SCC 401
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 293
[S. RAVINDRA BHAT, J.]

while considering the validity of grant of clearance to large projects A
under the Environment Protection Act. It was held that the NGT Act:
“provides for the constitution of a tribunal consisting both of
judicial and expert members. The mix of judicial and technical
members envisaged by the statute is for the reason that the
Tribunal is called upon to consider questions which involve B
the application and assessment of science and its interface
with the environment.”
16. The court noted that to be a member of the NGT, the individual
had to possess specified academic qualifications, including a master’s
degree in science with a doctorate in engineering or technology, with C
prescribed experience in certain domains. To be an administrative
member, the individual should possess fifteen years’ administrative
experience including experience of five years in dealing with
environmental matters in the Central or State Government or in a reputed
national or state level institution. The court proceeded to hold in Hanuman
Laxman Aroskar (supra), that the grant of environmental clearance to D
a greenfield airport in Goa did not receive proper merits review by the
NGT.
17. Having regard to these decisions, and given the nature of
jurisdiction which the NGT has been invested with, the substantial
questions of law that arise in the present case, are whether the approach E
to the issue of limitation by the NGT was correct, and whether on a
correct interpretation of law, the appeal under Section 16 was filed within
the 90 days period, in the facts of this case.
Applicability of General Clauses Act
F
18. There can be no dispute that the period of limitation set out in
a special law, which provides for remedies and appeals, has to be
construed in its terms and without reference to the Limitation Act, if it
contains specific provisions delineating the time or period within which
applications or appeals can be preferred, and confines the consideration
of applications for condoning the delay to a specific number of days. G
Undoubtedly, in such cases, the Limitation Act would be inapplicable. 10
10
That provision is as follows:
29. Savings.—(1) Nothing in this Act shall affect Section 25 of the Indian
Contract Act, 1872 (9 of 1872).
(2) Where any special or local law prescribes for any suit, appeal or application
a period of limitation different from the period prescribed by the Schedule, the provisions H
294 SUPREME COURT REPORTS [2021] 13 S.C.R.

A There are several previous judgments of this court holding that where
periods of limitation are prescribed under special laws, appeals that
exceed the period granted and are within the extended period of limitation
in the special law, can be entertained at the discretion of the tribunal, or
court concerned and the Limitation Act would not apply upon expiry of
such extended period.11 This court holds that there is merit in the
B
contention of the Union that the provisions of the Limitation Act are
inapplicable. This is, however, not dispositive of the issue; the next question
is whether there is merit in the appellant’s argument that the NGT should
have considered the issue of whether the appeal was filed within the
extended period prescribed under the proviso to Section 16, i.e. within
C sixty days after the expiration of the initial 30 day period, required in the
main provision.
19. The appellant argues that since there is no indication to the
contrary; the appeal is to be considered as having been filed within the
extended period of 60 days, since the last (of the 60 days) was a Sunday
D (12.07.2020). The appellant relied on Section 10 of the General Clauses
Act, for this purpose. The respondents, notably the Union, opposed this
argument.
20. Section 10 of the General Clauses Act, 189712 stipulates that
when the last date for doing something falls on a public holiday, the act
E “shall be considered as done..” if it “is done or taken on the next
day afterwards on which the Court or office is open”. This provision

of Section 3 shall apply as if such period were the period prescribed by the Schedule and
for the purpose of determining any period of limitation prescribed for any suit, appeal
or application by any special or local law, the provisions contained in Sections 4 to 24
(inclusive) shall apply only insofar as, and to the extent to which, they are not expressly
F excluded by such special or local law.”
11
Kaushalya Rani v Gopal Singh 1964 (4) SCR 982; Collector of Excise & Customs v.
Hongo India (P) Ltd. (2009) 5 SCC 791; Union of India v. Popular Construction Co.
(2001) 8 SCC 470; Patel Bros. v. State of Assam (2017) 2 SCC 350
12
“10. Computation of time.— (1) Where, by any Central Act or Regulation made after
the commencement of this Act, any act or proceeding is directed or allowed to be done
G or taken in any Court or office on a certain day or within a prescribed period, then, if the
Court or office is closed on that day or the last day of the prescribed period, the act or
proceeding shall be considered as done or taken in due time if it is done or taken on the
next day afterwards on which the Court or office is open:
Provided that nothing in this section shall apply to any act or proceeding to
which the Indian Limitation Act, 1877, applies.
(2) This section applies also to all Central Acts and Regulations made on or
H after the fourteenth day of January, 1887.”
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 295
[S. RAVINDRA BHAT, J.]

applies to all Central Acts enacted after the said Act was brought into A
force. The scope of this provision was considered by this Court in H.H.
Raja Harinder Singh v. S. Karnail Singh13 by a four judge Bench,
which explained the object of Section 10 and held as under:
“5. … Where, therefore, a period is prescribed for the
performance of an act in a court or office, and that period B
expires on a holiday, then according to the section the act
should be considered to have been done within that period, if
it is done on the next day on which the court or office is
open. For that section to apply, therefore, all that is requisite
is that there should be a period prescribed, and that period C
should expire on a holiday.”
21. Other decisions14 have followed the same reasoning. It is also
noticeable that there is no indication in the NGT Act that Section 10 of
the General Clauses Act cannot be applied. It is therefore, held that the
provision applies proprio vigore to all appeals filed under the NGT Act. D
Approach of the court in considering the application for
condonation of delay
22. What constitutes “sufficient cause” in terms of Section 16
of the NGT Act? While it is unexceptionable for the Project Applicant to
E
argue that the Limitation Act is per se inapplicable to proceedings under
the NGT Act, given that the basic, and outer period of limitation for filing
an appeal have been enacted, nevertheless, what constitutes sufficient
cause, is left to the discretion of the tribunal. Here, the court discerns a
surfeit of authority on what the term denotes, and the general approach
of the court, in dealing with delay. F
23. In G. Ramegowda v. Land Acquisition Officer15, speaking
for this court, Venkatachaliah, J summarized the position in the following
terms:
“14. The contours of the area of discretion of the courts in
G
the matter of condonation of delays in filing appeals are set
out in a number of pronouncements of this Court.
13
1957 SCR 208.
14
Manohar Joshi v. Nitin Bhaurao Patil (1996) 1 SCC 169; Mohd. Ayub v. State of U.P.,
(2009) 17 SCC 70.
15
(1988) 2 SCC 142 H
296 SUPREME COURT REPORTS [2021] 13 S.C.R.

A See Ramlal v. Rewa Coalfields Ltd. [AIR 1962 SC 361 : (1962)
2 SCR 762] , Shakuntala Devi Jain v. Kuntal Kumari [AIR
1969 SC 575 : (1969) 1 SCR 1006] , Concord of India
Insurance Co. Ltd. v. Nirmala Devi [(1979) 4 SCC 365 : 1979
SCC (Cri) 996 : (1979) 3 SCR 694] , Mata Din v. A.
Narayanan [(1969) 2 SCC 770 : (1970) 2 SCR 90]
B
and Collector (LA) v. Katiji [(1987) 2 SCC 107 : 1989 SCC
(Tax) 172], etc. There is, it is true, no general principle saving
the party from all mistakes of its counsel. If there is negligence,
deliberate or gross inaction or lack of bona fides on the part
of the party or its counsel there is no reason why the opposite
C side should be exposed to a time-barred appeal. Each case
will have to be considered on the particularities of its own
special facts. However, the expression ‘sufficient cause’ in
Section 5 must receive a liberal construction so as to advance
substantial justice and generally delays in preferring appeals
are required to be condoned in the interest of justice where
D
no gross negligence or deliberate inaction or lack of bona
fides is imputable to the party seeking condonation of the
delay.”
24. Much later, in Esha Bhattacharjee v. Raghunathpur Nafar
Academy16 this court referred to a large number of previous judgments17,
E and observed that adoption of a strict standard of proof sometimes fails
to protect public justice and it may result in public mischief. Other
decisions have highlighted that there cannot be a universal formula to
judge whether sufficient cause has, or has not been shown and the
exercise is necessarily fact specific; in Improvement Trust v. Ujagar
F Singh18, the court held:
“16. While considering [an] application for condonation of
delay no straitjacket formula is prescribed to come to the
conclusion if sufficient and good grounds have been made
out or not.”
G
16
(2013) 12 SCC 649
17
State of Nagaland v. Lipok Ao (2005) 3 SCC 752; New India Insurance Co. Ltd. v.
Shanti Misra (1975) 2 SCC 840; N. Balakrishnan v. M. Krishnamurthy (1998) 7 SCC
123; State of Haryana v. Chandra Mani (1996) 3 SCC 132; and Tehsildar (LA) v. K.V.
Ayisumma (1996) 10 SCC 634.
18
H (2010) 6 SCC 786
SRIDEVI DATLA v. UNION OF INDIA AND ORS. 297
[S. RAVINDRA BHAT, J.]

25. The court also emphasized that each case has to be balanced A
on the basis of its facts and the surrounding circumstances in which the
parties act and behave.
26. Yet another dimension to the issue was highlighted in Maniben
Devraj Shah v. Municipal Corpn. of Brihan Mumbai 19, where the
court underlined a distinction between a case where the delay is inordinate, B
and a case where the delay is of few days and that in the former case
the consideration of prejudice to the other side will be a relevant factor;
in the latter case, no such consideration arises. After noticing that a
liberal and justice-oriented approach needs to be taken, it was stated
that the court, equally should be sensitive to the fact that “the successful
litigant has acquired certain rights on the basis of the judgment C
under challenge and a lot of time is consumed at various stages of
litigation apart from the cost.” The court then held that:
“24. What colour the expression ‘sufficient cause’ would get
in the factual matrix of a given case would largely depend on
bona fide nature of the explanation. If the court finds that D
there has been no negligence on the part of the applicant
and the cause shown for the delay does not lack bona fides,
then it may condone the delay. If, on the other hand, the
explanation given by the applicant is found to be concocted
or he is thoroughly negligent in prosecuting his cause, then it E
would be a legitimate exercise of discretion not to condone
the delay.”
27. It is evident that the term sufficient cause is relative, fact
dependant, and has many hues, largely deriving colour from the facts of
each case, and the behaviour of the litigant who seeks condonation of F
delay (in approaching the court). However, what can broadly be said to
be universally accepted is that in principle, the applicant must display
bona fides, should not have been negligent, and the delay occasioned
should not be such that condoning it would seriously prejudice the other
party.
G
28. Keeping these principles in mind, it is relevant to consider
whether the NGT’s refusal to exercise discretion, in the facts and
circumstances of this case, was erroneous. The court is conscious of
the fact that exercise of discretion, per se, is a fact dependent one, and
19
(2012) 5 SCC 157 H
298 SUPREME COURT REPORTS [2021] 13 S.C.R.

A considerable latitude should be given to the court or tribunal of the first
instance, in the performance of that task. Nevertheless, as decided, cases
and judgments have shown that the exercise of discretion does at times,
call for appellate scrutiny by this court. This is one such. The appellant
pleaded that since the documentation attendant to the clearance granted
to the Project Applicant was voluminous, and expert as well as
B
professional legal advice of the kind necessary to approach the NGT
was not available in the State of Andhra Pradesh, the procuring of relevant
documents, and correspondence with counsel in Delhi and drafting of
the appeal entailed some delay.
29. This court is of the opinion that there is merit in the appellant’s
C argument. The respondents, especially, the project applicant, had urged
that the appellant is an interested party, and cannot be called a public-
spirited citizen, because she had opposed acquisition of land for the airport
and therefore, was able to access legal advice at the High Court stage.
There is, in our opinion, nothing in the NGT Act which excludes parties
who would be directly affected by a project, that has
D environmental repercussions, from accessing the tribunal (NGT).
Likewise, characterizing the nature of legal advice that can be accessed
for challenging land acquisition, as similar to a challenge to environmental
clearance which involves application of mind to technical issues in a
detailed manner, would be unfair and simplistic. Scientific or technical
E support – apart from expert professional legal advice is necessary, if the
NGT were to be approached. In these circumstances, this court is of the
opinion that given the mandate of the NGT Act, the exercise of
discretion, as was done in this case, to reject the appeal by dismissing
the application for condonation of delay, on the ground that no sufficient
cause was shown, was erroneous and based on a narrow reading of the
F law. An appeal to the NGT in such matters is no ordinary matter; it has
the potential of irrevocably changing the environment with the possibility
of likely injury. Application of judicial mind by an independent tribunal in
such cases, at the first appellate stage, is almost a necessity.
30. In view of the foregoing findings, this court is of the opinion
that the impugned order of NGT has to be and is, therefore set aside.
G The delay in filing the appeal before the NGT is hereby condoned; the
parties shall now appear and proceed to argue the appeal on its merit,
which shall then be disposed in accordance with law. The appeal is
allowed. There shall be no order on costs.

H Devika Gujral Appeal allowed.